Issuu

Table of Contents Table of Contents 01

Introduction

Pg. 4

County Profile

Pg. 7

Community Engagement

Pg. 26

Comprehensive Plan Elements

Pg. 30

Implementation

Pg. 54

Appendices

Pg. 60

Acknowledgements Steering Committee

Wapello County Staff

Miranda Bailey Bradley Skinner Rick Tebbs Gary Smith Travis Kaster Don Phillips Tim Richmond Lynelle Diers

Miranda Bailey, Planning & Zoning Administrator Bradley Skinner, PE & PLS, County Engineer Rick Tebbs, County Conservation Director Travis Kaster, County Assessor Don Phillips, County Sheriff Tim Richmond, County Emergency Management Director Lynelle Diers, County Public Health Clinical Director Russ Corder, County Geographic Information Systems (GIS) Coordinator

Willene White Connie Hammersley-Wilson Tom Lazio Darren Batterson Russ Corder

Wapello County Zoning Commission Kevin Holzhauser Anne Michele Brad Sylvester Willene White Terry Willhoit

Wapello County Board of Supervisors Darren Batterson, Chair Carrie Teninty, Vice Chair Bryan Ziegler, Supervisor

MSA Consultant Team Sarah Runkel, AICP Jenna Gilliam, AICP Chris Janson, AICP Emily Huston Calvin Wong

Introduction

Planning 101

Planning 101 Welcome to Wapello County’s Comprehensive Land Use Plan 2025 – 2045! This document serves as a guide for preservation, development, and growth patterns throughout the planning timeframe, and beyond.

About the Plan The Comprehensive Land Use Plan, also known as a general plan, master plan, or land use plan, is a document designed to guide the future actions of a city or county. It establishes a shared vision for a community, providing a framework to manage growth, development, public improvements, and overall changes over time. The Iowa Supreme Court has stated that the legal purpose of the Comprehensive Land Use Plan is to “direct use and development of property by dividing it into districts according to present and potential uses.” The Comprehensive Land Use Plan also presents a vision for the future with long-range goals and objectives for all activities that affect the local government. This includes guidance on how to make decisions on public and private land development proposals, the expenditure of public funds, and issues of pressing concern (such as farmland preservation for counties or the rehabilitation of older neighborhoods in cities). Most plans are written to provide direction for ten to twenty years after their adoption. Plans should receive a considered review and possible update every five years. Implementation of the Comprehensive Land Use Plan is dependent on elected officials, County staff, and the businesses and residents of the County. The official document that guides implementation is the Zoning Ordinance. The difference between this Comprehensive Land Use Plan and the Zoning Ordinance is that the former sets forth the objectives and goals of the community with respect to land use, while the latter is a regulatory device through which the plan’s goals and policies are carried out or achieved. Other ordinances, such as subdivision regulations, are also utilized to carry out the goals of a Comprehensive Land Use Plan. Together, the Comprehensive Land Use Plan and the Zoning Ordinance will help ensure Wapello County’s existing and future development aligns with its values and aspirations. They are an active part of the County’s efforts to attract people and businesses to visit the communities within Wapello.

Planning Introduction 101 “Comprehensive planning is an ordered process that determines community goals and aspirations in terms of community development. The end product is called a comprehensive plan, also known as a general plan, or master plan. This resulting document expresses and regulates public policies on transportation, utilities, land use, recreation, and housing. Comprehensive plans typically encompass large geographical areas, a broad range of topics, and cover a long-term time horizon. The term comprehensive plan is most often used by urban planners in the United States.” — Wikipedia

Iowa Smart Planning Principles The Iowa Code also calls upon municipalities to consider smart planning principles in the preparation of comprehensive plans. These principles include: Collaboration with other governmental, community, and individual stakeholders, during the planning process; • • • • • • • • •

Efficient, transparent, and consistent outcomes; Clean, renewable, and energy efficient solutions; Occupational diversity; Revitalization; Housing diversity; Community character; Protection of natural and agricultural resources; Sustainable design; and Transportation diversity

For additional information about Smart Planning Principles, please refer to Section 18.B.1 of the Iowa Code.

Introduction Plan Overview The organization of the plan is based on the planning process and is divided into 7 elements. This element examines the purpose of the plan, the regional context, and the comprehensive planning process.

Community Profile

This element details Wapello County’s history, existing conditions, and provides population projections.

Public Participation Overview

This element outlines the public participation process, including a description of public participation methods and a summary of feedback from the engagement activities.

Land Use & Growth

This element considers existing land use patterns and future land use growth and development.

Vision, Goals, & Strategies

This element presents a vision for the future and describes the goals and strategies to achieve that vision.

Implementation

This element outlines how the vision and goals of the plan are implemented in everyday decision and annual goal setting and budgeting, and how the plan should be amended when necessary.

Zoning Code Update

This element describes the new, ongoing Zoning Code Update, a key step in the implementation of the Comprehensive Plan, with an emphasis on public participation to shape land use regulations that reflect community growth and development goals.

County Profile County Profile The area now known as Wapello County, Iowa, was inhabited by Sac and Fox (Meskwaki) tribes until the signing of a treaty in 1842, which ended Indigenous rights to the land. Following the treaty, the tribes were forced to move westward, leaving the county open to white settlement. A rapid influx of settlers followed an Oklahoma-style land rush which stated at midnight on May 1, 1843.

History and Background Wapello County was formally organized the following year. Under the Organizing Act of February 13, 1844, county officials were elected, and the first meeting of the Wapello County Board of Supervisors took place on May 20, 1844, in Ottumwa.

By David Benbennick - The maps use data from nationalatlas.gov, specifically countyp020.tar.gz on the Raw Data Download page. The maps also use state outline data from statesp020.tar.gz. The Florida maps use hydrogm020.tar.gz to display Lake Okeechobee., Public Domain, https:// commons.wikimedia.org/w/index.php?curid=570770

The Appanoose Rapids Company, hoping to influence the Supervisors to designate Ottumwa as the county seat, dedicated every other lot in its plat of Ottumwa to the County to raise funds for the construction of a courthouse. Ottumwa was officially designated as the county seat, and its first courthouse was completed in 1846. For a brief time, Ottumwa was known as Louisville after the Kentucky city, but the community ultimately retained its Native American name— Ottumwa, meaning “swift water.”

Early commerce and settlement quickly expanded along the Des Moines River. J.P. Eddy, a well-known trader, established a trading post at the site of present-day Eddyville, which became an important outfitting station for westward-bound pioneers traveling by steamboat. The first settlement in the County, however, was the Indian Agency trading center, founded in 1838 by General Joseph M. Street. This settlement later became Agency City (now Agency), incorporated in 1844. Other towns followed in close succession: Kirkville (1848), Chillicothe (1849), Blakesburg (1852), and Eldon (1872). While Eldon developed around the expanding railroad, the others grew as agricultural, logging, and mining communities that served surrounding rural areas.

Existing Conditions Today, Wapello County reflects a balance of historic roots and modern progress. Covering approximately 432 square miles, the County is home to 35,265 residents, according to the 2023 American Community Survey (ACS). Of these, approximately 28,325 residents (80%) live within incorporated cities, while about 6,940 residents (20%) reside in the rural and unincorporated areas of the County. At the heart of the County, Ottumwa serves as the population and economic hub—its industrial, educational, and healthcare sectors anchoring the broader region. Surrounding communities such as Agency, Blakesburg, Chillicothe, Eddyville, Eldon, and Kirkville embody the County’s small-town character and agricultural heritage, offering close-knit communities and a strong rural quality of life. Together, these communities form a connected network that defines Wapello County’s identity: a place where historic river towns, working farms, and modern industries coexist within the rolling hills and open landscapes of southeastern Iowa.

Population and Demographics Wapello County’s existing conditions provide the foundation for its future growth and planning priorities. Understanding the County’s people, housing, economy, land, and infrastructure systems is essential to shaping policy decisions that balance community development, natural resource protection, and quality of life. The following overview summarizes key trends that define where the County has been, where it stands today, and where opportunities lie for the decades ahead.

Existing Conditions Wapello County’s population has remained relatively stable over the past several decades, reflecting both its strong community roots and the broader demographic shifts affecting many rural counties in Iowa. The 2024 American Community Survey (ACS) estimates the County’s population at 35,362 residents, with roughly 80% living within incorporated cities and 20% residing in the County’s rural and unincorporated areas. The median age of 39.2 years and a near even distribution across age groups indicate a balanced population structure with a growing share of older adults. This demographic composition suggests the need to plan for both aging-inplace opportunities and housing and services for younger households to sustain long-term stability.

Existing Conditions

Wapello County’s median age is 39.2 years, and the average household size is 2.46 people, according to the 2024 American Community Survey (ACS). These figures suggest a strong presence of middle-aged adults. The smaller household size may point to a greater number of single-person households, empty nesters, or couples without children—patterns often associated with established, stable populations. While these trends may suggest fewer younger families, they also highlight opportunities to support aging in place and attract new residents across all life stages. According to 2024 American Community Survey (ACS) data, Wapello County’s age profile shows a solid base of working-age residents (25-54) alongside a notable share of children under 15, indicating a mix of workforce households and families. Adults 65 and older make up a meaningful portion as well, reflecting continued aging trends, but the overall distribution remains fairly balanced across life stages.

Existing Conditions

While Wapello County remains predominantly White (79.1%), its racial diversity is modest but meaningful and has grown over time. The County’s population includes residents who identify as Black or African American (3.0%), Asian (1.8%), American Indian or Alaska Native (0.4%), Native Hawaiian or Other Pacific Islander (2.4%), or Two or More Races (9.0%). An additional 4.3% of residents identify as “Some Other Race,” a category that may include many residents who also identify as Hispanic or Latino. This diversity—particularly in and around Ottumwa— adds to the County’s cultural and economic strength and reinforces the need for equitable access to housing, jobs, education, and community services.

Existing Conditions Housing Conditions and Trends Housing in Wapello County reflects its long development history. More than 75% of the County’s homes were built before 1980, and only about 2% have been constructed since 2010. This older housing stock contributes to community character and affordability, but also presents challenges related to maintenance, modernization, and energy efficiency.

Housing Occupancy and Tenure

Housing occupancy and tenure provide a snapshot of Wapello County’s housing market and how residents access housing. Based on the 2024 ACS, the County has an estimated 15,730 housing units, with 13,997 units occupied (about 90%) and 1,733 units vacant (about 10%), suggesting some turnover and availability. In terms of tenure, 68% of occupied units are owner-occupied and 32% are renter-occupied, reflecting a stable homeownership base while maintaining a meaningful rental market that supports a range of household needs.

Age of Housing Stock

Wapello County’s housing stock reflects development patterns common across much of Iowa, with a majority of homes constructed prior to 1980. Unlike some faster-growing areas of the state, however, the County has experienced comparatively modest levels of new housing construction since the 1990s, consistent with its long-term pattern of gradual population decline since 1980. In recent years, residential construction has remained limited, even as interest in expanding local housing options has increased. The factors contributing to this demand—and its implications for future planning—are discussed in the sections below.

Existing Conditions Housing Type

The 2024 ACS estimates a total of 15,730 housing units in Wapello County. Single-family, detached homes make up the majority of the housing stock (77.3%), which is generally consistent with the State of Iowa and most Iowa counties. The next most common housing types are buildings with 20 or more units (5.2%), followed by mobile homes (4.2%), which is notable for a predominantly rural county, and likely reflects the influence of Ottumwa and other local concentrations of higher-density or more attainable housing options. In sum, the County’s housing stock remains largely low-density, though the smaller but meaningful presence of multifamily and manufactured housing points to opportunities to support greater housing-type diversity over time.

Existing Conditions Housing Conditions and Trends This section examines the relationship between household finances and housing costs in Wapello County. Using available ACS data, it summarizes key indicators—including household income, housing cost burden (the share of income spent on housing), and home values—to provide context on affordability and the ability of households to access and sustain stable housing. Together, these measures help identify where housing costs may be a constraint for residents and inform strategies to support a range of housing options over time.

Cost of Living and Housing Burden Household income levels drectly impact housing affordability and access. As shown in the above graphs, the majority of Wapello County’s housing units reported household incomes between $50,000 and $74,999 for 2024 (ACS). Furthermore, due in part to relatively low wages at the national level, many households in Wapello County spend a substantial portion of their income on housing.

As shown in the graph to the right, which reflects 2024 ACS data on monthly housing costs as a percentage of household income, a significant number of households spent $75,000 or more in 2024 for housing— amounting to approximately 65% of their total income. This highlights the financial strain housing costs can place on residents and reinforces the importance of addressing housing affordability in future planning efforts. 14

Existing Conditions Home Value

To build on the connection between household income and housing costs, examining home values provides additional context. According to 2024 ACS data— which documented 9,575 owner-occupied housing units— most owner-occupied units in Wapello County fall within the $50,000 to $99,999 range, with a median home value of $125,100. While these prices may seem relatively affordable on the surface, broader economic conditions—including limited wage growth and rising living costs— highlight a growing gap between what households earn and what they must spend to secure and maintain housing.

Existing Conditions Population and Housing Projections With both a current and historical snapshot of Wapello County’s demographics, population projections for the coming decades can now be explored. By reviewing past population change and broader demographic trends, the County can estimate how its population may shift in size and growth patterns over time. These projections are intended to help guide future planning and ensure the community is prepared to meet the needs of an evolving population. As with most community’s population projections, these estimates are based on available U.S. Census data. U.S. Census data provides a useful snapshot of current conditions and likely trends, but it is subject to sampling variability and may change as new information becomes available. Actual future conditions may also differ due to economic shifts, housing market dynamics, policy changes, or other unforeseen factors. Accordingly, these projections are intended to inform planning decisions and should be interpreted as guidance rather than precise forecasts. The graph on page 5 illustrates Wapello County’s population change from 1890 to 2020 using publicly available U.S. Census data. As shown, the County’s population has remained relatively stable over the long term, increasing by roughly 5,000 residents over the past 130 years. Building on these historical patterns, population projections for 2030, 2040, and 2050 were developed by applying a modest, steady growth assumption of +0.25% to the County’s 2020 Census population. Under this scenario, Wapello County is projected to reach approximately 36,330 residents in 2030, 37,246 residents in 2040, and 38,187 residents in 2050, reflecting gradual increases each decade since 2020.

Projected Housing Demand

Based on the modest population growth scenario outlined above (+0.25% annually), projected housing demand can also be estimated for the coming decades as follows in the graph on the left. By applying current occupancy and tenure patterns to these population projections, the County can better anticipate how many owner- and renter-occupied units may be needed to support future residents. The following section summarizes projected housing demand for 2030, 2040, and 2050 under this steady-growth assumption.

Existing Conditions Economic Development Conditions and Trends Wapello County’s economy has evolved from its historic agricultural and river trade roots into a diverse mix of manufacturing, healthcare, education, and logistics. The economic data presented below is derived from a combination of sources, including the 2025 Esri Business Analyst Report and the 2024 American Community Survey (ACS). Together, these sources offer a comprehensive snapshot of Wapello County’s current employment landscape, industry sectors, and workforce composition.

