A.   Transportation Characteristics


1.     Streets and Highways


a.     Classifications


The Town of Menasha’s street and highway system consists of urban principal arterials, minor arterials, collectors and local streets (see Table 29 and Map 1). These classifications are based on which primary function the street or highway serves – the movement of vehicles through an area or to provide access to adjacent land. Arterials accommodate the movement of vehicles, while local streets are designed to provide direct access to individual parcels of land. Collectors serve both local and through traffic by providing a connection between arterials and local roads.


Principal Arterials - Principal arterials carry traffic through the Town and should have limited direct access to adjoining properties.


Minor Arterials - Minor arterials also carry through traffic and have a higher level of direct access than a principal arterial.


Collectors - Collectors provide access between local streets and both the principal and minor arterials.


Local Streets – Local roads provide direct access to residential, commercial, and industrial uses within the Town.




Principal Arterials

Minor Arterials


USH 41

STH 114/Plank Road

Clayton Avenue

USH 10

STH 47/Appleton Road

Irish Road

STH 441


Cold Spring Road


CTH P/Valley Road/Racine Street

American Drive


CTH BB/Prospect Avenue

Shady Lane


CTH AP/Midway Road

West American Drive


CTH II/Winchester Road

Jacobsen Road



Calumet Street



Airport Road



9th Street

Source: Martenson & Eisele, Inc.


With the completion of STH 441 east of Little Lake Buttes des Morts, the construction of USH 10 west from Little Lake Buttes des Morts and the completion of CTH CB from CTH BB to past CTH II, the Town of Menasha has an excellent major and minor arterial system in place. Attention should now be turned to upgrading the collector streets in the Town.


Many of the collector streets such as Irish Road and Shady Lane (see Table 29) were originally constructed to rural standards with relatively narrow lanes and shoulders and sloped, open ditches. As the land along these streets develops, vehicle and pedestrian traffic increases. For safety reasons, consideration must be given to upgrading collectors to urban standards from the originally constructed rural standards. The urban standards would include wider lanes, paved shoulders, curb and gutter and sidewalks and/or pedestrian/biking trails.


An area that was identified in discussions with the Town of Menasha was N. Lake Street north of Ehlers Road. While the street was not designed as a collector street, it functions as one. It is anticipated that the construction of the Jacobsen Road overpass over USH 41 will help to remove some of the non-local traffic on N. Lake Street. The Town should continue to monitor the use of the street for non-local traffic and identify alternate routes.


b.     Traffic Counts


Map 2 shows traffic counts in the Town of Menasha based on annual average data from 1988 – 1991 and from 2000 as published by the Wisconsin Department of Transportation.



The highest volume of traffic, as expected, is on USH 41, where traffic counts increased from 52,930 in the 1989-1991 time period to 74,400 vehicles per day in 2000. The construction of STH 441 has had a significant impact on the east side of the Town. Traffic counts have decreased on STH 47 south of STH 441, STH 114 and CTH AP/Midway Road. It is interesting to note that the count on STH 47 north of STH 441 increased significantly indicating that the construction of 441 created a higher level of access to the south side of Appleton.


Based on the counts on CTH CB, the construction of this minor arterial has had the desired effect of reducing the amount of traffic on collector and local streets in the vicinity of CTH CB. It has not had an impact on traffic on American Drive between CTH BB and Shady Lane where the volume increased from 7,380 in 1989-1991 to 11,600 in 2000.


Traffic counts are an important tool in transportation planning. They are compared to the design capacity of the street or highway to determine if the counts exceed the design capacity. When the traffic count exceeds the road’s design capacity, the Town must determine what improvements are needed to bring the roadway up to acceptable standards.


In analyzing the traffic counts shown in Map 2, the only street where the traffic count exceeded the design capacity is American Drive between CTH BB and Shady Lane, which is schedule for reconstruction as a four lane minor arterial in 2003. It is recommended that traffic counts continue to be monitored to determine needed improvements.


c.   Traffic Accidents


Traffic counts are just one of the criteria that can be used to determine the need for improvements to arterials and collectors in the Town of Menasha. Traffic accidents can also be used to determine where improvements can be made to increase vehicular and pedestrian safety.


Table 30 shows areas with the highest number of traffic accidents from 1998 to February 2002. The intersection of American Drive and CTH BB or Prospect Avenue and the intersection of CTH II or Winchester Road and Green Bay Road have the highest amount of traffic accidents. The American Drive and CTH BB/Prospect Avenue intersection will be reconstructed as part of the rebuilding of American Drive in 2003. Further analysis should be performed on the N. Green Bay Road and CTH II/Winchester Road to determine what measures can be taken to reduce the number of accidents.










# of Accidents


Most Dangerous Intersection

# Accidents at Most Dangerous Intersection

Racine Rd.


9th St.


CTH II/Winchester Rd.


N. Green Bay Rd.


CTH BB/Prospect Ave.


American Dr.




Jacobsen Rd.


American Dr.


CTH BB/Prospect Ave.


Appleton Rd.




N. Green Bay Rd.


CTH II/Winchester Rd.


Calumet St.


Southwood Dr.


Midway Rd.


University Dr.


