Name/Title
This is Waupun, A community surveyScope and Content
"This is Waupun" is a 26 page typed document with gold colored card stock quality front and back covers, stapled together in book form. With black print, the front cover describes the document as "A community survey made by the League of Women Voters of Waupun, Wisconsin" 1950. The name Edith Scott is written on the front cover, (lower right corner) in pencil.
THIS IS WAUPUN
A community survey made by the
League of Women Voters
of Waupun, Wisconsin
1950
Part I
HISTORY AND CHARACTERISTICS
River Furnished Power
In 1839, the first log house was built on the bank of the Rock river near the spot where it was crossed by the military road from Green Bay to Madison. This was the nucleus that grew into the city of Waupun. The river at that time was wide and swift, supplying power for a number of feed and saw mills, and a means of floating logs to markets. With the felling of the forests, the lower water tables were depleted, and now the river is an insignificant item of the local landscape.
The "westward expansion", before the Civil War, brought New Englanders to this vicinity seeking new homes and cheap land. They gave the character of their culture to the entire area, with churches and schools springing up as soon as homes were established.
Wheat Was King
The early factories reflected the needs of this new population--fanning mills, plow factories, wagon factories, and furniture makers, all prospered. During the 50's and 60's, wheat was king. It was hauled over the early plank roads from points north to Watertown and Milwaukee.
Waupun, crossed by two main arteries of traffic, had many inns and hotels. This volume of freight was responsible for the railroad, then the Milwaukee and Horicon, now the C. M. St. P. & P., being built in 1856 to Waupun. Previous to that it was not unusual to see more than 20 stages leave the local stage depot daily, and often 100 stage horses occupied the depot barn.
Dutch Influence
With the New England settlers came a good number of home seekers from The Netherlands, Germany, England, Scotland, Ireland, and Norway.
The Dutch people who settled here were Calvinistic, and the city and several rural communities are richly flavored with the culture of these thrifty, industrious, religious people. When the wheat rust disease cropped out, after the Civil War, wheat ceased to be a factor in the local economy. But immigrants who had practiced dairying in their homelands were quick to see the possibilities here and to develop herds and cheese factories. That has since been the character of the rural neighborhoods.
State Employees
The location of the state prison here in 1851 is another historical factor that contributed to the pattern of the town's growth. As the prison grew, more and more help was employed, paid by the state, not munificently but steadily. In 1909, the Central State Hospital for the insane was located here, bringing another large group of state employees to Waupun. The steady employment of these people, through good and bad times, makes for a more stable economy than some neighboring towns experienced in times of depression. The new workers that have come to Waupun in the last 20 years, and workers who came with the shoe factory established in the early 30's, brought a large group with Polish ancestorage. This has swelled the Catholic population, making that church a large factor in the community. For example, a Catholic parochial school is planned for the near future. Waupun received its charter as a city in 1878, with land from both Dodge and Fond du Lac counties.
Main Street on County Line
The county line is also Waupun's Main Street. In the early years, settlements grew up at two separate points along the river, called Upper Town and Lower Town. Rivalry was strong. Locating the prison and the railroad depot in Lower Town made that the main business section. Now, with the growth of the city rather limited to the west for geographic reasons (the old Upper Town), it seems that the old rivalry may vanish.
City Pushing Westward
The physical growth of the city is limited at the east and south by state-owned land and by the Carnation Company. The river at the north has been regarded as a boundary, but home building has begun to a limited extent north of the river. The greatest expansion of both residential and business seems to be westward. The city recently annexed more land in that area. The prison, in the heart of the city, occupies land that would have been residential. The six wards no longer give voters equal representation on the city council, and the wards may be redistricted in the next few years. The city has a zoning ordinance, limiting areas for residential, commercial and light manufacturing, heavy industry, and local business purposes.
Federal Census Figures for Waupun
1950
1940 6,798
1930 5,768
1920 4,440
1910 3,362
These figures include the inmates of the two state institutions. The 1940 figure, exclusive of inmates, was 4,827, and for practical purposes, is the figure to use. The growth of the town has been slow and steady, resulting for both industrial development and increases in state personnel.
Varied Industries
Many of Waupun's industrial products go to distant parts of the world, those from the Shaler Company, National Rivet Company, Handcrafters, the canning companies, Carnation Company, and Breyer Brothers, Whiting & Company. The list of industries also includes one foundry, two shoe factories, and several small plants. A large part of the industrial labor is unionized, either in the A. F. of L., or a company union. There has been no noticeable union activity in local government affairs. A business directory would list 10 industries, 10 dealers in agricultural supplies, 4 coal dealers, 2 lumber companies, 48 retail stores, 15 restaurants or lunch rooms, 8 electric shops, 4 beauty shops, 6 barber shops, 11 various Waupun is repair shops, 13 taverns, 12 garages, 15 service stations and from 60 to 70 other miscellaneous businesses. About 50% of the retail business is estimated to come from the rural area.
Waupun's Economic Life
In the Waupun trading area, the main source of income is the dairy cow. Income from hogs, chickens, and cash crops come second in importance. Cash crops include hemp, peas, sweet corn, sugar beets, grains, some cabbage, potatoes, and vegetables. County agents report there is no impoverished soil in the vicinity and that only 5% of the land is not being used to the best advantage.
Migrant Workers
The crops grown for the canning and produce companies and sugar refineries require a good amount of seasonal labor. Texans, Jamaicans - and, during the war, some Mexican nationals - were hired to work in the fields. Since the war, fewer migrants have been employed, but authorities generally agree there will be a continuing need for some labor of this type. These people are the one distinctly underprivileged social group in this area; and this problem is, of course, broader than the local community.
The Texans who are citizens and, unlike the Jamaicans, migrate in family groups, speak Spanish which handicaps them economically and socially in an English speaking community. Arriving in April or May and staying until August, September, and even October, their children do not fit into the existing school system. Protective legislation which safeguards other children and workers is not applicable to these agricultural workers.
Housing Bad
While housing is a problem here as everywhere, these migrants are deplorably housed; by our standards, with, in one case, 67 people occupying a large old rural house. The league's committee that studied the social conditions of this community made friendly contacts with several large groups of the Texas migrants and found that they do not mind their living conditions so much as they do the fact that their children have so little schooling. And they consider their trips to and from Texas by truck (with 30 or more riding non-stop in one truck) their greatest physical hardship.
Recreation Made Available
When the league's study brought more attention to the condition of this group of people, groups of church women cooperated to bring the younger children in to take part in the recreation program in the city's parks. The children were well received. The children's librarian also held story hours for these groups. The facilities of the nearby Fond du Lac county park became available to them as a recreation spot after the League of Women Voters disclosed the policy of discrimination that had been followed by the park superintendent.
Committee on Human Relations
Perhaps an outgrowth of this study of social conditions has been the mayor's appointment of a Committee on Human Relations (not a statutory group), that will appraise the problems of the migrant United States citizens and look for possible solutions. The committee's field is broader than that, however, and takes in the whole area of human relations in the community.
Generally speaking, the community has a quite homogeneous population. Its weekly newspaper covers public affairs in the news columns, usually having a reporter present at meetings of the city council and school board. Rotary and Kiwanis clubs, from time to time, take up a project for community betterment.
Waupun's Community Life
A Chamber of Commerce, with 210 members, concerns itself with business development. Cultural, patriotic, and fraternal organizations are many and overlapping in their memberships. There are one Catholic and eight protestant churches, with the Dutch Reformed dominant among the protestant group. Each congregation has a number of special organizations devoted to the social, charitable, and devotional needs of the people. It is a truly over-organized community. Yet, when a community-wide need appears, such as the new hospital now being built, the usual procedure is to set up a representative voluntary committee to do the work, rather than to work through existing organizations.
New Trends
Two post-war developments in Waupun that are uncommon in cities of this size in Wisconsin are the school of vocational and adult education and the municipal recreation program. About 200 adults enrolled in each of the two 10-week vocational school sessions the past winter in shop, business, cultural, homemaking, and craft courses. The recreation program may be described as still "finding its way". The present emphasis is on an athletic program for older boys and men.
Social Agencies
The usual national health and welfare agencies have chapters or committees in Waupun. Other than those, there are no purely local agencies. Welfare problems are chiefly the responsibility of the county government, although the city employs a full-time public health nurse and Provides for indigent residents. Waupun does not have a Community Chest. People are generous givers, however. Each of the one or two drives for funds that come almost every month reaches its quota. Large single contributions are unusual.
Part II
WAUPUN'S GOVERNMENT
Mayor-Council Government
Waupun's charter provides for an elected mayor-council form of government. Waupun is a city of the 4th class, determined by state law on the basis of population--less than 10,000. The fol-
lowing chart shows the relationship of the voters to the local government officials and boards.
The Voters
elect these officials for 2-year terms:
6 councilmen (1-each ward)
$300 a yr.
Mayor
$700 a yr.
Assessor
$600 a yr.
Treasurer
$2700 a yr.
Commissioner Public Works
$3000 a yr.