Workforce Overview According to the 2025 Esri Business Analyst report, Wapello County is home to an estimated 1,228 businesses employing 18,323 people in 2025. The majority of Wapello County’s workforce is engaged in white-collar occupations (45.3%), followed by blue-collar (38.4%) and service sector roles (16.3%).

Employment by Industry

The 2025 ACS highlights the County’s top five industries as Manufacturing, Educational Services, Retail Trade, Construction, and Transportation and Warehousing and Utilities, as also shown in the pie chart below. Reflecting this, Wapello County’s major employers are JBS USA, John Deere, Ottumwa Regional Health Center, Vaughn Motors, Indian Hills Community College, Mercy Ottumwa Medical Clinic, and Hy-Vee, according to the 2025 Esri Business Analyst report.

Existing Conditions Educational Attainment

Educational attainment is closely linked to Wapello County’s workforce, with a significant portion of residents aged 25 and older holding at least a high school diploma or its equivalent, as shown in the graph below based on 2024 ACS data. This indicates that while the area has a well-educated base, there may be opportunities to expand higher education and advanced degree attainment to further support workforce development and local economic growth.

Existing Conditions County Facilities and Infrastructure Wapello County’s network of facilities and infrastructure supports a dispersed rural population while serving regional needs through Ottumwa’s institutions. The County maintains key government, emergency services, and public safety facilities, and collaborates closely with regional agencies on transportation and health services. The transportation network—including major highways, county roads, and the Ottumwa Regional Airport—provides reliable mobility for residents, businesses, and freight. The County’s primary corridors, U.S. Highway 34 and U.S. Highway 63, carry the highest average daily traffic volumes, with 2022 Iowa DOT data showing between 6,000 and 10,000 vehicles per day near Ottumwa and along the approaches to Agency, Blakesburg, and Eddyville. These highways serve as vital commuter and freight routes, linking Ottumwa’s industrial areas and airport with regional markets. By contrast, most county secondary roads carry fewer than 1,000 vehicles per day, underscoring their role in supporting rural access, agricultural operations, and local travel rather than regional through-traffic. Facility planning in the coming years will need to focus on modernization, accessibility, and energy efficiency. Continued investment in roads, bridges, and emergency management infrastructure will help maintain connectivity and safety across the County.

Average Annual Daily Traffic (AADT) (2022) 9

4520

Larchwood

4840

3870

Rock Rapids

3180

2470

1740

4400 2500

Boyden 5200

Hull

4300 18

3530

Sanborn

1900

Maurice 4270

Alton

1980 1930 Granville

6430

1500

Remsen

2140

Le Mars

1460

140

Cherokee

CHEROKEE

Lawton

9200

WOODBURY

Hornick 141

Battle Creek

2120

1270

15360

1200

2120 Turin

2760

141

Castana

5400

3180

1350

Pisgah

HARRISON

Logan

Panama

6910

19970

20320

l 680

25700

23800

Avoca 2680

820

Walnut 23510 83

4510

3230

2720

Treynor

5700

Oakland

23100

Griswold 1060

1180

1240

2320

Waukee

Stuart

l 80

29450

38880

De Soto 44610

25750

Norwalk

Anita 2080 148

169

ADAIR

24320

Greenfield Fontanelle

1160

2800

1420

Hartford

316

8600

5400

Winterset

11030

1680

WARREN

1610

2470

Oskaloosa

Beacon

11750

1300

19610 34

Glenwood

MILLS

6230

Pacific 7360 Jct

2080

4260

4350

Hastings

Emerson

1790

l 29

Red Oak

1700

Osceola 3450

Afton

1780 2390

1360 FREMONT 2050

2090

1840 Essex

Shenandoah

1800

1250

2160 2680

1610

3150 1260

1530

Hamburg 1160

New Market 2

1370

2260

16290

870 1290

800

1560

1160

Redding

510

1680 Mount Ayr 2470

960

Lamoni

169

Corydon

Leon

1130

l 35

1300

820

2340

Plano

2610

2300

WAYNE

3760

1770 1830

5400

1240

2600

1400 Lineville 65

Bloomfield

1450

Milton

8000

1300

1400

6420

Fort Madison

7690

Prepared by the Systems Planning Bureau Phone 515-239-1664

6750

8470 27

State Highways

4770

3120

2750 6960

US Highways

7640

Donnellson

Farmington 650

LEE

1330

Burlington 10100

8610 1520

1130 Cantril

Middletown 16

1490

1330

l 74

l 80 Interstates

6320

West Burlington

Houghton

75300

Mediapolis

DES MOINES

218

880

26500

4410

9490

81 202

2030

New London

8720

Keosauqua

2180 Pulaski

1990

Cincinnati

Morning Sun

7460

1070 16

3330

Riverdale

10 - 999 Vehicles 1000 - 1999 2000 - 4999 5000 and over

Grandview

163

2790

Davenport

Le Claire 37100 8400 80

l 280

Wapello

6300

2050

VAN BUREN

1510

Moulton 1020

Davis City

14160

940

33700

24200

4420

HENRY

Birmingham

4320

Princeton

Bettendorf

16020

4950

163

Mount Pleasant

22100 Eldridge

2140

Buffalo

LOUISA Winfield

Eldon 1180

Columbus Junction

Olds 1110

136

11100

Camanche 67

Average Annual Daily Traffic 61

12920 Lockridge

2800

DAVIS

Centerville

2 1790

6420

5200

5700

APPANOOSE Promise City

4900

2320

3660

870

Batavia

2440

2110

1080

9300

2710

720

5370

10510

1640 22

3640

78 740

Fairfield

7820

11000 Clinton

6580

13040

JEFFERSON 8350

4590

Moravia

4210

11630

2470

2600 1420

1960 14980

Kellerton

600 148

DECATUR

Decatur City 1350

4430

1510

2170

2520 Benton

Ottumwa

2270

2420

163 9600

l 280

Muscatine

1170 1430 Wayland 510

2630

Long Grove

SCOTT 1300 Maysville 1410

3050

Fredonia 92 3350

Crawfordsville Coppock 1050

1230

6160

6770

830

1480

9710

23130 Blue Grass

5230

1650

5800 Ainsworth

Brighton 1520

1370

Walcott

MUSCATINE 22

2830

2170

136

De Witt

38300

Wilton 5100

Atalissa 1740

1560 Conesville

3630

2370

2010 Richland 78

New Liberty

35950

2590

Lone Tree 218

3570

890

Bennett

840 130

2470

Riverside 4240

13930

4640

1740

West Liberty

6200

4130

2380

Washington

149

8740

WAPELLO 4110

1330

RINGGOLD

4480 5800

Albia

2460

Humeston

660

1170

1400

Braddyville 59

169

Clearfield

TAYLOR

Gravity

Bedford

Shambaugh

275

l 29 275 350

890

Clarinda

137

MONROE

Chariton

Wellman

West Chester

149

2040 Hedrick

Kalona

WASHINGTON

1290 Martinsburg

1980 1450

3780

2840

1410

1080

1990

PAGE 2970

1140

2070

3560

l 35

1200

LUCAS

Lucas 3050

3270

1290

2580

Villisca

Sidney

15390

CLARKE

1130

UNION

4890

2580

880

14490

2340

3600 Lovilia

1940

2900 Creston

3730

Arispe 1740

8150

2740

Lorimor

ADAMS 1270 Corning

Stanton

1410

1650

148

1390

3910

2090

Tabor

12790

MONTGOMERY

4010

1490

275

770

Grant 71

940

11710 7100

Webster

1270

Fremont

2240

Eddyville

1100 South English

1510

660

690

7570 3540

19410 3090

3330

790

Rose Hill 3330 University Park

3290

3070

2630

20090

Orient

5790

North English

4350

Hills

1070

CLINTON

17480

Goose Lake

Charlotte

Lost Nation

1430 130

2040

l 36950 80

37450

19460

1150

Sabula

Miles 1480

580

Grand Wheatland Mound 3500 4810 3140 30 Calamus

3450

5300

Parnell

970

Lowden 2530

3290 West Branch 42410

Iowa City

6460

2670

Keswick

2790

9370

32400

1050

2150

930 1890

Clarence

CEDAR

59990

Tiffin Coralville

750

Preston

Delmar

9490 1130

9870 3540

Tipton

53300 5200

32740

4890 1320

Oxford Junction

4410

Solon

JOHNSON

1880 3050 KEOKUK 2110 1780 1810 Sigourney 3340 Delta 2540

MAHASKA 163

3630

32590

670

1220

2150 2290

Maquoketa 1740

2440 64 Baldwin

Mechanicsville

5500

5360

l 380 North Liberty

1910

What Cheer

3770 11360

Knoxville

7900

169

1470

Massena

1450

Pella

MARION

7850

3510 1510

l 80

218 27

Williamsburg

1710

2600

54400

2560

IOWA

29260

Thornburg 790 790 1950

3480 Pleasantville 6910

Sandyville 2380 2130

Ackworth

Indianola

1750

Ladora 6 1460 980

52450

1190

136

6610

5500

930 2020 Monmouth

930 1720 Wyoming

Olin

Shueyville

2280

3010

Martelle

Lisbon

11410

Andrew

Onslow

650 1860

1420

4360

Mount Vernon 22390

5300 151

1050

212

1830

New Sharon

8800

5800

Martensdale 3600

4380

Marengo

1180

1230

2960

224

890

18860

3040

Bevington 2870 3000 Patterson

2180

1090

910

l 35

MADISON

5900

850

1820

146

10900

5900

4300

2120

Wiota

CASS

2100

1190

24630

2270

770

4530

2660

860

Adair 6

1270

1990 Carson 92

1890

Adel

6000

22980 2230

2960 Atlantic

18760 6400

POLK

750

Cedar Rapids

136

4200 1

1430

1120

2760

13900

12920

14000

20850

1560 1580

Walford 6530

Bellevue

JACKSON

800

1390

JONES

Anamosa

7380

2560

1890

7200

Marion

Fairfax Belle Plaine

2470 1740

730 9860 Mingo 10100 1620 1350 2070 3080 800 Bondurant 65 2600 2100 1580 1840 Ankeny Kellogg Lambs Grove Grinnell 6 Brooklyn 1300 9670 2140 2660 28050 27880 21 29260 80 1490 38700 Newton 89000 33520 30000 36100 29350 Grimes 2270 POWESHIEK Johnston 12130 Colfax Altoona Guernsey 2800 92230 JASPER 1730 Mitchellville 1660 Urbandale 1920 28600 19400 16300 3620 Clive 2210 163 12900 Windsor 670 800 1350 Heights Prairie City Montezuma Deep River Pleasant Hill 10640 West Des Searsboro Des Moines 63 Moines 24900 Monroe 1280 1490 1500 Carlisle Runnells