SOURCE: Town of Menasha


d.     PASER


Another tool available to the Town of Menasha in determining budget priorities for street construction and repair is PASER (pronounced pacer). PASER is a simplified pavement management program that communities use to evaluate pavement surface condition. Through the program the community develops a PASER rating (from 1 to 10 with 10 being excellent condition) and a priority rating for each street. The PASER rating reflects the physical condition of the street. The priority ranking reflects not only the condition of the street but the amount of traffic on the street. For example, a street with a low PASER rating and very little traffic could have a lower priority rating than a street with a higher PASER rating and a high amount of traffic.


Table 31 shows a summary of the streets with priority ratings of greater than 20 and their respective PASER ratings. These are the streets that should be the focus of budget decisions made by the Town of Menasha regarding street repair and maintenance.








PASER Rating

Priority Rating

American Drive

CTH BB to E. Shady Lane



American Drive

Green Bay Road north to cul du sac



Airport Road




Irish Road

Shady Lane to USH 10



Irish Road

RR crossing to CTH II



Southwood Drive

Calumet to Wilson



Northern Road

Prospect to Stroebe



Source: Town of Menasha and Martenson & Eisele, Inc.


2.     Trucks


a.     Trucking Companies and Terminals


The Town of Menasha contains five major truck freight terminals, located within close proximity to federal, state and county roads, rail service, paper companies, manufacturing plants, and warehousing/distribution centers. These trucking companies and terminals (as shown on Map 3) include (A) A-B-F Freight Lines on West Prospect (CTH BB), (B) Swift Transportation on American Drive, (C) USF Holland Inc. located on Kimberly Avenue, (D) Consolidated Freightways on Ehlers Road, and (E) Tax Airfreight Inc. located on Independence Drive.


b.     Truck Routes


Associated closely with the trucking companies and the freight terminals are the designated truck routes located throughout the Town. Map 3 shows the major truck routes that are located on federal, state and county streets and highways as well as additional truck routes designated within the Town.


Vehicles defined as “heavy traffic” are required to use these routes. Heavy traffic means all vehicles not operating completely on pneumatic tires and all vehicles or combination of vehicles, other than motor buses, designed or used for transporting property of any nature and having a gross weight of more than 6,000 pounds.


The movement of raw materials and finished products by truck continues to increase, resulting in a heavy dependence on a good road system. A combination of federal, state, county and local funds will need to be invested in major road system improvements over the next twenty-year planning period to accommodate this demand.


An analysis of where significant amounts of truck traffic are generated shows that these areas are well located with respect to streets and highways constructed to meet this type of vehicular movement. Most are located immediately adjacent to, or within a few blocks of, the major and/or minor arterials that are in the Town. Capacity does not appear to be an issue with the exception of American Drive south of CTH BB that will be addressed in 2002.


Access to major and minor arterials should be a key factor when the Town reviews development proposals for projects that are anticipated to generate significant amounts of truck traffic.





a.     Freight


In the fall of 2001, the $1.2 billion acquisition of Wisconsin Central by Canadian National was finalized. This move is expected to improve rail freight service to Wisconsin, due to Canadian National’s faster connections through the Chicago terminals, operated by its subsidiary, Illinois Central.


Canadian National is the major railroad line that provides freight service to Winnebago County.  Within the County there are two primary routes that Canadian National operates to serve communities and industries (see Map 3). The north-south route connects the Oshkosh Area with Fond du Lac, Milwaukee and the Chicago Rail Yards to the south; while the northern segment connects Oshkosh to the Appleton / Fox Cities Area and Green Bay. Freight transfers and switching operations for Canadian National take place in the rail yards located at Appleton, Menasha, Neenah and Oshkosh. The Canadian National operates a secondary line that connects the Menasha Yard with the Manitowoc Area and Lake Michigan Shoreline communities. During the week, approximately 25 freight trains are scheduled on a daily basis to meet the shipping demands of the area.


The east-west route operated by Canadian National connects the Neenah Yard with Stevens Point and Marshfield in central Wisconsin, as well as the major railroad terminals located further west in the Twin Cities (Minneapolis / St. Paul) and Duluth, Minnesota. This main line schedules approximately 30 freight trains daily to meet the shipping demands of the regional railroad centers located in the Upper Midwest.


b.  Passenger


The potential for rail passenger service initially emanated from Translinks 21, adopted by the Wisconsin Department of Transportation (DOT) in 1994. Translinks 21 is a broad umbrella plan with a unified vision and a set of goals from which individual modal plans for highways, airports, railroads, bikeways, pedestrian and transit are being shaped. By planning within this framework, the interconnections between travel modes can better be identified and understood.


Translinks 21 found that passenger rail could be, and should be an important component of Wisconsin’s transportation system. It is estimated that high speed rail will have the most significant impact on travel of any non-highway mode, attracting more than five million new passengers each year by 2020.


In March 1999, then Governor Tommy Thompson created the Governor’s Blue Ribbon Task Force on Passenger Rail. The 25 member task force was created to assess organizational and financial issues at both the state and local level related to passenger rail. In a final report to Governor Scott McCallum, the Task Force found that enhanced intercity passenger rail service would improve connectivity to urban centers in Wisconsin and throughout the Midwest. It recommended that Wisconsin implement the State’s portion of the Midwest Regional Rail Initiative (an 8-state/Amtrack committee whose purpose is to investigate and develop a high-speed Midwest Regional Rail System).