Clerk
$3000 a yr.
Justice of Peace (2)
Officials and boards appointed by the Mayor and confirmed by the Council
City Attorney
$600 a yr. $25 for days out of city
Public Health Officer &Board of Health $400 a yr.
Library Bd. (5) No Pay
Board of Public Works
Planning Bd, (5) No Pay
Public Utility Commission (3) $200 a year
(Com. Pres.--$250)
Fire & Police Commission (5) No Pay
Recreation Board (5) No Pay
No local ordinance can violate the state constitution or a law passed by the legislature within the framework of that constitution. The council's authority is limited to the area within the city boundaries. Local government authority is strongly centralized in the council, with boards usually having only advisory powers. The school district is a separate government unit, self-governing within the framework of the state laws, and it levies its own tax.
Vocational School Board
Wisconsin law provides that a board of vocational and adult education shall be appointed by the local school board in cities of 5000 or over if there is a demand for it. But their budget is presented to the city council, which has no alternative under the law but to include the amount in its own budget and levy the tax, not to exceed two mills. The authority that creates the board has no authority over its budget; and the council, which levies the tax, has no authority over the personnel of the board. While the principle seems questionable, it has been effective in allowing such schools to be established in cities that would not otherwise have them. Some state and federal aids are maid back to the city, depending upon the courses taught each year.
Elections
City officials are elected every other year, at the spring election, the first Tuesday in April.
Qualifications are few: a candidate must be a citizen over 21 and a qualified voter in the ward in which he seeks election. Thirty days residence in the ward (and one year in the state) is a qualification for voters.
Powers and Duties of the City Government
Mayor
To see that state and city laws are enforced
To see that officials and employees do their duties
To recommend to the council any measures he deems wise
To preside over council meetings
He may veto ordinances. A 3/4 majority can override
To appoint officials and boards, with council approval
Council
To pass ordinances necessary for local government
To prepare an annual budget
To levy and collect taxes
To appropriate and expend funds raised
To buy or sell property as necessary for city needs
To approve appointments of officials and boards
Open Meetings
Council meetings are held the first Tuesday night of each month, in the city hall, and are open to the public. Special meetings are held at times set by the mayor and council. Boards hold regular monthly meetings. They run their special departments and recommend employment of necessary personnel and salaries. They also make an annual budget for their department. The council sets salaries of all city employees by ordinance. All non-elective employees receive a cost of living bonus. In 1949 it was $30 a month.This ordinance is published in the newspaper, as are all official proceedings of the council.
Budget
The yearly budget is published before the public meeting held each November (as provided by state law). The budget is adopted by the council after this meeting at which any citizen may protest or suggest. Few do.
The total of the city's budget for 1950 was $139,600. This is about $28 per person, if you accept 5000 as the population.
Sources of City Income
Local property tax 34,000 (24%)
State income tax 50,000 (35%)
(50% of the amount collected is returned to the community)
Other taxes collected by the state and shared. $38,150 (27%)
(Example: special sales tax on liquor)
Other local sources 17,000 (14%)
(License fees, rents, interest, earnings of departments, special assessments, etc.)
The tax rate in both counties, in the limits of Waupun, was about 3 mills higher this year because the cost of running the city was higher and its income from the shared income tax was less than previous years. (Also, the school district increased its levy by 1 mill.) The following table shows the amount of tax paid by Waupun residents upon each $1,000 of assessed valuation of their property--depending upon which side of Main street their property is.
Dodge County side Fond du Lac County side
1948 1949 1948 1949
State .37 .40 .36 .36
County 16.89 16.01 10.64 10.62
City 1.55 4.68 2.93 5.26
School District
22.25 23.17 22.25 23.17
Total 41.06 44.25 36.18 39.41
How the city budgets its spending (for 1950)
General Government $18,600
Protection of person and property 32,500
Health and Sanitation 6,200
Charity 2,700
Highways, streets 47,400
Libraries 8,500
Recreation, parks 9,000
Retirement (city employees) 5,500
Vocational School 5,200
Unclassified 4,000
City Finances
The city is free from debt at present. But the council expects to issue bonds soon, probably for $300,000, for building a new sewage treatment plant. Some of this debt will be retired by a special sewage tax now charged water users on the basis of the amount of water they use. The city owns its water and light utility, buying the current for distribution. Local rates for these services are subject to the approval of the Wisconsin Public Service commission. All city accounts and accounts of the public unity are audited annually by a certified public accountant.