Granger

2920 Dallas Center

1550

1060

1100

169

DALLAS 3410

Panora

Gilman

3100

Cascade 8460

151

Springville

11920 218

7130

6500

Tama 146

Laurel 2200

8670

11500

2160

3470

Collins

1870

5400

4380

9430

218

Saint Donatus 52

6990 61

8500

Hiawatha

Toledo

11010

Melbourne 330

50910 Alleman 35 Polk City 5200

5730

141

2530

4760

2380

23280

800

1570 Hancock

4820

9650

4090 3200

1100

8680

Perry

1400 Guthrie Center

2380

l 80

3030

14310

10820

9000 2040

760

Le Grand

7430

6780

Marshalltown

State Center

9360

43270 6880 Huxley Maxwell 2730 7700 3390 1920

Slater 2230

2040

141

GUTHRIE

Exira

Brayton

Marne 1460

POTTAWATTAMIE 1780

l 80

Council Bluffs

l 80

173

2710

16310

16050

5400 Madrid

Colo

LINN Robins

2850

2140

12410 24950

1470

151

136

9060

Monticello

Central City

Vinton

BENTON

TAMA

3640

Hopkinton

2500

Center Point

2000

3030 5900

3090

2110

Nevada Ames

Luther

1270

1550

830

5600 14900

Woodward

2240

2470

Kimballton 1860

Elk Horn

25800

16260 Carter Lake

34300

880

1540

11180 5200

3510 1680 144

2060 Bagley

Bayard

Audubon 3700

2690

1500

23480 Underwood

17200

1910

1640

8170

BOONE

Rippey

2120

810

SHELBY

Shelby

22600

Coon Rapids

Harlan

Neola

2040

5830

Grand Junction 1160

Jefferson 2210

1730

1480

2360

3510

4330

970 Dedham

141

2810 1960

5530 26050

l 880

6190

l 29

30 4230

Scranton 25

4840

1650

3550

1280

AUDUBON

2090

Persia Missouri Valley

Ralston

4500

MARSHALL

STORY

Dysart

5790

13700

Worthington

151

6260 19610

16000

1530

1490

Albion

30350 7340

Boone Ogden

8 1640

1040

1560

4220

Traer 2570

1320

Farley

5230

Urbana 21150

17600

Peosta

Epworth

11990

4970

5600

1230 3350

Dubuque

DUBUQUE

Dyersville 2490

Ryan

l 380

2640

22900

5100

4530

4840

4490

New Vienna

2360 Delhi

Coggon

Gladbrook 1370

2860

Delaware 9350

8270

6480

6850

Luxemburg Holy Cross Rickardsville 1720 1720 1680

550

1280

Winthrop 20

1100

DELAWARE 1030

1320

Colesburg

Greeley 38

Manchester 5900

BUCHANAN

La Porte City

Miles

760

510

1960

7970

17350

2600

2200 Edgewood

2660

187

3960

3560

1710

2320

1890

144

1370 Reinbeck

1810

2770

1550 Lamont

Independence

3020

2160

1400

2860

218

175

0 2690

Strawberry Point

5100

3650

2080

1330

Grundy Center

Garnavillo

4900

CLAYTON

Story City

860

2710

187

Hazleton

10440

3390

Guttenberg

2640

1050

2770

1540

2580

28110

27100

169 4

GREENE

3280

1550 2190 Manning

2340

Manilla

3020

1110 Portsmouth

1320

CARROLL

3020

Aspinwall 1920

1540

1300 Earling

790

800 44

4440

Glidden 71

Denison

790

4790

7570

6000

Eldora

Hubbard

3480

Boxholm

530

2820

1520

HARDIN

1300

3150

2800

1710

1950 Carroll

4940

3670

Defiance

1180 Woodbine 790 Mondamin 600 4490 127 Magnolia 1230

720 175

Harcourt

1570

GRUNDY

2210 1740

1690

Radcliffe 2030

Ellsworth

590

790 Stratford

1740

1420

1590

Elkader

150

Dunkerton

Evansdale

Hudson

680

Arlington

Oelwein 2330

1180 Fairbank

281

Waterloo

14420

4320

1850

24840

1790

Jewell Stanhope

Dayton

650

4000

141

630

1300

2630

1280

2210 1450

Dike 13100

2510

HAMILTON

Cedar Falls

1830

1360

BLACK HAWK

2420

Fayette

2460 830

1500

Mcgregor 1580

2670 1300

150

8390

2530

2920

9660

9650 Owasa

9110

150

Maynard

4160 7900 9600 20500 Denver Janesville

New Hartford

2270

Ackley

5210 9510

5300

Arcadia 3270

Vail

2790

1050

10910

1560

1840

Iowa Falls

1060

169

950

Churdan

Westside

Blairsburg 10130

3300

Gowrie

Lohrville 1410 1040

3090

4410

WEBSTER

CALHOUN

2110

3890

Arion

Dow City

Dunlap

183

Moorland

2430

4600

Marquette 4140

4060 3620 1800

3030

790

1600

19790 Parkersburg

Aplington

Sumner

Tripoli

BREMER 2780

Shell Rock

1000 990

3550

West Union

FAYETTE

7210

Waverly

3540 6050

1210

l 35

1580

Webster City

1920

9230

2400

BUTLER

Coulter

FRANKLIN 2670 16470

2580

3640

6700

1080

1510

1830

1890

6540

Rockwell City

Lake City 1720

2910

1200

5800 1430

218

8440

1780

Monona

2370

790

Plainfield

1020 Clarksville

Allison

Dumont

Hampton

Fort Dodge

8800 7440

1120

1540

3640 3020 700

580

15370

1680 2590

2060

2520 Auburn

Deloit

CRAWFORD

400

Moorhead

870

1230

1860

580

820 Soldier

l 29 14550

1190

1930 Lake View

1800

2020

3180

Knierim 6920

3920

2780

141

Ute

1250

3290

2520

3060

Charter Oak 1470

1140

1840

850 1970

SAC

5440

780

175

MONONA Onawa 175

1620 Rowan 3430

2320

Mapleton Schleswig

2260 Eagle Grove

370

Kiron

2830

Latimer

2850

1550

1350

1840

2670

Clarion

Goldfield 2930 3

2670

Dakota City

4680 Manson

5910

2152 Odebolt Arthur 1810 1950

Ida Grove

Gilmore City

2310

2340

6400

1130

2740

2130

175

Danbury

Smithland

471

940

850 1490

700

Pomeroy

4850 Early

4200

IDA

1030

Oto

2130

1380

2040

2640

1990

Fonda

2480

1830

Salix

Sloan

5110

Humboldt 2240

1830

POCAHONTAS

1230 3560

6600

Anthon

17900

Schaller

5320

2390

5630

110

Holstein 4940

2100

188

490 1730

2980

WRIGHT

3050

1880

9470

Greene

Sheffield Belmond

1360 2800

1880

Newell 2050

2870 1540

1070

Sergeant Bluff

3320

5700

Correctionville

6510

20600

Alta

2250

1600 Moville

1470

HUMBOLDT

750

Pocahontas

3430 18

Clermont

18 2480 Fredericksburg

2680

4550

1230 Renwick

Rolfe

3150

2360

Postville

2630

5630

2170

169

540

2050 1200 930 Havelock

Nashua

2180

17180

2690

1480

2160

346 1470

2190

1490

Ossian

5800

1950

2310

Lawler

New Hampton

218

10230

3540

4860

150

Jackson Junction

1940

Bassett

1460

Rockwell

2590

2240 8320

2610 1440

1030 Castalia

2290

CHICKASAW

Charles City

9750

2470

CERRO GORDO

870

Laurens

1250

4580 Storm Lake

1180

18460 11900

1030

BUENA VISTA

1350 Washta

Kingsley 1880

37800

1740

2610

2330 Quimby 1390

l 29

Aurelia

14000

10620

FLOYD

2022

ALLAMAKEE

Waukon 4790

3720

2320

4710

2970

Fort Atkinson

Floyd

27 11100

2780

1650 3110

Marathon

3950

3830 3280 2020

l 35

Corwith

1830

Sioux Rapids

Larrabee

970

15460

1600

5300 52

Calmar 63

Rudd 10700

8380

17510

2130 2450

5400

Lansing

1270 Decorah

3310 3340

3980

218

IOWA

1680

WINNESHIEK

2030

Mason City

Ventura

Garner

2450

2910

Ridgeway

13600

8500 6000

HANCOCK

4200

HOWARD

Osage

6130

6500

Britt 1090

3350

1600

1560

2460

4490

20640

5200

2980

2770 Algona

Mallard

4590

Hinton

Sioux City

720

2000 2330 3850 Meriden

35300

640

PLYMOUTH

2770 18

West Bend

Cleghorn

3410

2540

Riceville

2170

2140

Clear Lake Wesley 2410

2200

Saint Ansgar

2380

1570

870

2950

Cresco

Manly

1470

Fertile

2560

3280 Cylinder

PALO ALTO

3860

VEHICULAR TRAFFIC

New Albin

1560

MITCHELL

Kensett

2160 Hanlontown

Peterson

1130

Leland

2590

2530

1980

WORTH

2660

KOSSUTH

770

Emmetsburg 4890

Calumet 1450

19570

2620

830

3290 Lime Springs

Northwood

3520

2480

Chester

218

2130

Forest City

Sutherland

1390

2320

Thompson

Fenton 15

Ruthven 4040

4250

CLAY

1810

4080

1610

Marcus

3820

2160 7900

Merrill 10400

Lakota

Bancroft

1630

143

4890

6000

940

Westfield

Dickens 4170

1290

Akron 2270

1650

169

Spencer

Primghar 59

Paullina

1650

WINNEBAGO

2080

1620

770

2010

940

3790

1120

Hartley

980

1540

1630

l 35

1430

Lake Mills

Buffalo Center

Graettinger

1120

O'BRIEN

5710

4060

4300

2880

169

1280

Wallingford 1730

9950

4360

Hospers

Orange City

7300

Fostoria 4200

Sheldon

Chatsworth

1570

6030 Sioux Center

Hawarden

DICKINSON

Milford 8230

5860

SIOUX 10

2120 10

West Okoboji

5200

6100

1930 790 1840 870 Superior 1030 5400 Spirit 3890 4410 1020 Lake 2420 1750 Okoboji Armstrong 1570 Estherville Swea City EMMET 2540 Arnolds Park

4500 Wahpeton

5220

5100

1120

4310

1190

1910

2910

OSCEOLA

5430 Ashton

2790

Rock Valley

2720

Orleans 3060 8500

Lake Park

810

2600 2020 940 Ocheyedan

4090

LYON

Inwood

2130

1500

Lester

3270

218 61

Keokuk

5100 61

4/8/2024

Existing Conditions Transportation Conditions and Trends Commuting Data Commuting patterns provide valuable insight into the daily movements of Wapello County’s residents, specifically related to travel for work. The following section explores 2024 ACS commuting data, including means of transportation to work and travel distances, to better understand how workers 16 years and older access employment. It is important to note that this data reflects commuting to work and does not account for travel to school or other services. Additionally, commuting patterns may have shifted since 2024, and more recent data could offer an updated perspective on how transportation choices have evolved.

According to this same 2024 ACS commuting data, a majority of Wapello County workers aged 16 years and older have a relatively short commute to work, with most traveling less than 10 minutes each way. The median travel time is 20 minutes, indicating that while many residents have quick access to their workplaces, a smaller portion may travel longer distances. Overall, this suggests that Wapello County offers convenient access to employment for most of its workforce.

Existing Conditions County Parks and Conservation Areas Wapello County is rich in natural resources, with the Des Moines River serving as both a scenic corridor and ecological asset. The County’s conservation system includes over a dozen parks, wildlife areas, and recreation sites managed by the Wapello County Conservation Board. Notable destinations include Pioneer Ridge Nature Area, Gray Eagle Wildlife Area, and Sycamore Wildlife Area, each offering opportunities for hiking, fishing, and environmental education. These amenities contribute significantly to quality of life and tourism in the region. Expanding trail connectivity, improving river access points, and investing in park maintenance and amenities will strengthen Wapello County’s appeal for residents and visitors alike. As demand for outdoor recreation continues to rise, conservation and recreation planning will play a vital role in balancing economic development with environmental stewardship. Check out the Wapello County Conservation Department’s Map of Wapello County Parks & Conservation Areas on the County’s website!

Pioneer Ridge Nature Area (995 acres). The Conservation Board’s headquarters and largest site, with a nature center, multi-use trails, and camping/cabin facilities. Pearson Park (36 acres). A developing conservation area planned for native plantings and future trails/education amenities. McNeese Wildlife Area. Located near Chillicothe and Ottumwa, this area offers habitat protection and opportunities for hunting and wildlife viewing. Blanchard Hills Wildlife Area (42 acres). Donated in 2022, this site southeast of Ottumwa features grassland, woodland, and river-adjacent bluffs suited for hunting and wildlife observation. Gray Eagle Wildlife Preserve (142 acres). Located in Ottumwa, this wetland-focused preserve supports bird migration viewing, hiking, photography, and fishing. Rock Bluff Park (32 acres). This bluff-top, riverfront site provides hiking, fishing, picnicking, and wildlife viewing and is periodically affected by flooding. DeVol Wildlife Area (80 acres). A restored prairie and wildlife habitat area that supports hiking, hunting, and nature observation.

Garrison Rock RMU (302 acres). Located in Ottumwa, this large unit includes timber and prairie restoration areas and supports hiking, hunting, picnicking, and wildlife viewing. Sycamore Wildlife Area (40 acres). Native prairie and a stocked pond make this site well-suited for casual fishing, hiking, and birdwatching. Johnson/Noel Buckeye Wildlife Area (114 acres). Oak-hickory timber habitat that supports deer and turkey hunting and quiet wildlife viewing. Cardinal Wildlife Area (40 acres). Located near Eldon, this prairie/grassland refuge supports upland game and grassland birds. Eddyville Sand Dunes Prairie (225 acres). Located in Eddyville, this site protects rare sand prairie habitat and associated native plant communities. Kirkville Wildlife Area (172 acres). This area near Kirkville provides natural habitat protection with opportunities for hunting and wildlife viewing. Blewing Marsh Nature Area (40 acres). Located near Batavia, this marsh and wetland area supports bird habitat and passive recreation such as birdwatching.

Existing Conditions Water, Wastewater, and Electricity Systems Wapello County’s water infrastructure is anchored by groundwater supplies from the Dresbach and Jordan sandstone aquifers, which serve both municipal systems and rural customers through local utilities and the Wapello County Rural Water Association. Municipal water treatment facilities in Ottumwa and other cities maintain service for residents and businesses, while rural areas depend on private wells that require ongoing maintenance to ensure safe drinking water. Wastewater service is provided by municipal treatment plants in Ottumwa and smaller cities, with rural properties relying on properly maintained septic systems to protect groundwater quality. Electric service throughout the County is generally reliable, with continual upgrades to transmission and distribution systems supporting existing demand and future development. Broadband. Broadband access is an increasingly important part of Wapello County’s infrastructure, supporting education, healthcare, business activity, and remote work. Service is available through a mix of technologies— fiber, cable, DSL, and fixed wireless— with the strongest high-speed coverage generally concentrated in and around Ottumwa and along major corridors. While broadband availability has expanded in recent years through provider investments and state/local initiatives, service levels and speeds remain uneven in more remote rural areas, highlighting opportunities for continued coordination and targeted expansion to underserved locations.

Indian Hills Schoolground Ball Field.

Lake Wapello State Park.

Existing Conditions County Facilities and Services Wapello County maintains a network of community facilities that support government operations, public safety, education, and civic engagement. These include the Wapello County Courthouse, County Administration buildings, the Sheriff’s Office, and facilities for secondary roads and emergency management. Incorporated communities such as Ottumwa also provide key civic amenities, including city halls, public libraries, community centers, and municipal service buildings. In addition, the County is home to important cultural and recreational institutions— such as museums, historic sites, and event venues— that contribute to local identity, tourism, and quality of life. Together, these facilities provide essential administrative, safety, social, and cultural services for residents across the County.

American Gothic House & Center. Photo courtesy of Meet Ottumwa. Ottumwa Regional Airport. Photo courtesy of Ottumwa Courier. Wapello County Courthouse.

Health, Wellness, and Education. Wapello County serves as a regional hub for healthcare, wellness, and educational services in Southeast Iowa, with many of these facilities and services concentrated in and around Ottumwa. The County is served by a range of healthcare providers and facilities, including Ottumwa Regional Health Center, medical and dental clinics, behavioral health providers, long-term care facilities, and senior services. Educational and workforce development opportunities are also supported by institutions such as Indian Hills Community College, which plays an important role in healthcare training, workforce development, and continuing education throughout the region. Together, these healthcare, educational, and community-based services contribute significantly to the quality of life and long-term well-being of County residents.

Ottumwa Regional Health Center. Photo courtesy of Ottumwa Regional Health Center.

Indian Hills Community College. Photo courtesy of Meet Ottumwa.

Existing Conditions Land Use Conditions and Trends Land use patterns in Wapello County reflect its agricultural heritage and concentration of growth around Ottumwa and the smaller incorporated towns. Most of the County’s land area remains in row-crop agriculture and pasture, with development clustered along Highways 34, 63, and 163, as well as near Eddyville and Agency. The County’s zoning framework guides rural residential, agricultural, and industrial uses while coordinating with city annexation and growth boundaries. As the County plans for the future, managing the interface between agricultural land and development will be critical. Strategic use of zoning and subdivision regulations can help preserve farmland, direct new growth to appropriate corridors, and coordinate future infrastructure investments with city expansion.

Existing Land Use Map

Agricultural (Preservation)/Undeveloped. Land primarily used for row crop farming, pasture, or left in a natural state. These areas include working farms as well as open space, woodlands, or wetlands not currently in active development. It can also include parcels with a farmstead on it surrounded by around 10 acres. Transitional Agriculture/Agricultural Residential. A mix of agricultural uses and scattered rural housing, often where farming activity continues alongside homes on lots 1-10 acres. These areas may be slowly shifting away from active farming. Low-Density Residential. Single-family homes on smaller lots, often categorized as part of a rural subdivision or individual homes built with private wells and septic systems. Development is along major roads and on outskirts of town. Parks & Conservation (or Recreation). Public or private land used for outdoor recreation, open space, or natural resource protection. This includes parks, trails, wildlife areas, campgrounds, or land maintained for environmental conservation. Commercial. Commercial areas include local business centers that serve everyday retail and service needs, as well as highway-oriented establishments like gas stations, agricultural suppliers, and auto services that support rural residents and travelers. Industrial. Lands used for manufacturing, warehousing, distribution, or other industrial activities. This includes both light industrial uses that are compatible with nearby residential or commercial areas and heavy industrial uses that require separation from sensitive uses due to their intensity. Industrial areas are typically located along major roads or rail access points.

Existing Conditions Land Use Conditions and Trends Building upon the Wapello County City Limits Existing Land Use Map and using the 2025 American Community Survey (ACS) population of 35,362 persons, a calculation of the existing land uses within Wapello County’s rural, unincorporated areas was conducted. The following analysis provides a snapshot of how land is currently utilized and helps assess future land use needs based on projected population growth. Understanding the County’s present land use makeup is essential for identifying where growth can and should occur.