If the right combination of federal funding can be approved, high-speed passenger rail could be a part of the future in northeast Wisconsin. Northeast Wisconsin high-speed would probably be for service at 79 mph., although 110 mph. is being studied. The northeast link, projected for 2007, would be the third stage of a Wisconsin rail plan. The DOT already is looking at joint procurement of rolling stock with Amtrak and the states of Illinois and Michigan.


The costs for the high-speed service in Wisconsin is estimated to reach $495 million for the infrastructure, including tack improvement, sidings, grade crossings, warning lights, fencing and a special signal system that would allow trains to communicate with each other. Some local government financial involvement will be necessary to make the system work. However, it is hoped that fares would cover operating costs. Fares would be $21 to $35 one-way.


Rail passenger service is needed because of the increasingly congested highway system and the tremendous delays being found at airports.  Several studies done in the past decade suggest that passenger service through Winnebago County between Green Bay and Milwaukee could be feasible.


Recent events will have an impact on the timeline for the re-introduction of passenger rail service to northeastern Wisconsin. Federal budget priorities have changed as a result of the September 11th attack on the World Trade Center. Here in Wisconsin a $1.1 billion projected deficit in the state budget will certainly have an impact on both state and local spending. The Town of Menasha should monitor the situation to determine the impact of passenger rail service on the other transportation systems as well as the potential for a location for a passenger rail terminal.

3.     Transit


The Town of Menasha’s transit service is provided by Valley Transit, which is owned and operated by the City of Appleton, and funded by the state and federal governments and by the local communities in which service is provided. Some buses run from 5:45 a.m., with most routes starting at 6:15 am. Most bus routes operate until about 10:30 p.m.


The bus fare is typically $1.00, but can be cheaper if ten-ride tickets ($7.50) are purchased. Senior citizens and the disabled can get a ten-ride ticket for $5.00. Special group rates for children are also available.


Lift-equipped buses are available on the regular Valley Transit fixed routes. The lift service gives passengers who have difficulty using the steps a safe and easy way to get on board. In addition, some individuals with severe disabilities may require an attendant for assistance when riding the bus. These necessary care attendants may ride free.


Valley Transit operates 17 bus routes, serving most of the Fox Cities. More specifically, four routes serve the Town of Menasha (see Map 4). Route 9 and Route 11 circle through the northeast corner of the Town of Menasha and City of Appleton, going as far south as Midway Road and as far west as Appleton Road. They operate every half-hour, including evening service.


Route 30 is a one-hour route that goes from downtown Neenah to downtown Appleton, and then returns to Neenah. This route follows Appleton Road through the City of Menasha, meandering east and west along major streets as well as Commercial Street in the City of Neenah. Both routes operate during the day and in the evening.


Route 40 comes and goes from downtown Neenah to the Fox River Mall. This one-hour route follows Winneconne Avenue to Green Bay Road, then meanders through the Town of Menasha into the Town of Grand Chute, where it follows Nicolet Drive to the Fox River Mall. This route does not operate in the evening.


Another bus stays in Neenah all day, with alternating routes (31E and 31W) on the east and west sides of the City being served by the same bus. These two routes come and go from a downtown Neenah transfer point every half-hour, although no evening service is provided.


Funding for the continuation and expansion of transit services in the Fox Cities and the Town of Menasha continues to be an issue. The projected $1.1 billion shortfall in the State of Wisconsin’s budget and the plan to eliminate



the current form of shared revenues to local government increases the funding pressure on Valley Transit. The Town of Menasha should prepare for an increase in the local contribution to the cost of Valley Transit operations.



4.     Multi-Use Trails


Map 5 shows the existing trails in the west side of the Town are located along CTH II, CTH CB south of Shady Lane, USH 10 between Cold Spring Road and Irish Road and along Shady Lane from just east of CTH CB to Irish Road. Existing trails in the east side of the Town are along STH 114 or Plank Road and USH 10.


The issue of multi-use trails and paths is becoming more important as an alternate transportation mode and as a recreational amenity. Groups and governmental agencies are finding that the acquisition, dedication, or official mapping of trails is a very difficult process in existing neighborhoods, and


there is a critical need for advance planning of trail locations in future growth areas.

Trails should not only connect residential neighborhoods with parks, schools, shopping, places of employment, and other land uses, but also make connections to longer regional trails. Just like the roadway system has arterial, collector, and local streets, trails could be defined in the same way.


The presence of trails often increases the value of properties adjacent to the corridors, especially those through residential neighborhoods. The National Association of Home Builders cites trails as the second or third most important amenity that would influence people to move to a new location.


Trails also provide a quality of life aspect that is becoming an increasingly important factor in attracting and retaining businesses in a community. Corporations bring jobs to communities and help support other businesses. Additionally, health improvement, due to outdoor exercise, can help control company medical costs in the long run.


