Small Wisconsin City's Zoning Overhaul Reveals How Outdated Regulations Block Rural Development

Written by:

Rudi Davis

Date:

29 Jan 2026

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Developers may be passing over viable projects in smaller communities because local zoning codes are too complex to understand, according to one Wisconsin city administrator leading a complete overhaul of his city’s regulations.

Alex Mansfield, City Administrator of Amery, Wisconsin, says the city’s zoning codes—last fully codified in 2004—have become so lengthy and contradictory that they discourage developers who might otherwise be interested. “A developer who wants to know their setbacks, their site use requirements, their wetland delineations needs a simple, easy-to-understand format,” Mansfield says. “If they can’t get that quickly, they move on to the next market.”

This challenge is not unique to Amery. Across the United States, small communities are struggling with zoning frameworks designed for earlier eras that have since become barriers to new investment. Even when land, infrastructure, and demand exist, outdated regulations can be a deciding factor for developers choosing between markets.

The Regulatory Clarity Problem

Amery has launched a 10-month effort to rewrite its zoning codes completely. Mansfield describes the process as “taking a hammer and chisel” to years of accumulated amendments and contradictions. The goal is to make it immediately clear what is allowed on any given parcel, without the need for legal advice or multiple rounds of clarification with city staff.

Over time, Amery’s codes have become unwieldy through piecemeal changes, creating a regulatory environment where even straightforward projects require significant time to navigate. Mansfield says the new code will be “easy to understand” and designed to encourage a broader range of development proposals.

This lack of clarity is especially problematic when smaller communities compete with metropolitan areas. While larger cities may have more bureaucratic processes, their regulations are often better documented and more predictable. Developers facing tight deadlines and managing multiple projects tend to favor markets where feasibility studies and approvals can be completed quickly.

Why This Matters Beyond One Small City

Amery’s situation reflects a broader trend among communities with populations under 5,000. Many lack the staff and resources to update their zoning codes regularly, even as building methods and market needs evolve. This creates a widening gap between what the regulations require and what makes sense for modern development.

Mansfield notes that Amery has 18.33 acres of city-owned, fully serviced land available for development. The city is actively seeking new investment, but attracting developers has been difficult despite the available land and infrastructure. He identifies regulatory complexity as a significant obstacle.

The broader implication is that small communities may be missing out on development not because of weak markets, but because developers prefer to avoid the risks and delays associated with unclear rules. In effect, self-imposed regulatory friction is deterring investment that might otherwise flow to these areas.

The Modernization Approach

Amery’s zoning rewrite is focused on removing unnecessary language while preserving essential community standards. The process involves distinguishing between regulations that genuinely protect local interests and those that exist only due to outdated assumptions or historical precedent.

“We’re going to try to take a bit of a hammer and a chisel approach and say, what do we not need? What do we need?” Mansfield says. The city aims to keep rules that protect community character while eliminating those that create unnecessary hurdles to new development.

For developers considering smaller markets, regulatory clarity should be a primary consideration alongside land costs and demand. Communities that invest in modern, streamlined zoning may offer a significantly better environment for development than those operating under decades-old codes.

Whether other small cities follow Amery’s lead will depend on how quickly local leaders recognize that regulatory complexity is more than an administrative issue. It is a central economic development challenge that directly affects their ability to attract new investment. As Amery’s experience shows, modernizing zoning codes can unlock opportunities that outdated and confusing regulations have stymied.