Property Assessments
The city assessor is required to have no special qualifications for his job which is elective. Property is now assessed at about 48% of its true value. The legal limit of the city's indebtedness is 5% of the assessed value of the property on the tax roll. Were property assessed at its full value, it would be possible for the city to incur a debt twice as large as the present legal limit--if it were necessary. Since not all cities assess on the same percent of the true value of property, it is difficult to compare tax rates with those of other cities as a means of evaluating the economy of a city government.
Fair Assessments ?
There is a question as to whether assessments would be more fair if a trained assessor were employed, rather than having it an elective job. Some believe, too, that where property is assessed at half of its value, the owners of low priced houses are likely to bear a heavier proportional share of the property tax. At an annual meeting in July of the board of review, any property owner may protest the amount of his assessment if he feels it is unfair. Members of this board are the county supervisors from each of the city wards.
Council Does Buying
The council serves as the purchasing agent for all major supplies and equipment. It seeks competitive bids on items that will cost $1,000 or more.
Part III
SERVICES YOUR TAXES BUY
Public Health
Preventive Program
The local board of health, the public health nurse, and the public health officer, all cooperate with the state board of health--they all work for the control and prevention of communicable disease. Classes to educate handlers of foods and beverages were held this year, with certificates given those who attended the course. Educational work in the field of milk sanitation is being carried on. Health authorities regard present milk inspection as inadequate. They believe the only way to insure safe, good tasting milk, is to have the local council adopt the United States Government Grade "A" milk ordinance which controls conditions under which milk is produced, pasteurized and delivered. They say pasteurization is not a "cure-all".
Fluorine Coming
Upon recommendation of the local board of health, the council last year passed an ordinance to add fluorine to the city water supply to retard tooth decay in children. The water plant is waiting for the necessary equipment. Waupun's water comes from deep wells and is treated by a softening process.
Work in Schools
The public health nurse gives part of her time to both the public and one parochial school, directing and helping carry on a program of health education there. Hearing, teeth, and vision are checked. Dentists give their services free for the dental inspection. Pre kindergarten children all had medical examinations before starting school last fall, although not all parents acted on the findings of these examinations. Health education literature is sent home with students from time to time, They are working for enforcement of vaccination of all children for diphtheria, whooping cough, small pox, and lock-jaw. T. B. tests are given periodically.
Public Welfare
Whose Job?
Most welfare work is the responsibility of the county. The county boards each have special committees whose responsibility it is to employ necessary personnel. The county receives state and federal aids for some of these services. A few costs are billed back to the place of residence--city or township. Each county supervisor is the "contact" man for the people of the ward or township he represents. The city budget provides for those costs that are charged back and for "poor" relief for local families. Except for the state and federal aids, welfare costs are borne by the property tax, main source of county revenue.
County Welfare Services
The health and welfare committee of both counties employs a public health nurse. Both counties have child guidance clinics with part-time services of a psychologist, a psychiatrist, and a full-time case worker. This is a relatively new welfare service. Children may be referred by teachers, doctors, parents, or the county judge. The purpose is to help children who have problems, before they become severe enough to get them into trouble with society. Both have county health officers. Each maintains a home for the indigent aged and chronic mental cases.
State Welfare Services
Children born with a physical or mental handicap or who develope them are, by law, wards of the state to the extent that the state assumes responsibility for as much education and medical care as they can profit from. Case Workers visit such children periodically. Seven schools for the physically handicapped are maintained through the state and expense of attending them is paid by the state for those who cannot pay for themselves. Waupun Children benefit from these services. Institutional care is provided for the deaf , dumb, and blind, and for mentally handicapped. And the state runs the correctional and custodial institutions.
Protection--Fire, Police, Jails
Fire Protection
Waupun has a fire station in the city hall with two city fire trucks and one rural truck owned by adjacent townships. The city trucks are new. A volunteer force of 22 men are paid $1.00 a call or $1.00 an hour. The fire chief is appointed by the mayor and is paid $250 a year. The fire and police commission hires replacements for the volunteer crew. Fire inspections are limited because the small pay the chief receives precludes his giving much time to this service.
Police Protection
Six men and the chief make up the police force. The chief is appointed by the fire and police commission; members of the force are appointed by the chief from a list approved by the commission. There is no local training program--new members learn from older members. When the FBI or the Police Chiefs Association holds a regional school, someone from the force usually attends. The chief is paid $210 a month, and the newest recruit, $170 per month, plus cost-of-living bonus. Men on the force participate in a retirement plan that is set up on a state-wide basis. The department has one car and a motorcycle.