By providing safe, pleasant places to walk, bicycle and in-line skate, trails encourage people to use non-motorized means of getting to work, school, play, and shopping, resulting in reduced traffic congestion, noise, and air pollution. The Wisconsin Bicycle Transportation Plan 2020 states: "the most frequent, comfortable, and practical trips for bicyclists, those under five miles, produce the greatest environmental benefits, since automobile trips under five miles in length are the least fuel efficient and produce the highest emissions per mile."


Trails can provide a sense of place and a source of community pride. When integrated with features such as historic sites, commercial or residential areas, and parks, they can improve the overall character of a region.  Trail corridors can become outdoor classrooms where children and adults can observe and learn about their natural and cultural environment.


Special interest and “grass roots” citizens committees have been helpful in promoting, encouraging and implementing trail plans.  The most noteworthy and active group in Winnebago County has been Fox Cities Greenways, Inc., which conceptually established “The Paper Trail” around the Fox Cities. This group publishes a quarterly newsletter and actively lobbies local, regional and state governmental agencies to include trails in roadway projects. The group also acts as an information hub, attending meetings, sharing information, and connecting communities with each other.


The Town of Menasha has been active in the development of multi-use trails in recognition of the fact that a lack of sidewalks and off-street bicycle paths in the Town forces pedestrians to walk in heavily traveled streets. Bicyclists must ride in close proximity to significant volumes of auto and truck traffic. Pedestrians have no other option to get from house to house or neighborhood to neighborhood.  An example of this lack of pedestrian and bicycle facilities in the Town is the Spring Road Elementary School neighborhood, which completely lacks sidewalks. There is a growing understanding among Town residents that some type of off-street bicycle and pedestrian trail system is needed along heavily traveled Town roads such as Cold Spring Road, Irish Road, Shady Lane and Jacobsen Road. The survey conducted in the Fall of 2001 showed 81% of the respondents agreed with the need to continue to build trails.


5.     Air


a.     Outagamie County Regional Airport


Outagamie County Regional Airport (see Map 3) is located on approximately 1,500 acres of land in the Town of Greenville just to the north of the Town of Menasha. Construction on the present airport started in 1963 with project completion in August 1965.  The major airport runways include a 7,000-foot northeast-southwest concrete runway, as well as a 6,500-foot northwest-southeast concrete runway.


The terminal is currently going through a $12 million major addition and renovation project. The work includes a 28,000 square foot concourse addition with five boarding bridge gates to aircraft, three at-grade gates and renovation of the terminal, including a new paging and flight information system. Completion is scheduled for 2002.


Currently, the commercial service airport provides 66 flights daily (arrival & departures) by five commercial airlines, with connecting flights to Chicago, Cincinnati, Detroit, Milwaukee and Minneapolis-St. Paul. The airport also provides aircraft rentals, charter flights, air freight service, and rental car service. Several business parks and industrial parks are also located in close proximity to the airport.


In 1999, the Outagamie County Regional Airport accommodated a total of 529,000 passengers for outgoing and incoming flights. Through November 2000 the passenger total was 496,577. The airport handled 21,600,067 pounds of air freight in 1999 and 19,954,636 pounds through November 2000.


The airport facility has an Airport Master Plan that was adopted by the Outagamie County Board in 1993. According to the Airport Director, the current Airport Master Plan is in the process of being updated with subsequent updates scheduled within five to ten years.


Although only a very small portion of the Outagamie County Regional Airport is actually in Winnebago County, it has significant land use implications in the Town of Menasha because some of its landing patterns occur over the Town. Outagamie County has been urging Winnebago County to adopt an Airport Overlay District to protect the landing corridors that emanate from the airport.


Specifically, the northwest side of Little Lake Butte des Morts would be located within Airport Overlay District Zones 2 and 3, as would the north end of Clayton Avenue. Permitted uses in Zone 2 are limited to agricultural and light recreation. Special uses include low-density residential, commercial and industrial development.  Zone 3 would allow the same types of development, but at slightly higher densities.


Height restrictions also apply in the Airport Overlay Zones, and are measured from grade elevation to the height limitation numbers shown within the various mapped zone boundaries of the height limitation zoning map located in the office of the Outagamie County Zoning Administrator.


Consideration by Winnebago County (affecting the Town of Menasha) should be given to the development of lands that are in the path of the landing and take-off zones for several reasons:


¨        Minimize height obstacles

¨        Protect the public by minimizing housing density and public assembly facilities

¨        Minimize complaints of future residents regarding noise or vibration


If Winnebago County chooses not to address the issue, the Town of Menasha should continue to meet with the Zoning Administrator for Outagamie County on future implementation of the overlay zones.


b.     Wittman Regional Airport


Wittman Regional Airport is located within the city limits of Oshkosh. The airport is currently served by one commercial airline (United Express) which provides six flights daily (arrivals and departures) to Chicago. However, the prospects for passenger service will be short term, with this service ending soon. The airport will continue to provide aircraft rental and charter flights.


Every summer during the last week of July, Wittman Regional Airport becomes the busiest airport in the world when the Experimental Aircraft Association (EAA) holds its annual Fly-In Convention at the facility. This event attracts more than 825,000 visitors and aviation enthusiasts annually. 


The airport is operated by Winnebago County and receives a state and federal subsidy annually to maintain service and operations. However, this subsidy may be lost, which will mean the demise of commercial passenger flights. At this time, there are no future plans for further expansion of the airport facilities.