Existing Land Use Analysis

Wapello County’s existing land use pattern is predominantly rural, with Agricultural (Preservation)/ Undeveloped land covering the majority of the County. Transitional Agriculture/Agricultural Residential areas represent the next most common pattern, appearing as scattered rural housing and fringe development near communities and along roadways, while Low-Density Residential land is more concentrated around Ottumwa and other incorporated areas. Parks & Conservation lands occur in smaller, targeted areas—often associated with the Des Moines River corridor and major recreation assets. Although commercial and industrial uses occupy a relatively limited share of total land area, they are more visible and concentrated than in many rural Iowa counties, reflecting Ottumwa’s role as a regional employment and service center and the influence of major highway corridors. 25

Community Engagement Public Participation Overview Public participation is a critical component of the planning process. During the duration of the comprehensive planning effort, residents, staff, business representatives, and other key stakeholders were engaged through a number of techniques, including community meetings, one-on-one interviews, and interactive tools available on this ArcGIS StoryMap. This approach ensured transparency and facilitated the sharing of information, project schedules, upcoming meetings, and draft documents with the project team, the public, and stakeholders. The full results of the community engagement process will be provided in a separate appendix section at the end of this plan.

Community Survey A community survey was available online and in person at Wapello County Secondary Roads Department throughout the planning process. Feedback was utilized for the development of the goals, strategies, and action items that will help shape the growth of Wapello County. Below is a summary of the survey results which shaped the goal development process.

Summary of Survey Results The Comprehensive Plan Community Survey opened May 5, 2025, and is still open as of January 2026. The survey is vailable online through an ArcGIS StoryMap and in physical copies at the County Secondary Roads Department and the first Community Workshop. A total of 45 individuals have participated in the survey, and while these responses reflect the perspectives of those 45 participants, they may not entirely capture the views of the broader population. Survey respondents generally expressed: • • • • • • • • • •

Quality of life is rated as fair to good, with limited “excellent” ratings Concern about limited housing options, especially affordable, workforce, and senior housing A strong desire for more job opportunities and economic growth Concern about retaining and attracting younger residents and families Worry about population stagnation or decline, particularly among youth Need for business development and expanded local retail/services Frustration with aging infrastructure and road conditions Limited transportation options and mobility challenges Desire for more community activities, amenities, and civic engagement Recognition of strengths including rural character, location advantages, and development potential if properly supported

Community Engagement Crowdsource Map A crowdsource mapping activity was used to identify areas of interest for the Wapello County Comprehensive Plan. Participants were asked to identify areas of strengths, opportunities, weaknesses, and threats of the community elements that comprise this plan. Below is a final visual of the crowdsource map. Responses and comments that built the crowdsource map can be found below. • • • • •

• • •

Support and build on key assets like the airport and Helgerson Flats industrial site, including better access to Hwy 63 Prioritize transportation/infrastructure upgrades, including reviving stalled/expired DOT projects Target commercial growth along Hwy 34 (west of Ottumwa) and near major corridors Plan for new housing growth just outside Ottumwa, while also reinvesting in Ottumwa’s aging housing stock Expand parks, trails, and outdoor recreation, including a trail connection from County Conservation Areas to Ottumwa

Strengthen tourism and heritage destinations (Pioneer Ridge, American Gothic House, Garrison Rock/rail corridor, Chief Wapello Memorial Park, Gray Eagle Preserve) Address underfunding/limited facilities at attractions (e.g., meeting/event space, tourism infrastructure) Tackle environmental remediation needs (e.g., coal spill cleanup) as a water-quality and public-asset opportunity

Public Engagement Summary Steering Committee The Comprehensive Plan Steering Committee played an active role throughout the planning process and was composed of key community stakeholders representing diverse interests across Wapello County. Committee members served as project ambassadors, helped promote public engagement tools and community outreach events, and communicated with community members to share feedback with the project team. Members also dedicated time to review meeting materials and draft plan content, and worked collaboratively to focus discussion and strive for consensus at key milestones throughout the process. The first Steering Committee Meeting was held on April 29, 2025, which introduced Steering Committee members, outlined their role in the planning process, reviewed the project scope and schedule, and engaged in visioning activities to help guide the plan’s vision, key components, and overall direction. The second Steering Committee Meeting was held on June 10, 2025, in which the Committee reviewed drafts of the vision statement, Comprehensive Plan outline, and Existing and Future Land Use Maps, and partook in a community engagement update, among other items. The third Steering Committee Meeting was held on September 9, 2025, in which the Committee reviewed the draft Existing Conditions chapter and the draft Implementation Matrix, which outlines each comprehensive plan element’s specific goals, strategies, and action items, organized by priority and timeline and identifying responsible lead entities and partner organizations for implementation.

Stakeholder Interviews Around 6 stakeholder interviews were conducted between Summer and Fall 2025. These anonymous one-onone online interviews included representatives from the City of Ottumwa, economic development, education, regional planning, and community organizations. Several recurring themes, opportunities, and concerns emerged throughout the interviews, including the following: • Continued need for additional housing development, particularly quality workforce and market-rate housing • Desire to attract and retain residents, workforce talent, healthcare professionals, and young graduates • Strong support for expanding economic development, business recruitment, and regional partnerships • Need for additional industrial, logistics, warehousing, and business park development near the Ottumwa Industrial Airport and along the Highway 63 and 163 corridors • Importance of continued transportation and infrastructure investments, including highway access improvements and broadband/fiber expansion • Appreciation for the area’s trails, parks, conservation areas, riverfront, and recreational amenities, along with opportunities to expand tourism and outdoor recreation • Desire for stronger marketing, branding, storytelling, and wayfinding efforts to improve community image and counter negative perceptions • Need to modernize zoning and development regulations while maintaining flexibility for growth and investment opportunities • Concerns regarding aging infrastructure, workforce shortages, population decline, healthcare access, and long-term community sustainability and quality of life

Public Engagement Summary Community Input Workshop

On May 13, 2025, residents and elected officials of Wapello County gathered at the Bridge View Center for the first public Community Input Workshop for the Wapello County Comprehensive Plan. The workshop provided an opportunity for attendees to discuss opportunities, challenges, and future priorities for the County through interactive activities such as mapping exercises, SWOT analyses, and general discussions about the future of Wapello County. Attendees also had access to paper copies of the Community Survey and Crowdsource Map, and staff collected contact information from individuals interested in participating in future stakeholder interviews. Below is a summary of key themes, feedback, and photos from the event.

SWOT Analysis Activity During the SWOT (Strengths, Weaknesses, Opportunities, and Threats) analysis activity, participants identified the following strengths, opportunities, weaknesses, and threats facing Wapello County: Strengths: • • • • •

Airport and highway connections [that support economic development opportunities] 10-15 Transit services, including transit that travels outside the County Continued investment in conservation and natural resource maintenance Improving intergovernmental collaboration between the County, Ottumwa, and smaller communities Presence of professional, skilled, and talented residents

Opportunities: • • • • • • •

Positive community members Economic development [and business growth] Expansion of commercial flight opportunities Industrial development opportunities northeast of Ottumwa Additional housing and subdivision development Expanding community resiliency Continuity of Business (COB) planning and coordination between the County Emergency Management Agency, Main Street organization, and local businesses

Weaknesses: • • •

Shrinking tax base Limited retail and healthcare Stagnant or declining population

Threats: • • • • •

Public sentiment regarding taxation versus the quality, level, and availability of County services Technological and cybersecurity concerns, including potential impacts associated with data centers Funding opportunities Increasing state-level control [and regulatory mandates] Aging infrastructure

Public Engagement Summary Community Input Workshop continued Mapping Activity During the mapping activity, participants were encouraged to identify areas of the County they felt were prime for future growth, potential nodes for commercial and/or industrial development, and areas with important natural resources, farmland, or rural character that should be protected. Key discussion points identified during the activity included the following: • Land near the Ottumwa Airport and U.S. Highway 63 was identified as an area of future growth and development interest • Potential for industrial park development northeast of Ottumwa near U.S. Highway 63, noting the presence of an approximately 63-acre certified industrial park site known as the Helgerson Flats Industrial Center. Challenges associated with the site were also noted, including limited direct highway access and concerns regarding a previously discussed Iowa Department of Transportation (IDOT) project that was believed to be withdrawn or expired • Opportunities for highway-oriented commercial development along the west side of Highway 34 entering Ottumwa. Discussion also included potential limitations associated with extending infrastructure and utilities to the area due the area’s proximity to the City of Ottumwa and its likely location within the City’s extraterritorial review area

Existing Land Use Map Activity

Complete the Sentence Activity

During the Existing Land Use Map activity, participants During the complete the sentence activity, participants were encouraged to think about the existing land shared what they value most about Wapello County, use and development patterns throughout Wapello their favorite places and activities, and their hopes for County and identify areas where the mapped existing the County’s future, including the following responses: land use may be inaccurate, outdated, or changing. I love Wapello County because… Participants were also asked to identify areas where It’s home to me (5th generation here). different types of future land use or development My favorite place in Wapello County is… may be appropriate. One comment noted that an Chief Wapello gravesite. area northeast of the Ottumwa city limits previously My favorite thing to do in Wapello County is… identified or envisioned for office park development Taking care of [my] has either expressed interest in transitioning toward home. residential development in the future or may already I hope Wapello be developing in that manner. County will… Be more progressive. Plan for growth.

Public Engagement Summary Draft Plan Open House The Draft Comprehensive Plan Open House was held on March 3, 2026, providing community members the opportunity to review the latest draft of the Comprehensive Plan and offer feedback prior to finalization. Approximately 15 people attended the Open House, engaging with MSA staff to provide input on the Implementation Matrix’s proposed goals and strategies and the Existing and Future Land Use Maps, as well as ask questions and discuss additional plan recommendations and priorities. Overall, feedback received during the Open House was generally positive, with the primary comments consisting of minor formatting concerns and suggested revisions to the land use goals, strategies, and map designations.

County Character County Elements The Plan is organized into the following elements (chapters), which together guide Wapello County’s future growth, investment, and decision-making; the goals, strategies, and action items for each element are presented within their respective sections: • County Character • Community Facilities & Services (Utilities & Infrastructure) • Agriculture & Natural Resources • Parks & Recreation • Sustainability & Resiliency • Land Use & Growth Management • Economic Development • Housing • Transportation • Intergovernmental Collaboration This section also highlights why each element matters and summarizes local conditions, needs, and opportunities that inform the goals, strategies, and action items for Wapello County, defined as follows, and all of which are compiled in Chapter 4, in the Implementation section with approximate dealines and partnerships assigned: • • •

Goals - Aspirational, long-term outcomes that Wapello County aims to achieve, aligned with the plan’s vision statement. Strategies - Specific approached or themes designed to help achieve the stated goals. Some of the strategies in the plan could also be stated as actions, but have not yet been assigned to anyone to pursue action. Action Items - Specific, measurable steps intended to implement the strategies. Action items identify priority level, anticipated timeline, and responsible lead entities and partners to guide accountability and execution.

These goals and strategies are designed to facilitate the implementation of Wapello County’s vision statement:

Wapello County Comprehensive Plan Vision Statement “Wapello County envisions a future that honors its rural heritage, preserves natural resources and agricultural lands, supports sustainable development, and ensures that all residents have access to housing, jobs, and recreational opportunities that meet their needs and aspirations.”

County Character Overview

Wapello County’s character reflects a unique balance between its historic river towns, productive agricultural landscape, and the growing vitality of Ottumwa as a regional hub. The County’s sense of place is shaped by the interplay of its natural setting along the Des Moines River, its historic neighborhoods and rural communities, and the cultural values that unite residents across urban and rural areas.

Defining Features

The Des Moines River valley forms the County’s geographic and cultural spine, influencing early settlement patterns and continuing to anchor recreation, conservation, and industry today. The rolling hills, wooded bluffs, and open farmland that surround the river contribute to scenic beauty and rural identity. Historic communities such as Agency, Blakesburg, Chillicothe, and Eldon reflect 19th-century settlement patterns including compact, walkable towns with traditional main streets and strong community ties.

Cultural Identity and Heritage

Historic preservation and cultural heritage remain central to community pride. Wapello County’s residents celebrate their rural traditions through fairs, festivals, and community gatherings that strengthen intergenerational connections. The county’s historic landmarks (including the American Gothic House in Eldon, the Wapello County Courthouse, and numerous rural churches and barns) embody the area’s evolution and resilience. Preservation and adaptive reuse of these historic resources will continue to reinforce the County’s identity and attract tourism.

Vision for the Future

Preserving Wapello County’s character requires thoughtful integration of growth with natural and cultural resources. Future land use decisions should protect scenic landscapes, promote context-sensitive design for new development, and encourage reinvestment in historic downtowns and neighborhoods. The County’s identity - rooted in authenticity, hard work, and community - will remain a key competitive advantage in attracting new residents, visitors, and investment.

County Character Goal 1 - Preserve Wapello County’s rural identity and scenic landscapes while embracing appropriate growth. Strategy - Maintain rural character through thoughtful design and land preservation. Actions

• •

Update zoning standards to protect key viewsheds and scenic corridors. Encourage cluster or conservation subdivisions to preserve open space.

Strategy - Strengthen community pride and identity through events and storytelling. Actions

• •

Support community events that highlight local culture, history, and agriculture. Develop a County branding initiative emphasizing staying rural while embracing modernity.

Goal 2 - Promote Wapello County as a welcoming and connected place to live, work, and visit. Strategy - Partner with local organizations to expand cultural and tourism programming. Actions

• •

Collaborate with local museums, fairs, and conservation areas to promote attractions. Keep the County online calendar up to date and develop marketing campaigns for relevant County events.

Strategy - Enhance visual gateways and community entrances. Actions

• •

Install coordinated wayfinding and signage along major routes.events. Implement beautification projects at key highway entrances and corridors.

Community Facilities & Services Overview

Wapello County’s network of community facilities and infrastructure ensures that residents, businesses, and visitors have access to essential services that sustain health, safety, and quality of life. These systems—ranging from water and sewer utilities to emergency services and broadband—must evolve to meet the needs of a dispersed rural population and a growing regional economy.

Public Safety and Emergency Services

The Wapello County Sheriff’s Office, volunteer fire departments, and Emergency Management Agency (EMA) coordinate critical response efforts. As population patterns shift, the County will need to evaluate coverage, staffing, and equipment needs to ensure rapid response times in both urban and rural areas. Modernization of emergency communication systems and investments in training and coordination with local departments will be essential to public safety.

Public Health and Human Services

Wapello County partners with regional health providers and state agencies to deliver public health, behavioral health, and human services programs. Ottumwa Regional Health Center serves as the primary healthcare facility, supplemented by clinics and outreach services in rural communities. Expanding access to healthcare and telehealth—particularly for older adults and families without transportation—will support community wellness.

Infrastructure and Utilities

Reliable infrastructure underpins Wapello County’s future growth. Key priorities include maintaining the County’s road and bridge network, ensuring safe and efficient wastewater systems, and expanding broadband coverage. The Wapello County Rural Water Association and local utilities provide dependable service to rural areas, but ongoing maintenance and regional coordination will be vital to sustain long-term system capacity.

Future Needs

As the County’s population stabilizes and industrial areas expand, infrastructure investment should prioritize: • • • •

Upgrading rural water lines and bridge systems. Expanding broadband and cell coverage into underserved areas. Supporting energy efficiency and renewable power projects. Coordinating transportation and land use planning to guide new growth.

Community Facilities & Services Goal 1 - Maintain reliable, efficient, and modern public facilities that meet current and future needs.

Strategy - Continue investing in modernization, accessibility, and energy efficiency of County infrastructure. Actions

• •

Conduct regular County building/facility assessments to identify needs for accessibility, energy efficiency, and safety improvements (including ensure ADA accessibility and convenient public access across the County). Incorporate energy efficient systems and sustainable design features into facility upgrades, replacements, and new construction.

Strategy - Strengthen coordination among County departments and partner agencies to maximize resources. Actions

• •

Conduct annual interdepartmental reviews to align facility planning, maintenance, and infrastructure investment priorities. Expand collaboration and shared-use opportunities among County facilities, municipalities, and regional service providers.

Goal 2 - Ensure that public safety, emergency response, and health services are accessible to all residents. Strategy - Strengthen countywide communication and preparedness. Actions

• •

Enhance communication between county departments with a focus on emergency services and health care. Continue outreach and training for volunteer and community-based emergency responders to strengthen local readiness.

Strategy - Improve equitable access to health and social services across all areas of the County. Actions

• •

Continue partnerships with local healthcare providers to expand rural service access and mobile health delivery options. Strengthen collaboration with nonprofit organizations and service agencies to better support the diverse needs of individuals, families, and communities, with an emphasis on health, well-being, and resilience.

Agriculture & Natural Resources Overview

Agriculture remains the backbone of Wapello County’s economy and identity. The County’s fertile soils, river corridors, and woodlands provide both economic opportunity and environmental value. Stewardship of these natural assets is central to preserving the County’s heritage and ensuring long-term sustainability.

Agricultural Framework

Row-crop production and livestock operations dominate the rural landscape. Corn, soybeans, hay, and cattle are the primary products, contributing significantly to local and regional economies. The County’s agricultural base supports a network of suppliers, processors, and transportation services centered around Ottumwa and Eddyville.

Trends and Challenges

While agriculture remains strong, pressures from development, land fragmentation, and changing commodity markets require adaptive land management. Rural residential growth along major corridors and near Ottumwa presents both opportunities and challenges for farmland preservation. Balancing agricultural viability with responsible development is essential to maintaining the County’s rural character.

Natural Resources and Conservation

The Des Moines River and its tributaries form critical ecological corridors that support wildlife habitat, recreation, and water quality. Forested bluffs, prairie remnants, and wetlands add biodiversity and scenic value. The County’s partnership with the Iowa Department of Natural Resources and Wapello County Conservation Board ensures continued protection and restoration of sensitive lands. • • • •

Preserve prime farmland through zoning and conservation easements. Encourage best management practices to improve soil and water quality. Promote agritourism, local food markets, and renewable energy initiatives. Strengthen partnerships with conservation and watershed organizations.

Agriculture & Natural Resources Goal 1 - Protect prime agricultural land and promote sustainable rural practices. Strategy - Strengthen land use planning and conservation partnerships to preserve agricultural productivity. Actions

• •

Identify and map prime agricultural areas for preservation in the Future Land Use Map. Coordinate with local farmers, conservation districts, and the NRCS to support voluntary farmland preservation and conservation easement programs.

Strategy - Encourage best management practices that protect soil and water quality. Actions

• •

Support NRCS and local conservation programs promoting reduced tilling, cover crops, and nutrient stewardship. Expand outreach and incentive programs for erosion control, native plant buffers, and wetland restoration.

Goal 2 - Enhance and support natural resource conservation, amenities, and outdoor recreation opportunities. Strategy - Expand the County’s conservation and trail network. Actions

• •

Coordinate with Iowa DNR, Iowa DOT, and neighboring counties to connect regional trail systems and water trails. Pursue funding for river access, boat launches, and park facility upgrades that improve public access to nature.

Strategy - Promote natural amenities as tourism and quality-of-life assets. Actions

• •

Support interpretive programming, scenic byway improvements, and eco-tourism that highlight the County’s rivers, prairies, and wildlife areas. Partner with Wapello County Conservation to enhance marketing of outdoor recreation areas and host educational and community recreation events.

Parks & Recreation Overview

Outdoor recreation is one of Wapello County’s greatest assets, enhancing quality of life for residents and supporting tourism and economic development. The County’s parks, trails, and natural areas provide opportunities for recreation, education, and environmental stewardship.

Existing Facilities

The Wapello County Conservation Board manages a network of parks and natural areas totaling over 2,000 acres. Major sites include Pioneer Ridge Nature Area, Cardinal Marsh, Gray Eagle Wildlife Area, and the Des Moines River Greenbelt. These areas offer hiking, camping, fishing, hunting, and nature study opportunities.

Recreation Trends and Needs

Public input indicates strong demand for improved trail connectivity, expanded camping facilities, and enhanced river access. Residents expressed interest in regional trail connections linking Ottumwa with Eddyville, Eldon, and Blakesburg. As outdoor recreation continues to grow, maintenance funding and partnerships will be essential to sustain facilities.

Future Opportunities

A connected, well-maintained park and recreation system will strengthen community pride and support economic growth through tourism and quality of life improvements. Key elements of park and recreation expansion should include emphasis of: • Develop a County-wide trail and open space plan. • Enhance access to the Des Moines River for boating and fishing. • Expand programming in environmental education and youth recreation. • Partner with local organizations to promote events and volunteer stewardship.

Parks & Recreation Goal 1 - Expand access to recreation and trail opportunities countywide. Strategy - Strengthen regional trail connectivity. Actions

• •

Collaborate with adjacent counties and cities to link trail systems. Seek funding for multi-use trail expansions near waterways and parks.

Strategy - Enhance public park amenities. Actions

• •

Upgrade existing park facilities for accessibility and comfort. Enhance signage and interpretive features at existing conservation and recreation areas, and install new signage where needed to improve visibility, education, and visitor experience.

Goal 2 - Promote parks and natural areas as community and tourism assets. Strategy - Develop coordinated marketing for outdoor recreation. Actions

• •

Work with conservation and tourism groups to promote parks and events. Create an interactive county parks map and online recreation guide.

Strategy - Support environmental education and stewardship programs. Actions

• •

Continue partnerships with schools and nonprofits on youth conservation programming. Expand volunteer initiatives for park maintenance and cleanups.

Sustainability & Resiliency Overview

Building a sustainable and resilient Wapello County means preparing for change—economic, environmental, and demographic—while protecting what makes the County unique. Sustainability emphasizes responsible resource use, while resiliency ensures the community can adapt and recover from challenges such as flooding, economic shifts, or population change.

Environmental Stewardship

Wapello County’s agricultural base, river corridors, and natural landscapes are key to environmental health. Implementing green infrastructure, conserving open spaces, and promoting energy-efficient development can help reduce runoff, protect water quality, and enhance biodiversity.

Climate and Hazard Resilience

The County is vulnerable to flooding, severe storms, and drought. Coordination with the Iowa Department of Homeland Security and Emergency Management and adherence to FEMA hazard mitigation planning will ensure that infrastructure, emergency services, and land use policies address these risks. Stormwater management, riparian buffer restoration, and resilient infrastructure design will reduce future vulnerabilities.

Energy and Resource Efficiency

The County can lead by example through efficient public buildings, renewable energy adoption, and waste reduction programs. Supporting solar and wind projects, encouraging energy audits for rural homes and farms, and improving broadband for remote work all advance local sustainability.

Social and Economic Resilience

Sustainability also encompasses human and economic dimensions. Investing in workforce skills, housing diversity, and community health services helps ensure Wapello County can thrive through demographic and market changes.

Key Strategies • • • •

Integrate hazard mitigation and climate adaptation into planning and zoning. Encourage renewable energy generation in compatible rural areas. Support green building and energy-efficient design in new development. Promote local food systems and sustainable agriculture.

Ottumwa Hydroelectric Plant and Dam. Photo courtesy of FlickRiver.com.

Land Use & Growth Management Overview

Land use and growth management are fundamental components of the Comprehensive Plan. Wapello County’s physical form is defined by its rural landscape, historic communities, and the concentrated urban center of Ottumwa. The County’s future growth should strengthen these existing patterns, directing new development toward appropriate locations with access to infrastructure while preserving agricultural and natural lands.

Existing Land Use Patterns

The County’s land use is predominantly agricultural, with cropland, pasture, and open space representing the vast majority of total acreage. Urban development is concentrated within Ottumwa and smaller incorporated towns such as Eddyville, Eldon, and Agency. Rural development occurs primarily along major transportation corridors and near existing services. Residential growth has occurred in clusters north and west of Ottumwa, along Highway 34 and County Road H21, where infrastructure capacity supports development. Industrial and employment uses are concentrated in and around Ottumwa’s industrial parks, near the regional airport, and south of Eddyville in the Iowa Bioprocessing Corridor. Commercial and service-oriented development occurs primarily along highway interchanges and entrances to Ottumwa.

Growth Management Approach

Wapello County’s growth strategy emphasizes balanced and sustainable development, guided by the following principles: • • • •

Preserve Farmland and Open Space: Direct new rural residential and industrial uses away from prime agricultural soils. Encourage Infill and Cluster Development: Support compact development in and near existing towns, where infrastructure and services can be efficiently extended. Coordinate with City Growth Areas: Work collaboratively with the City of Ottumwa and other municipalities to align annexation boundaries, zoning designations, and utility extensions. Protect Natural Resources: Avoid floodplains, steep slopes, and environmentally sensitive areas when planning new development.

Future Land Use Framework

The Future Land Use Map identifies broad categories that guide zoning and development review decisions: • • • • •

Agricultural Preservation: Areas to remain primarily in agricultural or open space uses. Rural Residential: Clusters of low-density housing near transportation corridors or within planned subdivisions. Industrial and Employment: Lands near Ottumwa, Eddyville, and major highway or rail corridors with infrastructure access. Commercial and Mixed Use: Highway service nodes and community commercial centers. Public and Conservation Lands: Parks, trails, natural areas, and public facilities.

Land Use & Growth Management Key Implementation Actions • • • • •

Update zoning and subdivision ordinances to reflect the Future Land Use Map. Develop a formal coordination framework with municipalities for annexation and service planning. Implement conservation subdivision standards to maintain rural character. Use capital improvement planning to align infrastructure investments with growth priorities. Policymakers must make decisions that advance the actions identified in this plan.

Land Use & Growth Management Future Land Use Map

Future Land Use Map Categories Agricultural Preservation & Natural Areas. The Agricultural Preservation and Natural Areas future land use category is intended for long-term agricultural production such as row crops and pastureland, and for natural features such as woodlands or wetlands that remain largely undisturbed but are not maintained as public open space or formally dedicated conservation land. It includes farmsteads and occasional rural dwellings at a very low density— generally no more than two (2) dwellings occupy a quarter-quarter section of land (40 acres), with up to four (4) dwellings permitted in limited circumstances. This category represents the County’s most stable agricultural landscape and is the primary future land use designation for rural areas. Agricultural-Residential Transition. The Agricultural-Residential Transition future land use category includes areas that remain largely in active agricultural use but are gradually shifting toward (scattered) rural, acreage-style living— often along major transportation corridors or near smaller communities. Development typically consists of scattered individual rural homes on approximately two and one-half (2.5) to five (5)-acre lots, generally served by private on-site water supply and wastewater systems and not part of an established residential subdivision. Overall, this future land use pattern generally equates to approximately four (4) dwellings per quarter-quarter section of land (40 acres).

Land Use & Growth Management Future Land Use Map Categories continued (Low-Density) Residential Estates. The (Low-Density) Residential Estates future land use category is intended for large lot, low density detached single-family development with lots generally ranging from one (1) to five (5) acres. Subdivisions in this category should have direct access to a paved public road, include paved internal streets, and be connected to a community or public water supply and wastewater treatment system. (High-Density) Planned Residential. The (High-Density) Planned Residential future land use category accommodates moderate- to higher-density residential development on lots generally ten thousand (10,000) square feet or more, located within or adjacent to incorporated communities for which the County administers zoning. This designation does not apply to incorporated communities that administer their own zoning, maintain their two (2)-mile extraterritorial subdivision review authority, and/or have an established urban fringe or growth area planning framework. (High-Density) Planned Residential areas typically include single-family dwellings (detached and attached), duplexes, and manufactured housing development, along with supporting uses such as religious, educational, institutional, and recreational facilities/ spaces. These areas should have direct access to a paved public road, include paved internal streets, and be connected to a community or public water supply and wastewater treatment system. Existing residential subdivisions that meet this category should remain in their current use with no further development or division until annexed and served by municipal utilities and services. Limited splits or minor divisions of agricultural land to create a small number of new residential parcels may be appropriate, but may require review and approval by the adjacent community under its two (2)-mile subdivision review authority. Parks, Recreation & Conservation. The Parks, Recreation & Conservation future land use category is for publicly or privately owned land used for parks, trails, wildlife areas, campgrounds, open space, and lands actively managed for environmental conservation or habitat enhancement. These areas differ from the natural elements found within the Agricultural Preservation & Natural Areas future land use category by being actively stewarded, publicly oriented, or recreationally purposed. Commercial-Industrial Flex. The Commercial-Industrial Flex future land use category is intended to accommodate lightintensity, often highway-oriented commercial and industrial uses serving the everyday needs of residents, agricultural operators, and travelers. These areas may include rural commercial services, gas stations, agricultural suppliers, auto service and repair, as well as business park offices, corporate campuses, warehousing and distribution facilities, and similar commercial or light industrial operations. Commercial-Industrial Flex areas should be located at major transportation corridors or along the edges of communities, have direct access to a paved public road, include internal paving (when applicable), and be connected to a community or public water supply and wastewater treatment system adequate to support the types and intensities of uses envisioned. Uses in this category are also expected to remain lowimpact, producing no smoke, odor, dust, vibrations, soot, or other noxious elements, with all activities conducted entirely within enclosed buildings and no outdoor storage. Industrial. The Industrial future land use category is designed for more intensive industrial and manufacturing uses that require larger sites, heavier truck traffic, and access to major transportation corridors such as highways or rail lines. These uses may generate noise, vibration, lighting, outdoor storage, or similar impacts and should be located away from residential neighborhoods and other sensitive land uses. Industrial areas should have direct access to a paved arterial or major collector, include internal paving, adequate community or public water and wastewater capacity, and appropriate buffering, screening, and site design to mitigate impacts on surrounding land. Public/Institutional. The Public/Institutional future land use category is intended for public, quasi-public, and institutional uses, including religious, educational, and cultural facilities; governmental offices and service facilities; and other properties owned and/or operated by a public or quasi-public entity such as airports, cemeteries, and water/ wastewater treatment facilities. This category does not include parks and recreation areas, which are addressed in the Parks, Recreation & Conservation future land use category.

Land Use & Growth Management Goal 1 - Guide growth in a manner that preserves rural character and supports sustainable development. Strategy - Direct new development toward areas with existing infrastructure and services. Actions

• •

Identify suitable areas for residential and commercial growth near city limits and along key transportation corridors. Encourage infill and redevelopment within incorporated areas to reduce rural land consumption.

Strategy - Preserve agricultural and open space areas from premature or fragmented development. Actions

• •

Integrate agricultural preservation mapping into the Zoning Map Update. Support voluntary land conservation programs and explore conservation subdivision design options in rural residential areas.

Goal 2 - Promote coordinated, efficient, and visually appealing development. Strategy - Improve design, access, and infrastructure coordination for new growth. Actions

• •

Encourage development standards that enhance visual gateways and community entrances. Review access management policies and driveway spacing along major corridors to maintain safety and rural aesthetics.

Strategy - Strengthen alignment between land use, utilities, and transportation investments. Actions

• •

Coordinate with Iowa DOT and utilities to ensure capacity aligns with planned growth areas. Develop a long-term growth management framework balancing economic opportunity with farmland and natural resource protection.

Land Use & Growth Management Zoning Compatibility Matrix The Zoning Compatibility Matrix illustrates the relationship between the Future Land Use categories and Wapello County’s existing zoning districts. Zoning districts have been identified as compatible (“C”) or incompatible (blank) within each corresponding Future Land Use category. This matrix should serve as a general guide when evaluating future rezonings and determining appropriate zoning classifications for properties throughout the County. If the zoning desired for a given property is incompatible with its Future Land Use designation, the Future Land Use Map designation should generally be amended prior to consideration of the rezoning request. It shall also be noted that, as part of the County’s broader 2025-2026 planning efforts, Wapello County has also been concurrently undertaking a comprehensive update to its Zoning and Subdivision Ordinances. The 20252026 Zoning and Subdivision Ordinances Update is intended to implement and align with the vision, goals, and future land use framework established by the Wapello County Comprehensive Plan 2025-2045, with additional public discussion and formal consideration of zoning ordinance revisions anticipated following Plan adoption. As a result, the zoning district categories and their compatibility (or lack thereof) with certain Future Land Use categories, as shown in this matrix, may be updated over time to reflect future amendments to the County’s zoning regulations, subdivision regulations, and other applicable land use policies.

Economic Development Overview

A resilient and diverse economy is fundamental to Wapello County’s quality of life. Economic opportunity enables residents to earn a living, supports thriving businesses, and strengthens the tax base necessary to fund high-quality public services and infrastructure. Sustaining and expanding employment opportunities while maintaining the county’s affordability and character is central to Wapello County’s long-term prosperity. Wapello County serves as a regional employment hub in southeastern Iowa. Ottumwa, the county seat, anchors the local economy with a mix of manufacturing, healthcare, education, and service-sector jobs. Historically rooted in manufacturing and rail transport, the county has diversified in recent decades, yet retains a strong industrial presence. Major employers include John Deere Ottumwa Works, JBS USA Pork, Cargill, and Ajinomoto Health & Nutrition, all of which continue to reinvest locally. The John Deere facility alone employs several hundred workers and remains a cornerstone of the local economy. Similarly, JBS USA and related food-processing and distribution companies south of Ottumwa are key regional employers with substantial truck, warehouse, and support operations. Public institutions such as Ottumwa Regional Health Center, Indian Hills Community College (IHCC), the Ottumwa Community School District, and Wapello County government also provide stable employment. IHCC serves as the region’s workforce engine, aligning technical programs with industry needs in advanced manufacturing, healthcare, logistics, and construction. Local business and economic development leadership including Greater Ottumwa Partners in Progress (GOPIP), Main Street Ottumwa, and Bridge View Center, play collaborative roles in strengthening the regional economy, promoting entrepreneurship, and enhancing quality of life through events, cultural programming, and downtown revitalization. Despite these strengths, stakeholders consistently cited a shortage of market-rate and higher-end housing, workforce gaps, and an underdeveloped county incentive framework as major barriers to growth. Several community leaders noted that Wapello County has historically underinvested in economic development (which is reflected in ranking near the bottom statewide in related spending) and emphasized the need for consistent county participation in funding, staffing, and site development initiatives.

Employment Areas

While Ottumwa remains the economic heart of Wapello County, several employment and industrial clusters located within unincorporated Wapello County contribute significantly to the county’s economic landscape. These areas are strategically positioned along U.S. Highway 34, Iowa Highway 163, and key rail corridors, providing regional access for manufacturing, logistics, and agribusiness operations.

Economic Development Heavy Industrial Areas •

• •

South of Eddyville: This area is part of the regional Iowa Bioprocessing Corridor, with large-scale industrial operations including Cargill and related agribusiness, feedstock, and bio-manufacturing facilities. Future opportunities include expansion of bioproducts, renewable energy components, and rail-served warehousing. Northwest of Chillicothe: Industrial land here benefits from proximity to rail and the Des Moines River corridor, ideal for bulk materials handling and potential logistics or manufacturing expansion. Improved highway access and rail safety upgrades will be essential for new investment. Ottumwa Regional Airport Vicinity (north of Ottumwa): Surrounding lands include the Ottumwa Industrial Park North, with existing infrastructure supporting aviation-related services, warehousing, and light manufacturing. Stakeholders identified this area as a high-potential employment center with strong broadband and available land but limited direct access from Highway 163. Local and regional leaders have advocated for an additional interchange to unlock future growth.

Additional Industrial and Employment Clusters • • • •

West of Ottumwa (north of Highway 34): A rail-oriented industrial corridor supporting transport, aggregates, and materials handling. With targeted site preparation and marketing, this area could attract new freight logistics and light industrial users. South of Ottumwa near 65th Street and 120th Avenue: The JBS USA complex anchors this cluster, with significant employment and related warehousing and trucking operations. Opportunities exist for ancillary food processing and cold storage expansion. Northeast of Ottumwa: A small office or business park area, well suited for professional services, technical offices, or flex-space users. Northeast of Ottumwa: Identified as a light industrial area for smaller-scale fabrication, construction trades, and service-oriented industries compatible with rural surroundings.

Commercial and Highway Service Areas

Unincorporated Wapello County highway commercial nodes line U.S. Highway 34 east toward Agency and west toward Blakesburg, as well as smaller sites south of Ottumwa along Highway 63. These locations accommodate fueling stations, restaurants, truck service facilities, equipment sales, and highway-oriented retail uses. Stakeholders noted potential for new travel centers or distribution hubs at 163 interchanges to capture freight movement across southeastern Iowa.

Ottumwa Cargilll Wapello County Facility. Photo courtesy of Ottumwa Courier.

Economic Development Challenges and Opportunities

Wapello County’s economy is gaining momentum but faces persistent structural challenges. Key issues include: • Workforce Readiness and Retention: Employers report difficulties recruiting and retaining skilled labor, exacerbated by limited housing supply and aging demographics. IHCC’s training programs, iJAG partnerships, and expanded apprenticeships provide strong foundations for workforce development, but ongoing collaboration is needed. • Housing Shortage: Stakeholders described housing as both a workforce and economic barrier, “a chicken-or-egg problem.” Encouraging rural subdivisions and infill near Ottumwa, while ensuring safe well and septic systems, will be critical. • Underinvestment in Economic Development: Limited incentives, lack of professional staff capacity, and minimal site marketing have hampered business attraction. GO-PIP and the County are now moving toward a formal partnership to strengthen these efforts. • Infrastructure and Access: Industrial areas—particularly north of Ottumwa—require improved access to Highway 163, expanded utility capacity, and continued broadband and power upgrades. • Perception and Branding: Stakeholders emphasized that Wapello County’s challenges are often overstated, while its affordability, trails, recreation areas, and strong local institutions are undervalued. Better storytelling and coordinated marketing are needed to promote community pride and external investment.

Future Employment Opportunities • • • •

• • •

Wapello County is well positioned to capitalize on its location, connectivity, and institutional strengths. Stakeholders identified several strategic opportunities: Industrial and Logistics Growth: Pursue targeted development at the Ottumwa Industrial Park North and airport area, with improved Highway 163 connectivity and marketing to industries that leverage four-lane access such as warehousing, logistics, and data centers. Rural Business Expansion: Support small-scale and home-based businesses through broadband expansion, business incubator programs, and financing tools such as the REDI revolving loan fund. Partnerships and Incentives: Strengthen partnerships between Wapello County, GO-PIP, Indian Hills, and Main Street Ottumwa to align housing, workforce, and business development tools. Establish consistent incentives (such as abatements, TIF districts, and site-readiness funding) to attract investment. Housing-Linked Economic Growth: Coordinate housing and economic development strategies to ensure the county can convert commuters into residents. IHCC’s construction program and partnerships with private developers can serve as catalysts. Tourism and Recreation Economy: Build on the success of Bridge View Center, regional trails, and conservation areas to promote tourism, recreation, and event-based spending. Image and Branding: Develop a unified County narrative that emphasizes progress, affordability, and livability - an approach echoed by multiple economic leaders and organizations.

Economic Development Goal 1 - Support business-friendly development and expansion. Strategy - Streamline policies and partnerships to support existing and new businesses. Actions

• •

Review and modernize county development and permitting processes to ensure they are businessfriendly, transparent, and predictable. Partner with local chambers, GOPIP, IHCC, and SIEDA to strengthen small business support networks, training, and entrepreneurship opportunities.

Strategy - Reposition existing industrial and commercial areas for modern growth. Actions

• •

Leverage the Ottumwa Regional Airport and U.S. 34/63 corridors to attract new industries and facilitate expansion of existing employers. Develop a coordinated marketing and incentive strategy to attract compatible industries that align with Wapello County’s regional strengths—such as manufacturing, logistics, and renewable energy support services.

Goal 2 - Promote a diverse and resilient rural economy. Strategy - Leverage regional assets to strengthen workforce and employment opportunities. Actions

• •

Revitalize workforce development programs in partnership with IHCC and IowaWORKS to upskill residents, retain young talent, and respond to shifting industry demands. Support housing and transportation investments that improve access to employment centers within Ottumwa and along major transportation corridors.

Strategy - Prepare sites and infrastructure for future economic growth. Actions

• •

Coordinate with the Iowa DOT and local utilities to prioritize infrastructure improvements serving industrial and office park sites. Maintain an inventory of available commercial and industrial sites and ensure zoning and infrastructure capacity are adequate for expansion.

Housing Overview

Housing is fundamental to the well-being of Wapello County residents and to the County’s long-term prosperity. A diverse, high-quality, and attainable housing stock strengthens families and neighborhoods, supports workforce recruitment and retention, and contributes to overall quality of life. Ensuring that residents across both urban and rural parts of the County can access safe, affordable, and desirable housing is essential to sustaining Wapello County’s future growth and success.

Residential Patterns and Zoning Framework

Wapello County’s housing landscape reflects its history as a mix of agricultural, industrial, and river-based communities. The majority of the population resides in Ottumwa, but the smaller cities of Eddyville, Blakesburg, Agency, Chillicothe, Kirkville, and Eldon each play distinct roles in providing residential options. The unincorporated portions of the County (those areas outside incorporated city limits) feature a mixture of longestablished homesteads, newer acreage subdivisions, and scattered rural residences, appealing to residents who want a rural lifestyle within proximity to urban employment and services. The county’s overall housing stock is aging, with most homes constructed prior to 1980. While the affordability of existing housing remains a strength, quality and condition vary widely, and the supply of modern, move-inready homes is limited. Rental housing options are also constrained, particularly for market-rate and workforce housing. Throughout community engagement, many noted housing availability and quality as one of Wapello County’s top economic and livability challenges. Employers, educational leaders, and real estate professionals cited an undersupply of move-in-ready homes, market-rate rentals, and executive housing. The county’s housing stock is aging with most homes having been built before 1980 and rehabilitation needs are increasing. There are large swathes of land in the County intended for low-density single-family subdivisions located along adequately constructed and paved county or state roads. This district is designed to create organized rural residential neighborhoods (not isolated dwellings) and to manage growth along key corridors while maintaining agricultural integrity. R-2 Residential District (gold/tan areas) applies primarily within incorporated communities without municipal zoning (e.g., Blakesburg, Eddyville, Agency, and Eldon). It allows development or redevelopment of tracts on a unit basis, supporting more flexible site design and mixed housing forms while preserving adequate light, air, and open space. Residential Mobile Home District (neon green/yellow area) applies to the county’s single mobile home park, located southeast of Ottumwa off Rabbit Run Road, serving as an important but limited affordable housing option for rural residents. This distribution highlights the county’s emphasis on clustered rural subdivisions near urban centers and major roads, rather than dispersed development across farmland. Such a framework helps preserve agricultural land while accommodating the growing demand for rural housing close to Ottumwa’s employment centers.

Housing Goal 1 - Encourage a diverse housing supply that meets the needs of all residents. Strategy - Support development of varied housing types across income levels. Actions

• •

Update Zoning and Subdivision Ordinances to support context-appropriate housing types and lot configurations, facilitating a mix of desired housing options in suitable areas. Work with developers to incentivize affordable and senior housing units.

Strategy - Improve the condition and quality of the existing housing stock. Actions

• •

Encourage residents to utilitze RPA 15 programs to support housing rehabilitation and weatherization. Create a countywide housing assessment.

Goal 2 - Promote housing that complements rural character and infrastructure capacity. Strategy - Strengthen countywide communication and preparedness. Actions

• •

Encourage infill and clustered rural housing. Conduct detailed reviews and mapping of septic and sanitary system capacity to document existing conditions and guide appropriate development placement and density.

Strategy - Encourage design standards that reflect local character. Actions

• •

Develop rural design guidelines for residential development. Promote landscaping and buffering to maintain open space and scenic quality.

Hill Crest Subdivision. Photo courtesy of Wapello County Beacon Pictometry Imagery (Eagleview 2024).

Transportation Overview

A safe, efficient, and well-maintained transportation network is essential to Wapello County’s economic vitality and quality of life. The system connects residents to jobs, schools, and services, and provides critical access for the movement of goods and agricultural products across southeastern Iowa. The County’s transportation planning focuses on maintaining existing assets, improving safety, and expanding multimodal options for the future.

Existing System

Wapello County’s transportation network consists of: • • • •

Highways: U.S. Highways 34 and 63 provide regional connectivity to Des Moines, Ottumwa, and Burlington. County Roads: Over 800 miles of paved and gravel secondary roads link rural residents and farm operations to market centers. Rail and Air: The Iowa Interstate and Burlington Northern Santa Fe (BNSF) rail lines serve regional freight needs. The Ottumwa Regional Airport provides general aviation services and industrial access. Trails: Existing recreational trails connect major parks and neighborhoods within Ottumwa, with opportunities for expansion countywide.

Transportation Challenges • • • • • • • • • •

Aging Infrastructure: Many rural bridges and roads require ongoing maintenance or replacement. Funding Limitations: Federal and state transportation funding remains insufficient to meet longterm needs. Safety Concerns: High-speed rural roads and heavy truck traffic near industrial areas present ongoing safety issues. Limited Non-Motorized Facilities: Outside of Ottumwa, pedestrian and bicycle facilities are minimal. Future Priorities Preserve and Maintain Existing Assets: Continue systematic bridge and pavement management programs. Enhance Connectivity to Employment Centers: Improve access to industrial areas north of Ottumwa and the airport through targeted road and interchange upgrades. Expand Multimodal Options: Extend trails and bicycle routes connecting communities, parks, and schools. Integrate Land Use and Transportation Planning: Ensure road design and location decisions support the County’s growth management and conservation goals. Support Public Transit and Regional Coordination: Partner with Southern Iowa Trolley and other regional providers to improve mobility for seniors, workers, and residents without vehicles.

Key Strategies • •

• •

Update the County’s long-range transportation plan and coordinate with the Iowa DOT’s Five-Year Program. Seek grant funding through the Iowa Clean Air Attainment Program (ICAAP), RAISE, and state bridge programs. Promote context-sensitive design for rural road improvements to maintain scenic quality. Incorporate Complete Streets principles where appropriate within growing areas

Transportation Goal 1 - Maintain and improve a safe, efficient transportation network. Strategy - Prioritize repair and modernization of existing roads and bridges. Actions

• •

Conduct regular road and bridge condition assessments and maintain a capital improvement schedule. Partner with the Iowa DOT to coordinate on pavement overlays, bridge replacements, and the engineering plan for the railroad crossing west of Ottumwa to the County line to improve safety and freight mobility.

Strategy - Expand multimodal options and connectivity. Actions

• •

Identify opportunities for shared-use trails, bike lanes, and safe pedestrian connections near community hubs. Explore partnerships with Area 15 Regional Planning Commission and Iowa DOT to develop countylevel traffic studies that assess roadway capacity, freight movement, and public transportation needs.

Goal 2 - Support transportation planning that aligns with community growth and safety. Strategy - Integrate transportation and infrastructure planning into development review. Actions

• •

Require building permit and development applications to include traffic impact analyses (TIA) for projects along major corridors. Coordinate with the County Engineer and Iowa DOT to review TIA data and apply design standards that maintain safe and efficient traffic flow.

Strategy - Improve traffic safety on rural and farm-to-market routes. Actions

• •

Limit the number of new driveways and access points along major highways through access management policies. Identify rural residential corridors for long-term preservation, balancing growth with roadway capacity and maintaining rural character.

Intergovernmental Collaboration Overview

Effective intergovernmental collaboration is critical to implementing the Comprehensive Plan. Wapello County’s ability to manage growth, protect resources, and deliver high-quality services depends on coordination among local, regional, and state partners. Collaboration ensures efficient use of public resources, consistency in decision-making, and stronger advocacy for regional priorities.

Key Partners • • •

Cities within Wapello County: Ottumwa, Agency, Blakesburg, Chillicothe, Eldon, Eddyville, and Kirkville. Regional Agencies: Area 15 Regional Planning Commission, Iowa Department of Transportation, Iowa Department of Natural Resources, Indian Hills Community College, Greater Ottumwa Partners in Progress (GO-PIP), and the Wapello County Conservation Board. Neighboring Counties: Mahaska, Monroe, Jefferson, Davis, and Keokuk Counties share regional infrastructure and workforce linkages.

Key Areas of Coordination • • • • •

Land Use and Annexation: Establish clear communication between the County and municipalities regarding growth boundaries, subdivision review, and zoning compatibility. Infrastructure and Transportation: Collaborate with the Iowa DOT and Area 15 RPC to align capital improvement projects and secure funding. Economic and Workforce Development: Coordinate with GO-PIP, IHCC, and regional employers on workforce training, industrial recruitment, and housing initiatives. Public Safety and Emergency Management: Continue joint training, resource sharing, and coordinated response planning with local fire and law enforcement agencies. Environmental Stewardship: Partner with the DNR and conservation boards to manage watersheds, parks, and wildlife areas.

Future Collaboration Goals • • • •

Formalize Intergovernmental Agreements: Use 28E agreements or memoranda of understanding (MOUs) to define shared responsibilities for infrastructure and services. Participate in Regional Planning Forums: Engage consistently with Area 15 RPC and regional economic development initiatives. Leverage Shared Resources: Pursue joint grant applications and cost-sharing for transportation, housing, and conservation projects. Enhance Communication: Maintain regular coordination meetings between County and city leaders to align priorities and monitor plan implementation.

Overarching Goal

Through proactive and sustained collaboration, Wapello County can ensure that local governments and regional partners work toward a shared vision to support efficient growth, fiscal responsibility, and improved quality of life for all residents.

Intergovernmental Collaboration Goal 1 - Strengthen coordination between Wapello County, local jurisdictions, and regional partners. Strategy - Maintain alignment of planning and infrastructure priorities across jurisdictions. Actions

• •

Collaborate with Area 15 Regional Planning Commission, Iowa DOT, and neighboring counties on transportation, housing, and infrastructure planning efforts. Conduct regular intergovernmental coordination meetings to review shared planning goals, project updates, and funding opportunities.

Strategy - Maintain consistency among County and municipal development policies. Actions

• •

Continue coordination with incorporated cities to align zoning, subdivision, and annexation policies with shared regional growth objectives. Pursue joint data sharing and collaborative grant applications for housing, transportation, broadband, and infrastructure improvements.

Goal 2 - Continue partnerships that deliver efficient services and shared community benefits. Strategy - Strengthen existing collaboration on community services, safety, and public health. Actions

• •

Continue partnerships with public health agencies, school districts, and first responders to enhance access to emergency and wellness services countywide. Maintain and expand shared-use agreements for recreational facilities, event venues, and community spaces among the County and local governments.

Strategy - Sustain regional partnerships supporting economic development and natural resource stewardship. Actions

• •

Continue participation in regional workforce, tourism, and economic development coalitions to leverage shared investment and marketing efforts. Maintain collaboration with Wapello County Conservation, neighboring counties, and regional organizations on shared land, water, and habitat conservation initiatives.

Ottumwa Bridge View Center. Photo courtesy of Travel Iowa.

Implementation How to use the plan?

A Comprehensive Plan is a valuable tool to help communities achieve their goals for the future. The success of a plan is dependent on the implementation tactics that bring the goals and visions to fruition. This section is your guide for implementing the goals, strategies, and visions illustrated through the Wapello County Comprehensive Plan.

Implementation Strategies Responsibilities

Board of Supervisors The Board of Supervisors sets priorities, approves budgets and tax rates, and often has the final say on key aspects of public and private development projects. The value and legitimacy of this plan is directly related to the degree to which the Board of Supervisors are aware of the plan and expect County actions to be consistent with this plan. Each Board member should have a copy of this plan and be familiar with the major goals and objectives described herein. The Board of Supervisors should expect and require that staff recommendations and actions both reference and remain consistent with this plan, or that the plan is amended as needed to fit changing conditions. Wapello County Staff County staff have a significant influence on the selection and completion of all kinds of capital and operational projects. It is imperative that County staff know about, support, and actively work to implement the various strategies and actions in this plan. Specifically, the following people should consult and reference the comprehensive plan during goal-setting processes, annual budgeting, planning for major public projects, and in the review of private development projects: • • • •

Wapello County Planning & Zoning Administrator Wapello County Engineer Wapello County Clinical Health Director Emergency Management Director

These key staff members are expected to know and track the various goals, strategies, and vision laid out in this plan, and to reference that content as appropriate in communications with residents, business owners, and elected and appointed officials. All other staff members should be aware of the plan and the connections between the plan and County projects. The purpose of this extra effort is to strengthen staff recommendations and reinforce the plan as a relevant tool integral to County functions and decision making. Planning & Zoning Commission Land use and development recommendations are a core component of this plan, and the Planning & Zoning Commission has a major role in guiding those decisions. Planning & Zoning Commission members shall each have a copy of this plan and shall be familiar with the content, especially the Land Use section. It is generally the responsibility of the Planning & Zoning Commission to determine whether proposed projects are consistent with this plan, and to make decisions and recommendations that are consistent with this plan. In cases where actions that are inconsistent with this plan are deemed to be in the best interest of the County, the Planning & Zoning Commission should initiate efforts to amend the plan to better reflect County interests. This will help to reinforce the legitimacy of the plan as an important tool in guiding County decision making. 58

Implementation Procedures

Education & Advocacy Implementation of this plan also depends on actions and decisions of partner entities including: • Iowa Department of Transportation • Iowa Department of Natural Resources • Area 15 Regional Planning Commission It is necessary to persuade these entities to be active partners in the implementation of this plan. The following County activities can support this effort: • • • •

Share this plan with each organization, including a memo highlighting sections of the plan that anticipate collaboration between the County and the organization. Take the lead role in implementation for crucial initiatives of the County that require regional collaboration. Know and communicate the intent of relevant objectives and strategies. Utilize the goals and vision from the plan to support requests for monetary support for County efforts.

Implementation Tools Many of the strategies identified in this plan presume the use of existing County ordinances, regulations, and programs. The County’s key implementation tools include: • • • • • •

Funding Tools User Fees Tax Abatement Tax Increment Financing (TIF) Districts Development Fees State, Federal, and Private Grant Programs

• • • • • • •

Operational Tools Annual Goal-Setting Process Annual Budget Process Regulatory Tools Wapello County Code of Ordinances State Regulations Federal Regulations

Implementation Implementation Matrix

How to use the matrix? The Implementation Matrix outlines all of the goals and strategies for each element discussed in the plan. It also provides recommendations for actions to complete these strategies and goals, recommended partnerships, and funding opportunities. The deadlines identified to achieve these actions are not firm - rather they are indications of when the County may choose to pursue an action based on its importance or difficulty. The general timelines identified are: » Short-Term (3-10 years) » Long-Term (10-20 years) » On-going

Wapello County Comprehensive Plan Implementation

County Character

Timeline (Short-term, Long-term,

Goal 1

Preserve Wapello County’s rural identity and scenic landscapes while embracing

Strategy A

Maintain rural character through thoughtful design and land preservation.

Action Item 1

Update zoning standards to protect key viewsheds and scenic corridors.

Short-Term

Action Item 2

Encourage cluster or conservation subdivisions to preserve open space.

Short-Term

Strategy B

Strengthen community pride and identity through events and storytelling.

Action Item 1

Support community events that highlight local culture, history, and agriculture.

Ongoing

Action Item 2

Develop a County branding initiative emphasizing staying rural while embracing modernity.

Short-Term

Goal 2

Promote Wapello County as a welcoming and connected place to live, work, and

Strategy A

Partner with local organizations to expand cultural and tourism programming.

Action Item 1

Collaborate with local museums, fairs, and conservation areas to promote attractions.

Short-Term

Action Item 2

Keep the County online calendar up to date and develop marketing campaigns for relevant County events.

Ongoing

Strategy B

Enhance visual gateways and community entrances.

Action Item 1

Install coordinated wayfinding and signage along major routes.

Long-Term

Action Item 2

Implement beautification projects at key highway entrances and corridors.

Long-Term

County Facilities & Services

Implementation Goal 1

Maintain reliable, efficient, and modern public facilities that meet current and

Strategy A

Continue investing in modernization, accessibility, and energy efficiency of County infrastructure.

Conduct regular County building/facility assessments to identify needs for accessibility, energy efficiency, and safety Action Item 1 improvements (including ensure ADA accessibility and convenient public access across the County).

Short-Term

Incorporate energy efficient systems and sustainable design Action Item 2 features into facility upgrades, replacements, and new construction.

Long-Term

Strategy B

Strengthen coordination among County departments and partner agencies to maximize resources.

Action Item 1

Conduct annual interdepartmental reviews to align facility planning, maintenance, and infrastructure investment priori-

Short-Term

Action Item 2

Expand collaboration and shared-use opportunities among County facilities, municipalities, and regional service provid-

Short-Term

Goal 2

Ensure that public safety, emergency response, and health services are accessible to all residents.

Strategy A

Strengthen countywide communication and preparedness.

Expand digital service delivery options and update County Action Item 1 websites and online portals for improved public access to services and permits.

Short-Term

Action Item 2

Continue outreach and training for volunteer and community-based emergency responders to strengthen local readi-

Ongoing

Strategy B

Improve equitable access to health and social services across all areas of the County.

Action Item 1

Continue partnerships with local healthcare providers to expand rural service access and mobile health delivery options.

Ongoing

Strengthen collaborations with nonprofit organizations and Action Item 2 service agencies to enhance support for seniors, behavioral health, and vulnerable populations.

Short-Term

Goal 1

Encourage a diverse housing supply that meets the needs of all residents.

Strategy A

Support development of varied housing types across income levels.

Housing

Update Zoning and Subdivision Ordinances to support conAction Item 1 text-appropriate housing types and lot configurations, facilitating a mix of desired housing options in suitable areas. Action Item 2

Work with developers to incentivize affordable and senior housing units.

Strategy B

Improve the condition and quality of the existing housing stock.

Action Item 1

Encourage residents to utilitze RPA 15 programs to support housing rehabilitation and weatherization.

Action Item 2 Create a countywide housing assessment.

Short-Term

Short-Term Long-Term

Goal 2

Promote housing that complements rural character and infrastructure capacity.

Strategy A

Encourage infill and clustered rural housing.

Action Item 1

Prioritize new subdivisions in areas with existing road and utility access.

Conduct detailed reviews and mapping of septic and sanitary Action Item 2 system capacity to document existing conditions and guide appropriate development placement and density. Strategy B

Short-Term

Encourage design standards that reflect local character.

Action Item 1 Develop rural design guidelines for residential development.

Short-Term

Promote landscaping and buffering to maintain open space and scenic quality.

Short-Term

Action Item 2

Short-Term

Transportation

Goal 1

Maintain and improve a safe, efficient transportation network.

Strategy A

Prioritize repair and modernization of existing roads and bridges.

Action Item 1

Conduct regular road and bridge condition assessments and maintain a capital improvement schedule.

Short-Term

Partner with the Iowa DOT to coordinate on pavement overlays, bridge replacements, and the engineering plan for Action Item 2 the railroad crossing west of Ottumwa to the County line to improve safety and freight mobility.

Short-Term

Strategy B

Expand multimodal options and connectivity.

Action Item 1

Identify opportunities for shared-use trails, bike lanes, and safe pedestrian connections near community hubs.

Explore partnerships with Area 15 Regional Planning Commission and Iowa DOT to develop county-level traffic studies Action Item 2 that assess roadway capacity, freight movement, and public transportation needs.

Short-Term

Goal 2

Support transportation planning that aligns with community growth and safety.

Strategy A

Integrate transportation and infrastructure planning into development review.

Action Item 1

Require building permit and development applications to include traffic impact analyses (TIA) for projects along major

Short-Term

Coordinate with the County Engineer and Iowa DOT to reAction Item 2 view TIA data and apply design standards that maintain safe and efficient traffic flow.

Short-Term

Strategy B

Improve traffic safety on rural and farm-to-market routes.

Action Item 1

Limit the number of new driveways and access points along major highways through access management policies.

Short-Term

Identify rural residential corridors for long-term preservation, Action Item 2 balancing growth with roadway capacity and maintaining rural character.

Short-Term

Parks and Recreation 64

Goal 1

Expand access to recreation and trail opportunities countywide.

Strategy A

Strengthen regional trail connectivity.

Action Item 1

Collaborate with adjacent counties and cities to link trail systems.

Short-Term

Action Item 2

Seek funding for multi-use trail expansions near waterways and parks.

Short-Term

Strategy B

Enhance public park amenities.

Action Item 1 Upgrade existing park facilities for accessibility and comfort.

Long-Term

Enhance signage and interpretive features at existing conservation and recreation areas, and install new signage Action Item 2 where needed to improve visibility, education, and visitor experience.

Short-Term

Goal 2

Promote parks and natural areas as community and tourism assets.

Strategy A

Develop coordinated marketing for outdoor recreation.

Action Item 1

Work with conservation and tourism groups to promote parks and events.

Short-Term

Action Item 2

Create an interactive county parks map and online recreation guide.

Short-Term

Strategy B

Support environmental education and stewardship programs.

Action Item 1

Continue partnerships with schools and nonprofits on youth conservation programming.

Ongoing

Action Item 2 Expand volunteer initiatives for park maintenance and clean-

Short-Term

Goal 1

Support business-friendly development and expansion.

Strategy A

Streamline policies and partnerships to support existing and new businesses.

Review and modernize county development and permitting Action Item 1 processes to ensure they are business-friendly, transparent, and predictable.

Short-Term

Partner with local chambers, GOPIP, IHCC, and SIEDA to Action Item 2 strengthen small business support networks, training, and entrepreneurship opportunities.

Short-Term

Economic Development

Strategy B

Reposition existing industrial and commercial areas for modern growth.

Leverage the Ottumwa Regional Airport and U.S. 34/63 Action Item 1 corridors to attract new industries and facilitate expansion of existing employers.

Long-Term

Develop a coordinated marketing and incentive strategy to attract compatible industries that align with Wapello County’s Action Item 2 regional strengths—such as manufacturing, logistics, and renewable energy support services.

Short-Term

Goal 2

Promote a diverse and resilient rural economy.

Strategy A

Leverage regional assets to strengthen workforce and employment opportunities.

Revitalize workforce development programs in partnership Action Item 1 with IHCC and IowaWORKS to upskill residents, retain young talent, and respond to shifting industry demands.

Short-Term

Support housing and transportation investments that imAction Item 2 prove access to employment centers within Ottumwa and along major transportation corridors.

Short-Term

Strategy B

Prepare sites and infrastructure for future economic growth.

Coordinate with the Iowa DOT and local utilities to prioritize Action Item 1 infrastructure improvements serving industrial and office park sites.

Short-Term

Maintain an inventory of available commercial and industrial Action Item 2 sites and ensure zoning and infrastructure capacity are adequate for expansion.

Short-Term

Agriculture and Natural Resources 66

Goal 1

Protect prime agricultural land and promote sustainable rural practices.

Strategy A

Strengthen land use planning and conservation partnerships to preserve agricultural

Action Item 1

Identify and map prime agricultural areas for preservation in the Future Land Use Map.

Coordinate with local farmers, conservation districts, and Action Item 2 the NRCS to support voluntary farmland preservation and conservation easement programs.

Short-Term

Strategy B

Encourage best management practices that protect soil and water quality.

Action Item 1

Support NRCS and local conservation programs promoting reduced tilling, cover crops, and nutrient stewardship.

Short-Term

Action Item 2

Expand outreach and incentive programs for erosion control, native plant buffers, and wetland restoration.

Short-Term

Goal 2

Enhance natural resource conservation and outdoor recreation opportunities.

Strategy A

Expand the County’s conservation and trail network.

Action Item 1

Coordinate with Iowa DNR, Iowa DOT, and neighboring counties to connect regional trail systems and water trails.

Short-Term

Action Item 2

Pursue funding for river access, boat launches, and park facility upgrades that improve public access to nature.

Short-Term

Strategy B

Promote natural amenities as tourism and quality-of-life assets.

Support interpretive programming, scenic byway improveAction Item 1 ments, and eco-tourism that highlight the County’s rivers, prairies, and wildlife areas.

Short-Term

Partner with Wapello County Conservation to enhance marAction Item 2 keting of outdoor recreation areas and host educational and community recreation events.

Short-Term

Sustainability and Resiliency

Goal 1

Strengthen Wapello County’s capacity to adapt to environmental and economic changes.

Strategy A

Integrate sustainability and hazard mitigation into County planning and decision-making.

Action Item 1

Align comprehensive plan implementation with the RPA 15 Multi-Jurisdictional Hazard Mitigation Plan.

Short-Term

Identify vulnerable infrastructure and develop capital imAction Item 2 provement priorities for flood protection, stormwater management, and emergency access.

Short-Term

Strategy B

Support energy efficiency and renewable energy innovation.

Action Item 1

Encourage renewable energy projects that are compatible with rural character and agricultural land protection goals.

Long-Term

Action Item 2

Promote energy efficiency upgrades in public facilities and encourage participation in state and utility rebate programs.

Short-Term

Goal 2

Advance community resilience through conservation, infrastructure, and education.

Strategy A

Protect and restore natural systems that enhance resilience.

Action Item 1

Promote watershed-based planning and soil conservation to reduce flood risks and improve water quality.

Short-Term

Action Item 2

Support reforestation, prairie restoration, and tree canopy expansion in public spaces and along rights-of-way.

Long-Term

Strategy B

Build local capacity for climate awareness and emergency preparedness.

Action Item 1

Provide public education on flood preparedness, home energy conservation, and sustainable rural living.

Short-Term

Strengthen partnerships with emergency management agenAction Item 2 cies and utilities to ensure reliable power, broadband, and communications during emergencies.

Short-Term

Intergovernmental Collaboration

Goal 1

Strengthen coordination between Wapello County, local jurisdictions, and regional partners.

Strategy A

Maintain alignment of planning and infrastructure priorities across jurisdictions.

Collaborate with Area 15 Regional Planning Commission, Action Item 1 Iowa DOT, and neighboring counties on transportation, housing, and infrastructure planning efforts.

Short-Term

Conduct regular intergovernmental coordination meetings to Action Item 2 review shared planning goals, project updates, and funding opportunities.

Short-Term

Strategy B

Continue coordination with incorporated cities to align zonAction Item 1 ing, subdivision, and annexation policies with shared regional growth objectives.

Ongoing

Pursue joint data sharing and collaborative grant applicaAction Item 2 tions for housing, transportation, broadband, and infrastructure improvements.

Short-Term

Goal 2

Continue partnerships that deliver efficient services and shared community ben-

Strategy A

Strengthen existing collaboration on community services, safety, and public health.

Continue partnerships with public health agencies, school Action Item 1 districts, and first responders to enhance access to emergency and wellness services countywide.

Ongoing

Maintain and expand shared-use agreements for recreationAction Item 2 al facilities, event venues, and community spaces among the County and local governments.

Ongoing

Strategy B

Maintain consistency among County and municipal development policies.

Sustain regional partnerships supporting economic development and natural resource stewardship.

Continue participation in regional workforce, tourism, and Action Item 1 economic development coalitions to leverage shared investment and marketing efforts.

Ongoing

Maintain collaboration with Wapello County Conservation, Action Item 2 neighboring counties, and regional organizations on shared land, water, and habitat conservation initiatives.

Ongoing

Land Use and Growth Management

Goal 1

Guide growth in a manner that preserves rural character and supports sustainable development.

Strategy A

Direct new development toward areas with existing infrastructure and services.

Action Item 1

Identify suitable areas for residential and commercial growth near city limits and along key transportation corridors.

Short-Term

Action Item 2

Encourage infill and redevelopment within incorporated areas to reduce rural land consumption.

Short-Term

Strategy B

Preserve agricultural and open space areas from premature or fragmented develop-

Action Item 1

Integrate agricultural preservation mapping into the Zoning Map Update.

Short-Term

Support voluntary land conservation programs and explore Action Item 2 conservation subdivision design options in rural residential areas.

Short-Term

Goal 2

Promote coordinated, efficient, and visually appealing development.

Strategy A

Improve design, access, and infrastructure coordination for new growth.

Action Item 1

Encourage development standards that enhance visual gateways and community entrances.

Short-Term

Action Item 2

Review access management policies and driveway spacing along major corridors to maintain safety and rural aesthetics.

Short-Term

Strategy B

Strengthen alignment between land use, utilities, and transportation investments.

Action Item 1

Coordinate with Iowa DOT and utilities to ensure capacity aligns with planned growth areas.

Develop a long-term growth management framework balancAction Item 2 ing economic opportunity with farmland and natural resource protection.

Long-Term

Appendix A:

Full Community Engagement Results

Full Community Survey Results What is your relationship to Wapello County?

How long have you lived in Wapello County?

What is your age?

Full Community Survey Results How many people are in your household?

Are you currently working?

If you commute for work, how many miles is your commute (each way)?

Full Community Survey Results How would you rate the overall quality of life in Wapello County?

What three words would you use to describe the community character of Wapello County as it is today?

What three words would you use to describe an ideal future for Wapello County?

Full Community Survey Results Please rank the changes that you believe would most significantly improve the quality of life in Wapello County. If you selected “Other” in the above question, please describe the other type of change you would like to be prioritized.

Please select up to four factors that influenced your decision to live where you live now.

The Comprehensive Plan will need to consider future trends that will drive changes in our community over the next 20 years. Below are some national and regional trends that are facing communities. Please select up to four factors that you believe are most important for Wapello County to plan for now.

Full Community Survey Results Please list the strengths and opportunities you see for Wapello County related to community character.

Please list the weaknesses and threats you see for Wapello County related to community character.

Please list the strengths and opportunities you see for Wapello County related to development.

Please list the weaknesses and threats you see for Wapello County related to development.

Full Community Survey Results Please list the strengths and opportunities you see for Wapello County related to mobility.

Please list the weaknesses and threats you see for Wapello County related to mobility.

What would you like to see more of in Wapello County?

Full Community Survey Results Please rank the qualities you believe make living in rural Wapello County a great place to live today. If you selected “Other” in the above question, please describe the other factor you believe is most important for Wapello County to plan for now.

What other long-range issues should the Wapello County Comprehensive Plan address?

Full Community Survey Results Any additional comments related to the Wapello County Comprehensive Plan? • • • • • • • •

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Allow wind turbines fast. Funding these initiatives takes time and careful planning. Thank you for listening to the residents of this county. I couldn’t rake the plans above I believe a robust, aggressive and permanent community engagement program/ department from the government. I’d love to show you what I see in Wapello County- a part of the county that’s rural, but still connected to the world. A part of the county that has higher educated people, people who live on a budget, go to church each week and live their families. I applaud this effort!! If a comprehensive plan is put in place future elected officials should be following the plan. I would like to see Wapello County prosper and be able to compete with other areas of Iowa and the US to be able to be one of the “best places to live”. I have concerns with all the “re-alignments” ushered in under the current Iowa Government, that Wapello County might fall through the cracks for our early childhood, behavioral health, disability, and other populations and not have access to services they need. Elected officials should keep their eyes on Economic development and how their decisions negatively impacts development in the County. Thank you for taking time to ask community members. We are rooting for growth and change!! Thank you for trying! Bring common since back to life “Will there be stakeholder meetings? What is the outreach plan to reach out to population groups that dont get this survey electronically to get their input? (elderly, youth, new residents, immigrants etc)” “I know we need tax dollars to provide all of the services in Wapello County, but the yearly increases are making it hard to stay in our home. Please consider that impact.... maybe a breakdown of services our taxes are being spent on and how much, would help us see where our money is going. I’d like to see us refurbishing buildings and areas for new business and housing instead of build new on undeveloped ground. There are lots of empty buildings and run down homes that could be new locations for business and families. Once we tear up ground and put concrete over it, it isn’t the same. We need to value the agricultural and natural areas we have... we can’t just build more farmland and natural areas.” You have ideal location here that could prosper, if you took corrective action. Good luck No Thank you for the time and effort to make Wapello County live up to its natural advantages. Keep things open, and don’t wait so long before reviewing and making changes. Maybe consider updating every 5 years.

Appendix B Maps

Appendix C

Related Plans to Reference

Related Plans to Reference The following plans were referenced in the development of the Wapello County Comprehensive Plan and should continue to be consulted and utilized as guiding documents to inform growth, development, and decisionmaking throughout the County as conditions and priorities evolve over time.

As the County Seat, the City of Ottumwa’s Comprehensive Plan served as a critical reference document, providing valuable insight into anticipated land use patterns, infrastructure investments, and future development initiatives within the City and its surrounding areas. This alignment helped ensure that County-wide planning efforts are coordinated with municipal goals and reflect The following city zoning ordinances were essential to reference when developing the Wapello County Comprehensive Plan and Future Land Use Map because they establish the regulatory framework that governs land use, density, and development standards at the municipal level. Understanding these ordinances helped ensure that county-wide goals and strategies are consistent with existing local regulations, reducing the potential for land use conflicts, and supporting coordinated growth across jurisdictional boundaries.

City of Agency, Iowa Zoning Ordinance City of Eldon, Iowa Zoning Ordinance City of Ottumwa, Iowa Zoning Ordinance

Appendix D

Wapello County Cities

Wapello County Cities Agency – The population was 620 at the 2020 census. It is the historic site of an Indian trading post and the grave of Chief Wapello, the second in command in the Sac and Fox Tribe. The city was founded on the site of Indian agency in 1843 and incorporated in 1859.

Blakesburg – The population was 274 at the 2020 census. It was named after one of its founders, Theophilus Blake and was laid out in 1852. Three miles northeast of Blakesburg is the Airpower Museum, which features 25 mostly pre-World War II aircrafts.

Chillicothe – The population was 76 at the 2020 census. The city was laid out in 1849 and incorporated in 1881. The word Chillicothe is derived from the ancient Shawnee Indian words meaning “Principal Place.” When a village was called Chillicothe it meant that it was home to the principal chief.

Eddyville – The population was 970 at the time of the 2020 census. The city is in Mahaska, Monroe, and Wapello counties. A Sauk village was established on the site following the end of the Black Hawk War. In 1840, Jabish P. Eddy was permitted by the village chief, Chief Hard Fish, to open a trading post. The city was formally incorporated in 1857.

Wapello County Cities Eldon – The population was 783 at the time of the 2020 census. It is the site of the carpenter gothic style house that artist Grant Wood used for the background of his 1930 painting American Gothic. The city today is a regional tourist destination and is home to the Wapello County Fair which began in 1868.

Kirkville – The population was 157 at the time of the 2020 census. The city was laid out by John Kirkpatrick in 1848.

Ottumwa – The population was 25, 529 at the time of the 2020 census. The city’s name is derive from the Meskwaki language and translates to “tumbling water.” The city was named the county seat in 1844. The city has a large history of coal mining, and meat packing, which were both important to the growth and development of Ottumwa.