Our Jail
The city jail is in the city hall, with cells for both men and women. It is clean and sanitary. Usually it houses only an over-night guest. Criminal offenders are held in the county jail, either at Juneau or Fond du Lac. Waupun has no court save the Justice Court, whose jurisdiction is limited to cases involving less than $200, and whose criminal jurisdiction covers only local ordinances plus the power to bind persons over to a higher court where the evidence indicates probable guilt.
Streets and Utilities
Who Is Responsible?
The street commissioner (commissioner of public works) is responsible for maintaining the streets, paving streets and laying curbs and gutters as ordered by the council. Street lighting is supervised by the council, the work being done by the water and light utility. Property owners are responsible for maintaining the sidewalks in front of their property. The council plans, builds and maintains the streets except the state and federal highways that go through town. State and federal funds share the cost of these. The council is responsible for street signs, but stop-and-go lights (we have none now) must be approved by the state highway commission if they are on a state or federal highway.
Traffic, Parking
Our traffic laws are well enforced. Through highways cross the heart of both business and residential districts. Parking in the business district is a problem to be solved. Parking is limited to two hours during business hours, and is free if one can find it.
Utilities
The water and light commission hires a superintendent to run the utility, at a salary not to
exceed $320 a month plus cost-of-living bonus. Rates have been low, compared with those in other towns of this size. An increase in the light rate was authorized this spring. Where the utility used to show a surplus which has, in times past, resulted in lowering rates, last year it showed a loss. The utility also manages the sewage treatment plant.
Housing
The council is responsible for a trailer housing project, obtained after the war from the
United States government, but since turned over to the city. This will be abolished by mid-summer. If state institution personnel gets a 40 instead of 48-hour week, 30 to 40 more housing units will be needed.
Recreation
Parks
The city owns three small parks developed for play areas, and has acquired land to develop a
fourth on the northwest side. They are fairly well scattered to serve the city. The Fond du Lac County park, 1 1/2 miles from town, has a pool, wooded area, and picnic and play areas which also serve the city. Water in the pool is tested for safety, but sediment and slime are not scrubbed out. Water does not circulate but is changed every 7 to 10 days. There are no showers in the bath house. The high school athletic field is lighted for night use and long-range plans call for fuller development of this area.
Program
In 1949 the city budgeted $5,000 for a year-round program under the guidance of a part time director. Last summer, play programs for children were carried on in three parks. A winter basketball program for adults and church teams was carried on in the high school gym. Young employed girls, and retired oldsters are two groups not provided for. The city program grew from a volunteer project financed by donations from the two service clubs and the College women's club. Youth is also served by Girl Scout, Boy Scout, Hi-Y, and Tri-Hi-Y organizations.
Library and Museum
The library board hires a trained librarian at $3,000 to run the library with a part-time assistant. The schools have their own libraries but there is a close cooperation between these two agencies, to avoid duplication of services. Present cost is about $1.50 per capita. The American Library Association believes $2.00 per capita is needed in small communities. A small museum occupies a basement room badly needed for library expansion. The building, physically attractive, is not functional by present standards, and is expensive to maintain.
Part IV
*Hand written note at the top of this page: "Many changes recently in schools, New arrangement, Enlarged district." *
THE SCHOOLS
District Plan
Waupun's two * correction indicated: 3 grade schools* grade schools and one junior-senior high school are operated under the district plan. The district's boundaries are not the same as those of the city, but include parts of the townships of Chester and Waupun. And, as does the municipality, the district includes parts of both counties. Voters living in the school district elect a board of five directors at the annual business meeting the second Monday in July. Directors are paid $75 a year, clerk and treasurer, $100 a year. At present, the board includes two women. Terms are for three years and no more than two terms expire at the same time. This plan of electing the board is sometimes criticized because often less than 1% of the electorate appears to vote at this July meeting. This small group also passes on the annual school budget which spends about 50% of the local property tax. Critics feel that if board members were elected at the regular spring election, more voters would have a voice in their selection.
Board Duties
The duties or the board are to formulate the policies for operating the schools, to hire administrators who will run the schools to meet the needs of the community. The superintendent, chief administrator, is appointed by the board and is given authority to carry out board policies and to hire necessary personnel. Many people believe a more competent man can be secured by appointment than would be the case if he were elected, as is the county superintendent of schools at present.
Salary Schedule
Largest item in the school budget is for instructional costs which includes salaries, books, other teaching supplies, etc,--about 59% of the total budget. Textbooks are furnished for pupils. The greatest factor in recent budget increases has been the raises in ... [truncated due to length]Acquisition
Accession
2016.0104Source or Donor
Waupun Historical SocietyAcquisition Method
Found in Collection