Wittman Regional Airport is located on approximately 1,500 acres of land and has an Airport Master Plan that was adopted by Winnebago County in 1992. Currently, Wittman Regional Airport operates two runways at the facility. The north-south runway is an 8,000-foot long concrete runway constructed to accommodate the larger aircraft that fly in for the EAA Annual Convention. The east-west runway is a 6,000-foot long concrete runway that is primarily for regular aircraft take-offs and landings. According to the Airport Manager, the Airport Master Plan will be updated within the next three years.


In 1999, approximately 5,000 passengers flew out of Wittman Regional Airport,with Chicago being the primary destination. Figures were not available for the number of passengers arriving at Wittman Field. Through November 2000, figures were not available for passengers arriving or departing the airport. Although provided, freight service at the airport, based on the number of pounds handled, is rather limited. Growth potential for airfreight at Wittman Airport is somewhat limited given its proximity to the Outagamie County Regional Airport in the Fox Cities, and Mitchell International Airport in Milwaukee.


The attraction of new business is being used as a justification for public investments in new airport construction and expansion plans. Approximately 23 different businesses already are located on the Wittman Regional Airport grounds. The airport also provided a site for a 125-room Hilton Gardens Hotel, which opened in June 2001.


The Town of Menasha should continue to monitor the efforts at Wittman Regional Airport to improve passenger and freight service.


6.     Water


The local water transportation system for the Town of Menasha includes buoys, a lock and dam, and bridges (see Map 6).


For navigational purposes, the Winnebago County Parks Department contracts with a private sector firm to install buoys in the spring and remove them in the fall. Map 6 illustrates the location of the buoys in Little Lake Butte des Morts. Buoys generally mark shallow areas or river channels to keep boaters from becoming stranded in shallow depths. One lock and dam operates in the City of Menasha to allow boaters to traverse between Little Lake Butte des Morts and Lake Winnebago.


There are six structures in the Town of Menasha (see Map 6) that meet the Wisconsin Department of Transportation’s (WisDOT) definition of a bridge:


“A structure having an opening measured along the center of the roadway of more than 20 feet between the face of abutments, or the extreme ends of openings for multiple box culverts, or the extreme ends of openings for multiple pipe culverts where the clear distance between openings is less than half of the smaller contiguous opening.”


Maintenance responsibility for structures located on any county road, town road, or city or village street is generally that of the local unit of government.  Bridges located on portions of federal and state highways on city-connecting routes, are generally maintained and inspected by the city. Of the six bridges, the only one that is maintained by the Town is on American Drive south of Shady Lane.


The closest shipping location over water is the port in Green Bay, approximately 30 miles northeast of the Town of Menasha. In 1999, 1.9 million tons of freight passed through Green Bay’s port. Water transportation of raw materials, goods, and products is the most environmentally safe, cost-effective means of transportation for bulk commodities. Water isn’t the fastest mode of transportation, but water transport has economies of scale over what can be accomplished through truck or rail. For example, the port in Green Bay can be beneficial to companies and governmental entities that need bulk type materials to be shipped in or out of the area.


While surface water is a significant feature in the Town of Menasha, use of the water system in the Town of Menasha for non-recreational purposes is very limited to almost non-existent. The major projected use of the system will be in the area of private boating, reflecting the publics’ desire for water-based recreation and sportsman activities.


8.  Handicapped Accessibility


a.     Valley Transit


Along with the fixed bus routes Valley Transit provides paratransit services, available for passengers for whom using the fixed-route service is impossible. Individuals covered under the Americans with Disabilities Act require the bulk of this service. The service offered by Valley Transit is called Valley Transit II, which is under contract to Kobussen Buses Ltd.


b.     Rural Transportation for Persons Over 60


This subsidized taxi and van service is provided to 60 years old or older residents of Winnebago County, which includes the Town of Menasha. Residents can call 24 hours per day, seven days a week for service, and are eligible for ten (10) one-way trips each month. The driver could request proof of age.  Cost is $4.00 per one-way trip for residents who live in townships that contribute to the program or $8.00 for residents who live in townships that do not contribute.


c.      Rural Transportation for Persons Under 60


This subsidized taxi and van service is provided to disabled residents under the age of 60 living in rural Winnebago County, which includes the Town of Menasha. Residents can call 24 hours per day, seven days a week for service, and are eligible for ten (10) one-way trips each month. Individuals are required to apply for certification at the Oshkosh Red Cross Office. Cost is $4.00 per one-way trip for residents who live in townships that contribute to the program or $8.00 for residents who live in townships that do not contribute. Currently the Town of Menasha does not participate in this program.


d.     Other Paratransit Service


Northern Winnebago Dial-A-Ride offers a reduced fare for taxi service for individuals 60 years old and over living in the Town of Menasha. Persons interested can call Heritage Homes for information and certification, or Lamers Cab for service. This service is also available in the cities of Appleton, Menasha and Neenah.


Given the increase in the percentage of the population 65 years and older in the Town of Menasha, it is projected that the demand for transportation services that are accessible to the handicapped will also increase. The providers of these services will also face funding issues due to the state deficit and the proposed abolishment of local revenue sharing. The Town will need to consider what level of service and funding will be made available to provide mobility to its handicapped residents.



B.   Comparison of Local Transportation Plans, Goals, and Policies


1.     Towns


The Town of Menasha shares Clayton Road as a common boundary with the Town of Clayton. As development continues to occur in the far west portion of the Town of Menasha, an upgrade of Clayton Road from its current two lane status with open ditches to an urban standard will be necessary. USH 10, CTH BB, Shady Lane and West American Drive extend from the Town of Menasha into the Town of Clayton. USH 10 is complete as it transitions from the Town of Menasha to the Town of Clayton. The connection from West American Drive at Clayton Road to where it continues further west in the Town of Clayton has been officially mapped by the Town of Clayton. Meetings with the Town of Clayton will be scheduled when improvements for Shady Lane and the proposed extension of Jacobsen Road to Fairview Road are discussed.


There does not appear to be any concerns at this time regarding transportation linkages with the towns of Grand Chute, Greenville and Neenah.


2.     Cities


The STH 47/Appleton Road Corridor will continue to be the subject of cooperative planning between the Town of Menasha and the City of Menasha. Sidewalk improvements have started and will continue to be installed. The intersection of STH 47 and Midway Road is scheduled for reconstruction to improve turning lane movement. Other areas that are of mutual interest are access and flooding issues on Valley Road; traffic back-ups at the Racine and 9th Street intersection; the redesign of the intersection of Beck Street, Valley Road and Chain Drive; the construction of the pedestrian and bike trail on the abandoned rail trestle across Little Lake Buttes des Morts; and alternative routes for Valley Transit.


There does not appear to be any concerns at this time regarding transportation linkages with the cities of Appleton and Neenah.


3.     Counties


USH 10 /Oneida Street is the boundary line between the Town of Menasha and Calumet County. Improvements for this area were discussed earlier in the Cities section. CTH BB/Prospect Avenue is the boundary between the Town of Menasha and Outagamie County. No improvements are shown on the Five-Year Transportation Plan for Outagamie County for CTH BB. The transportation element of the Winnebago County Comprehensive Plan was completed in January 2002. The sections of the plan relating to the Town of Menasha and adjoining municipalities have been included in this plan.


4.     Regional, State and Federal


In July 1997, the East Central Wisconsin Regional Planning Commission adopted the Long-Range Transportation/Land Use Plan for the Fox Cities, Oshkosh and Fond du Lac Urban Areas. Table 32 shows projects recommended for construction or programming and projects recommended for further study.







Recommended for Construction or Programming

American Drive

Construct a four-lane urban section from CTH BB to Shady Lane

Scheduled for 2003


Construct a five-lane urban section from USH 41 to Seminole Court

Not scheduled


Construct four-lane urban section from CTH BB to STH 150 on new right-of-way with bike and pedestrian trail


STH 114

Resurface two lane section from Manitowoc Street to USH 10.


STH 150

Construct four-lane urban/rural sections from USH 41 to USH 45. Portions to include off road facilities for bikes and pedestrians.


USH 10

Construct four-lane divided highway form USH41/USH10/STH441 interchange west to USH 45 and relocate USH 10 on new alignment.

First phase is complete.  See discussion in text below

USH 10 - Little Lake Butte des Morts Bridge

Construct new bridge adjacent to existing STH 441/USH10 bridge. Includes rehab/modifications to existing bridge and interchange improvements on both ends of bridge.

See discussion in text below

Recommended for Additional Study

West American Drive

Construct two lane frontage road from CTH CB to USH 45.

Completed to west boundary of the Town of Menasha

Jacobsen Road

Construct two lane frontage road from Irish Road to Clayton Avenue.

Officially mapped but not scheduled

Source: East Central Wisconsin Regional Planning Commission


a.  41/441/10 Interchange and Bridge


The STH 441/USH 41/USH 10 interchange at the Roland Kampo Bridge is identified in the Regional Transportation Plan as an area of significant traffic congestion.


This interchange and bridge expansion project started in 2000, with a ramp from east bound USH 10 to southbound USH 41 and southbound USH 41 to westbound USH 10. In late 2001, the State also completed construction of a new bridge over USH 41, just south of the 41/441/10 interchange, that connects North Lake Street in the City of Neenah to American Drive/Jacobsen Road in the Town of Menasha.


Construction on the remainder of this project is currently not slated to begin any earlier than 2008. It will include construction of an additional bridge for eastbound traffic across Little Lake Butte des Morts, just south of the existing Roland Kampo Bridge. The existing, 3/4 mile-long bridge is a four-lane facility which frequently is exposed to traffic volumes that exceed its design capacity. Further, the bridge lacks emergency lanes and does not meet basic safety design standards.


A new flyover ramp from westbound USH 10 to southbound USH 41 will replace the current loop ramp and connect to the new eastbound USH 10 to southbound USH 41 ramp. The ultimate interchange also reinstates the eastbound USH 10 to northbound USH 41 and northbound USH 41 to westbound USH 10 ramps. These former ramps were closed in 1997 for safety reasons when USH 10 was extended west of USH 41.


