Greenville Incorporation


towerUPDATE AS OF AUGUST 15, 2019
The Wisconsin Department of Administration’s Incorporation Review Board met on August 14, 2019  to deliberate on a proposed determination for the incorporation petition of the Town of Greenville.  The Board agreed to dismiss the petition as presented with the recommendation that a new petition be submitted to include less territory as specified in the Board’s findings and determination.

The Incorporation Review Board granted a 12-month extension to
Greenville to submit a new petition with a revised boundary map which should include less territory.  The extension also waives the submission fee of $25,000.

The petitioners and the Town Board initially attempted to incorporate the entire Town of Greenville.  Unfortunately we were unsuccessful in this pursuit.  The original petition did not meet two of the Statutory standards for “Compactness & Homogeneity” and “Territory Beyond the Core”.

Resubmitting a new petition would initially create a separate Town and Village of Greenville.  However, should the incorporation pass, the remaining Town could be reunited with the newly formed village  via an Intergovernmental Cooperation Agreement between the remnant Town and newly formed Village.  This act would be similar to the incorporation of the Town of Menasha to the Village of Fox Crossing.  This process does add some complexity and can be confusing to many.  Because of this complexity, we attempted to incorporate the entire Town at once.  Again, unfortunately we were unable to meet all of the Statutory standards with this approach.

On March 23, 2018 a pair of Town residents filed a notice of intent to circulate a petition to incorporate the Town of Greenville.  A petition began circulating on April 3, 2018 and was filed with the Town Clerk on April 12, 2018.  The petition will be filed with the Circuit Court in accordance with Wisconsin State Statutes.   The Town of Greenville has developed the following page dedicated toward informing the public of the Town's incorporation efforts.  Updates to the incorporation process will be posted here as they become available.

What is incorporation?
Municipal incorporation is the process of creating new villages and cities from town territory. It is regulated under Wisconsin Statutes Chapter 66 General Municipality Law (s. 66.0201).

What is the process for an incorporation?
The incorporation process involves the following six elements:

  • Petition signed by area residents and freeholders (Filed with Circuit Court).
  • Notice of Circuit Court review (Scheduled Hearing  August 29, 2018.  Oral Ruling in favor of petition was held on October 18, 2018).
  • Submittal in Support of the Incorporation of the Village of Greenville, WI.
  • Incorporation Review Board review (Application materials filed with DOA as of 3/8/2019).
  • Potential involvement of neighboring municipalities who may support or oppose the proposed incorporation;  - A public hearing was held April 29, 2019 from 3-7pm at Greenville Town Hall.  The following presentation was provided in support of the incorporation of the Village of Greenville.
  • A second public hearing is scheduled for July 23, 2019 in Madison, Wisconsin.
  • Incorporation Review Board will complete their final determination on August 14, 2019.
  • Referendum vote by residents.
  • Incorporation certificate from the Department of Administration, if the above steps in the process are met.

The Wisconsin Department of Administration provides the following Incorporation Flow Chart as a reference for the timing and elements of the incorporation process.

More specifically, the incorporation process begins with a pair of citizens' intention to circulate a petition for incorporation.  The intent to circulate a petition must be published as a class 1 notice.   A petition is then drawn up and circulated for signatures. The petition must designate a representative of the petitioners and an alternate. After enough signatures are gathered, the petition must be filed with the circuit court along with proof of publication. The circuit court then conducts a hearing on the petition. The court determines whether certain statutory standards are met, and whether any parties are entitled to intervene in the incorporation proceedings. If the court determines the map, legal description, population, and area standards are met, the petition is referred to the Department of Administration for analysis of the proposed incorporation. The Department may hold a public hearing on the petition if one is requested by any party of interest. The Department of Administration analysis is a critical part of the incorporation process. The Department is required to determine whether the proposed incorporation meets certain standards.  These standards include:

  • Characteristics of the Territory
  • Territory Beyond the Core
  • Tax Revenue.
  • Level of Services
  • Impact on the Remainder of the Town
  • Impact on the Metropolitan Community

If the Department of Administration approves the Incorporation petition, there would be a referendum to determine whether the Incorporation is approved by the voters within the area of the proposed incorporation.