When completed, the interchange improvements and the new bridge will provide access and traffic flow in all four directions in a safe and efficient manner.

b.  USH 10 Corridor – USH 45 to STH 110


This project will start at USH 45 in the Town of Clayton, immediately to the west of the Town on Menasha and continue west to STH 110 in Waupaca County. It is anticipated that land around intersecting highways or in close proximity will come under development pressure, especially in the areas that have sanitary sewer districts. Construction will begin in 2002 and be completed in 2003.


C.   Transportation Vision


The following will be discussed at the Town of Menasha Plan Commission meeting on February 20, 2002.


It is the year 2020. You have successfully created your preferred configuration of local transportation arrangements. Describe it.


1.     What parts of the current transportation system are the most important?

2.     What current transportation arrangements, modes and facilities do you want to preserve?

3.     What current transportation arrangements, modes and facilities do you want to change, expand or improve?

4.     What current transportation arrangements, modes and facilities do you want to create?

5.     Of the various trends related to transportation in your community and region, which should be encouraged and which should be altered?

6.     How will those elements you want to preserve and those you want to create achieve your community’s future vision?

7.     What kinds of transportation arrangements promote a high quality of life?



D.  Goals, Objective and Policies


1.     Goal


To achieve a safe, convenient, efficient and environmentally sound multi-modal (i.e. pedestrian, bicycle, auto, transit, air, etc.) transportation system that provides personal mobility to all segments of the population and supports the economy of the Town of Menasha and the region.


2.     Objectives


a.     Encourage the use of innovative transportation system design standards to facilitate pedestrian, bicycle and transit use and reduce automobile dependency.


b.     Continue to update the Official Street Map in order to reserve adequate rights-of-way for future reconstructed or newly constructed streets, pedestrian and bicycle facilities.


c.      Coordinate transportation projects with the Town's Comprehensive Development Plan.


d.     Link the Town's transportation system with the regional transportation system through coordinated intergovernmental long-range transportation and land use planning.


e.     Take full advantage of the economic development possibilities associated with the Town's access and proximity to regional rail lines, Outagamie County Airport, the regional highway and waterway systems.


f.       Provide safe and comfortable pedestrian and bicycle facilities in all areas of the Town, including residential, commercial, industrial, recreational and institutional areas.  All neighborhoods should be designed to meet the unique needs of pedestrians, bicyclists and automobile travelers.


g.     Encourage land use densities and development patterns that make transit service feasible in the Town.


h.     Require all new development along existing and proposed transit corridors to be designed so that it can be easily and conveniently served with bus or other transit systems.  Site plan reviews should include a thorough analysis of whether or not the proposed development is designed in a manner that will allow it to be served by transit vehicles (e.g. buses, car pools, vans, rail, etc.).


i.       Continue to improve the image of the Town by improving the visual quality of development along key community entryways such as STH 441-USH 10, USH 41 and CTH CB. This should be achieved by further revising the Town's  signage, landscaping, outdoor storage and building design regulations so that new development fosters high visual quality.


j.       Provide a directional signage system throughout the Town.  This system should guide travelers to key activity centers such as the new Town Center Complex, waterfront recreation areas, commercial districts, parks, schools, office centers and industrial facilities.


k.     By January 1, 2003, coordinate the Town's capital improvements projects with this Plan.


l.       Provide safe and convenient pedestrian and bicycle routes between residential areas, schools, shopping areas, parks, medical facilities, employment centers and mass transit facilities.


m.  Require new development projects to accommodate the needs of pedestrians, bicyclists, transit riders, and the physically challenged. Develop or modify the requirements and standards of site plan reviews and conditional use permits so that they incorporate the  requirements will be made a part of all new development and redevelopment projects.


n.     Promote intermodal trail development that will ensure that most neighborhoods in the Town are located within ¼ to ½ mile (five to ten minute walk) of a public park facility.


o.     Encourage persons owning developed property along major community entryways to improve the aesthetic quality of their properties by screening parking areas, landscaping street terraces and yards, reducing the number and size of signs, eliminating outdoor storage of materials, products or supplies, and planting decorative gardens and flower beds. 


p.     Ensure that pedestrian crossings at major intersections are properly designed to provide maximum safety and convenience to those crossing these heavily traveled streets.


q.     Require new development to provide off-street parking and loading facilities.  Encourage shared parking arrangements between adjacent land uses whenever possible.


r.      Minimize the impact of new transportation projects on existing neighborhoods, businesses and natural resources.


s.      Implement access control regulations along arterial and selected collector streets in the Town to facilitate safe travel and reduce public right-of-way acquisition costs.


t.      Revise existing Town and County ordinances and standards as needed to implement the recommendations made in this Plan.


u.     Pursue the establishment of an impact fee to ensure that new development supports transportation improvements to maintain minimum levels of service for all impacted roads.


v.     Require offsite improvements for new developments that ensure that these new developments do not degrade the service levels of the public roads they will impact.


w.   Establish levels of service for all roads within the Town.


E.   Transportation Plan


Long-range transportation system planning is needed to promote logical and efficient community development, foster economic development, and ensure safe and efficient movement of vehicular and non-vehicular traffic. Transportation system planning and land use planning must be coordinated given the complex interrelationships between these two elements of community development. For example, the highest and best land use of a specific parcel is determined by a number of factors including (and perhaps most importantly) its location in relation to major transportation facilities such as highways, transit routes, waterways, rail lines and airports.


Transportation system and land use interrelationships are also important from a capital improvement planning perspective. For example, in order to maximize the cost-effectiveness and efficiency of public investments in streets and related infrastructure, it is very important to coordinate land use planning with transportation systems planning. If a community knows which types of land use are proposed for a given area, it can project traffic volumes on streets that serve the area, as well as determine the sewer and water facilities that will be needed to serve the area as it urbanizes. A Comprehensive Plan, an Official Map, a Zoning Ordinance, an Access Control Ordinance, a Subdivision Ordinance and a Capital Improvements Program are some of the community planning tools that are necessary to achieve coordination between transportation system planning and land use planning.


1.     Five Year Capital Improvement Plan


As a way of planning and prioritizing future transportation improvements, it is recommended that the Town adopt a Five Year Capital Improvement Plan that would include transportation projects. The plan identifies the transportation project, a description of the project, the estimated cost and potential funding sources. It should be updated annually as part of the Town’s budget process.


Table 33 shows an example of this type of plan that the Town of Menasha may wish to consider developing and adopting.




NOTE: This is an example of a five year transportation improvement plan and does not necessarily reflect actual or proposed improvements being considered by the Town of Menasha.






Funding Sources






Total Project Cost

American Drive

Reconstruct American Drive from CTH BB to Shady Lane as a four lane street with a sidewalk on one side and a multi-purpose trail on the other.

Long Term Financing







Federal/State Aids







Local Levy














Clayton Road

Reconstruct Clayton Road from CTH BB to CTH II as a two lane collector street with sidewalks and multi-purpose trails

Long Term Financing







Federal/State Aids







Local Levy














Irish Road


Long Term Financing







Federal/State Aids







Local Levy














Jacobsen Road


Long Term Financing







Federal/State Aids







Local Levy














Shady Lane


Long Term Financing







Federal/State Aids







Local Levy














Source: Town of Menasha



2.     Trails


Trails scheduled or proposed for construction on the west side of the Town of Menasha are CTH CB from STH BB to Shady Lane, Shady Lane from just east of CTH CB to American Drive, and American Drive and West American Drive (see Map 5).


The Town of Menasha is working cooperatively with the City of Menasha on the conversion of the abandoned Little Lake Butte des Morts train trestle (see Map 5). The budget for this project was approved in August 2000, and the Wisconsin Department of Natural Resource (DNR) is negotiating with the Fox Valley and Western Railroad for acquisition of this one-mile bridge. Conversion of this span to a hiking-biking trail is scheduled to begin in the summer of 2002. The Trestle to Trail Project would be a key element in linking trails together in the Fox Cities. This connection would also benefit efforts to extend a trail through the City and Town from the trestle to the Heckrodt Wetland Reserve off State Road 114, on the east side of the City of Menasha. On the west side of the trestle, the pedestrian path will be incorporated into the North Lake Street overpass crossing USH 41, and will connect to the USH 10 pedestrian walkway (south side of the freeway) that extends through the Town to the CTH CB trail. Eventually, this same trail will be extended to the west, following the new freeway through the Towns of Clayton, Winchester and Wolf River.


The USH 10 and USH 45 intersection will require a nine-foot high culvert to provide passage under the new four-lane roadway when constructed. Monies are currently being collected to make this critical connection a reality.


The Town of Menasha is also planning several joint ventures with the City of Menasha in the east side of the Town to promote pedestrian paths on roads that are shared by both communities.  In 2001, the two communities began the construction of sidewalks on Appleton Road (STH 47).


In addition, future Town of Menasha road projects planned in the next five years will typically include underground storm sewer to afford space for a trail.


3.     Access Control


The Town of Menasha currently does not have a local access control ordinance of its own, relying instead on a combination of the Town’s Site Plan Review process and the Winnebago County Access Control Ordinance that was adopted in August 2000 by the Winnebago County Board. The County’s Access Control Ordinance has a spacing requirement of 600 feet, with a limit of eight access points per mile per side, except for County Road CB, where the minimum spacing requirement is 1,000 feet. This applies to parcels subdivided after the adoption of the ordinance.


An access control ordinance can be an effective land use control measure in that it sets forth standards for access to a wide range of potential uses. This tool should be used in the future in combination with zoning and subdivision ordinances to implement the Land Use Element of the Town’s Comprehensive Plan. The Town should work with Winnebago County to protect the major traffic carriers from being inundated with frequent access points so that traffic can flow freely without interruption.


3.  Official Mapping


Towns like Menasha that have adopted Village powers have the right to Official Map future roadways. The concept of Official Mapping is to promote the planning and preservation of future arterials and collector roadway corridors. A map showing future streets can be extremely helpful to the long range planning of a town and can alert property owners and developers to the intended route of major streets.


Map 7 shows the location of future streets that have been Officially Mapped by the Town of Menasha. In addition to the future streets, there are several streets for which it is recommended that a wider right of way be officially mapped including Clayton Road, Cold Spring Road, Irish Road, Jacobsen Road and Shady Lane.