Submittal in Support of the Incorporation of the Village of Greenville, WI

Draft Submittal in Support of the Incorporation of the Village of Greenville, WI


Map 1-01| Proposed Village
Map 1-02 |Aerial & Proposed Village
Map 1-03 |Metropolitan Community
Map 1-04 |Population Density Distribution
Map 1-05 |Population County by Census Tract Block
Map 1-06 |Urbanized Area
Map 1-07 |Tax Incremental Finance District
Map 1-08 |Commercial Industrial Economic Activities
Map 1-09 |Existing Land Use 2017
Map 1-10 |Housing County by Census Tract Block
Map 1-11 |Farmland Soil Classification
Map 1-12 |Agricultural Enterprise Area
Map 1-13 |Topography
Map 1-14 |Navigable Streams
Map 1-15 |Watersheds
Map 1-16 |Wetlands
Map 1-17 |Existing and Future Parks & Trails
Map 1-18 |School Districts
Map 1-19 |Zoning
Map 1-20 |Urbanized Subdivisions and Business Parks
Map 1-21 |Lands for Sale or Land Ready to Develop
Map 1-22 |Future Land Use
Map 1-23 |Functional Classification
Map 1-24 |Future Roads
Map 1-25 |Valley Transit
Map 1-26 |Sanitary District #2 Service Area
Map 1-27 |Stormwater Management Plan & MS4 Area
Map 1-28 |Sanitary District #1 & Sewer Service Area
Map 1-29 |Growth Areas in Intergovernmental Boundary Agreements
Map 1-30 |WIDNR Landfills and Contaminated & Cleaned Up Sites
Map 2-01 |MABAS & Auto Aid Coverage
Map 2-02 |Fox West Sewer Service Area
Map 3-01 |Sanitary District #1 Sanitary System
Map 3-02 |Sanitary District #1 Water System
Map 3-03 |Growth Areas in Intergovernmental Services Agreements


Exhibit 1-1 | Resolution Establishing Incorporation Oversight Committee
Exhibit 1-2 | Sports Complex Master Plan
Exhibit 1-3 | Chapter 320 Zoning Code
Exhibit 1-4 | 2019 Fox Cities Transportation Improvement Plan
Exhibit 1-5 | Town of Greenville Comprehensive Plan 2030
Exhibit 1-6 | Town of Greenville Five Year Comprehensive Outdoor Recreation Plan
Exhibit 1-7 | Town of Greenville Green Print Plan
Exhibit 1-8 | 2019-2023 Five Year Capital Improvement Plan
Exhibit 1-9 | Town of Greenville Five Year Strategic Plan
Exhibit 3-1 | 2019 Town of Greenville Annual Budget
Exhibit 3-2 | 2018 Moody’s Credit Report – Town of Greenville
Exhibit 3-3 | 2017, 2016 & 2015 Annual Financial Reports
Exhibit 4-1 | Assessor Contract with Accurate Appraisal, LLC
Exhibit 4-2 | Town Meeting Minutes Granting Village Powers
Exhibit 4-3 | Tax Incremental Finance District #1 Project Plan
Exhibit 4-4 | Law Enforcement Services Agreement
Exhibit 4-5 | 2017 Annual Public Service Commission Report Sanitary District #1
Exhibit 4-6 | Refuse Collection Contract with Harters of the Fox Valley
Exhibit 4-7 | Town Facilities – Statement of Values

Where can I find more information about incorporation?
Here are some helpful links which will provide additional information on incorporation:

Why incorporate the Town of Greenville?

  1. Preserve the Town of Greenville’s Identity and Character;
  2. Make Local Planning & Zoning Decisions and Improve Our Ability to Attract and Retain Businesses;
  3. Preserve Greenville’s Borders and Protect the Future of Our Community;
  4. Attract and Retain Businesses to the Region and Promote Infrastructure Improvement;
  5. Have the Ability to Be More Fiscally Sound and Finance Projects More Efficiently and Effectively;
  6. Ability to Receive a Better Bond Rating;
  7. Villages and Cities Have More Access to State and Federal Aids, Grants and Shared Revenues than Towns.
To read more about why to incorporate, click here.

What are the pros & cons of incorporation?
  • Protection of Borders
  • Preservation of Tax Base
  • Zoning Authority including Shoreland Zoning
  • Extra Territorial Authority
  • Land Division Autonomy
  • Complete Village Powers
  • Bonding Authority
  • Tax Increment Financing (TIF) without special restrictions
  • Potential for Improved Bond Ratings
  • Opportunity for More Grant Funds
Cons (possible depending on view point):
  • Elimination of the Town Meeting.  (e.g. approval of tax levy, land purchases/sales, Town facility construction, etc.; see Wis Stats. 60.10 )
  • Authority to fund private enterprise without Town Elector Approval
Will my taxes increase because of incorporation?
No, taxes will not increase because of incorporation. Tax rates are established based upon the service level requested by the Town residents, and the assessed valuation of the Town. The Town presently maintains a service level necessary for incorporation; hence, no additional services will be required because of incorporation.  

Furthermore, State law only allows a municipality to increase its levy over the amount it levied in the prior year by the percentage increase in equalized value from net new construction. If no new construction occurs, then the allowable levy increase is zero.  This law applies to counties, cities, villages and towns.

If incorporation occurs, will the newly created village seek the annexation of territory from surrounding Towns like Ellington, Hortonia, Grand Chute, etc.?
No, the current Town Board desires to enter into municipal boundary agreements with our adjacent Towns to protect their respective borders.   Based on the Town of Greenville’s current land area and proposed incorporation area, no additional territory is needed or desired for the foreseeable future.

Is it true that the new village would be required to provide for its own Police Department or a full- time Fire Department?  Would the Town be required to build a library or swimming pool?  
No, the Town of Greenville already maintains a service level necessary for incorporation— the Town would not be required to operate its own Police Department or a full-time Fire Department. Nor would the Town be required to build a library or community swimming pool.

Other Frequently Asked Questions (FAQs)

Who to contact?

Questions, comments or concerns can be directed to Town Administrator Joel Gregozeski.  Joel can be reached at (920) 757-5151 or by email at: