City Center

The City Center was identified as a major potential catalyst site in the Downtown Redevelopment Plan, based on its size (17 acres), location along the river, and the potential for mixed-use developments. Acquiring these properties creates an opportunity to advance key goals the community set as part of the downtown planning process.

There are many reasons why the City of Oshkosh is acquiring these properties:

• Building a dependable tax base for years to come
• Creating a more vibrant destination for residents and visitors
• Leveraging its prime riverfront location to attract new investment in downtown Oshkosh

While the businesses currently operating at City Center properties are valued and add to the vibrancy of our downtown, filling the vacant parcels on our riverfront will help the area reach its full potential. We anticipate that creative deliberation and redevelopment will position the City Center riverfront parcels as a major regional draw for downtown Oshkosh.

Potential uses of the City Center could include retail, housing, restaurants, office or civic spaces, public gathering spaces, and recreational amenities. Final uses will be shaped by community input, market demand, and planning studies.

This acquisition builds on other strategic investments the City has made in the downtown to help realize the goals of the Downtown Redevelopment Plan, such as:

• Mill on Main: This housing and commercial project is adding about 300 units and 20,000 square feet of commercial space to Oshkosh, transforming the downtown and revitalizing the Sawdust District. Mill on Main is expected to bring $47 million in new property value, along with renewed vibrancy to the District.
• ThedaCare: This new health campus is adding jobs and health access opportunities to downtown Oshkosh. Additionally, this project returns access to emergency rooms to downtown for the first time in 25 years. The taxable portion of the project is about $34 million - a sizable contribution to the property tax base.
• The Grand Oshkosh: Oshkosh's own opera house - a major tourist draw - will be renovated through a public-private partnership with the City and The Grand Oshkosh, Inc. Once complete, the economic benefit from the tourists drawn to the downtown for programming at The Grand is estimated to be $3.5 million annually, which is nearly double its current impact.

The City is collecting feedback from the public on this project in a variety of ways. Since Council has approved the purchase of the property, the public will have additional opportunities to participate through future meetings and other engagement opportunities related to any proposed plans or redevelopment. Most, though not necessarily all, of those meetings would include an opportunity for public comment.

The City conducted a survey for public input March 12 - April 12, 2026. We collected 1,646 responses and staff continues to analyze the results. A high-level summary of the results was provided to Council at their April 22, 2026 meeting. Both the recording of the April 22nd presentation and the slides from that presentation are available for review.

The public can also provide feedback via email to members of Plan Commission and/or members of Common Council

• Plan Commission: pc@oshkoshwi.gov
• Common Council: city_council@oshkoshwi.gov

Letters to members of Plan Commission and/or members of Common Council can be mailed to, or left in the drop box at, City Hall: 215 Church Ave, Oshkosh, WI 54901

What do community members want to see in the future of City Center?

This graphic highlights the priorities mentioned most often in survey feedback, with a strong focus on activity, connection, and downtown vitality.

Here's a look at how survey feedback was organized and reviewed.

This graphic shows the most common concerns raised by respondents, while also illustrating that favorable feedback still made up a strong majority overall.

Our community has been planning for how to more fully activate our downtown for more than 25 years, and public input has been sought throughout this planning process. Here is a brief timeline of some of that activity of the past, as well as planned activity going forward:

• 2000: Downtown Action Plan approved by Council on October 10, 2000
  • Minutes from October 10, 2000 meeting
• 2014: Riverfront Visioning Summary Report
  • Minutes from January 13, 2015 meeting where report was presented to Council
• 2017: Imagine Oshkosh: A Master Plan for Our Center City
  • Video of presentation from Houseal Lavine (November 14, 2017)
  • Discussion to approve the plan (same meeting)
  • Imagine Oshkosh: Existing Conditions Report
• 2018: City of Oshkosh Comprehensive Plan Update 2040
  • Video of presentation from ECWRPC (September 25, 2018)
• 2024: Downtown Redevelopment Plan
  • Presentation to Common Council (May 28, 2024)
  • Presentation to Parks Board (July 8, 2024)
• 2026, April 22: Presentations to Council at a special meeting
  • GO-EDC Presentation
  • City of Oshkosh Presentation on Survey Results
• 2026, May 6th: Public Information Open House
  • City staff from Community Development and GOEDC staff provided a brief presentation and answered questions regarding the potential project and downtown redevelopment.
• 2026, May 12th: Common Council meeting
  • Council approved a resolution to direct staff to proceed with an offer to purchase City Center.
• 2026, May 19th: Plan Commission meeting
  • Plan Commission reviewed the offer at their May 19th meeting and provided a recommendation for Council.
• 2026, May 26th: Common Council meeting
  • Council approved the offer to purchase at their May 26th meeting, which included a recommendation from Plan Commission.
• 2026, June 29th: Special Common Council Meeting
  • Council approved a professional services agreement with The Boldt Company for Oshkosh City Center design validation services.
  • Council approved a professional services agreement with Ramboll Americas Engineering Solutions, Inc. for environmental due diligence, environmental cost estimation, and hazardous materials estimation.
• 2026, August 4th: Public Engagement Meeting
  • City Staff from Community Development and GOEDC Staff will be available to provide City Center project updates and answer questions regarding the potential project

Environmental

Environmental Phase II costs have been requested from multiple entities:

• Ramboll: recommends a Phase II ESA to determine whether the RECs and HREC have impacted the property, a limited pre-demolition HMA, and development of estimated costs for potential future environmental remediation to manage identified environmental impacts during redevelopment. Cost $81,150, with possible reduction of $5,000-8,000 for asbestos abatement already completed.
• The contract with Ramboll Americas Engineering Solutions is finalized and initial kick off meeting completed with work to start end of July.

Structural Analysis

Staff has requested additional analysis concerning expansion joints, skylights, updated demo costs, and parking ramp estimates.

The contract with The Boldt Company is almost finalized. Kickoff meetings are planned for next week.

Financial Analysis

Ehlers to outline cost assumptions, suggested financial routes for acquisition including splitting between state trust fund and traditional debt, TIF analysis for creation and allocation of TIDs 15 & 17, rent rolls income, grant opportunities, raze costs, property costs including utilities and management and more.

Property Management

A Request for Proposal was posted with responses originally due by June 29 for property management services, including rent payment management, oversight of leases, vendors, and financial reporting, tenant communication and service responsiveness, maintenance of common areas, building systems, and site conditions, and ensuring consistent, high-quality property operations. The timeline for selecting a management partner through the RFP process has been extended, as a few companies were granted additional time to complete their submissions, shifting the overall selection process. Because the final selection must also be approved by City Council, the item is expected to be presented to Council in September.

Received proposals from multiple property management firms and City Staff is in the process of reviewing.

Public Engagement

Staff continues to update the city project page website including the survey data. Staff have posted QR code flyers at public facing places including collections windows, the Museum, the Zoo and park locations. A City manager Newsletter update is planned for July and community partners continue to be leaned on to share information as it becomes available. GOEDC is in the process of hiring a public relations firm to assist with messaging and narrative concerning the project.

Tenant Communications

Staff received a list of tenant emails on June 12. CM Grill has sent an initial email to the tenants to inform them of our due diligence actions and that we will continue to reach out as needed. Staff is currently working on a list of tenants to speak with who have longer leases and coordinating with the current property manager for notice purposes.

7/16/2026: Staff has begun meeting with tenants and will continue to do so for the next few weeks, coordinating with the current property manager for notice purposes.

What happens with the current tenants?

Current leases are in place and are being honored for the immediate future. Any changes affecting tenants will include transparent communication and transition planning over time if necessary.

What due diligence has the City completed?

City staff has already completed some initial due diligence on the property. This includes completed appraisals, a Phase I environmental review, and a structural report. If the property is purchased, staff would move forward with a more detailed analysis to evaluate any additional issues or needs. This added review would help the City better understand the property and plan for next steps.

What is planned for the site, and what will be the City's role?

Future uses for the site have not yet been determined. The redevelopment of the site will most likely take many steps over time, including an analysis of what needs in the community could be addressed by the development, the timing of the development in coordination with the Jackson Street Bridge, and what the total development could bring as a connection to the central downtown. City staff will be a part of the process and will seek public input at multiple key points in the redevelopment process.

The city is exploring the purchase as a way to guide future redevelopment of a key downtown riverfront site. Public ownership allows the community to shape the property’s long-term use, support economic growth and ensure the site aligns with planning goals. The vision is to create a mixed use, vibrant and publicly accessible riverfront district that strengthens downtown activity in partnership with private developers. Exact uses will be determined through public engagement, market feasibility, and planning.

The City and our partners, such as Greater Oshkosh Economic Development Corporation (GO-EDC), plan to work toward redevelopment that:

• Creates a distinctive downtown destination that rivals, but does not replicate, nearby cities.
• Connects Oshkosh's downtown with the riverfront through improved access, walkability, and visual cohesion.
• Increases property value, to expand the tax base and catalyze reinvestment in adjacent opportunity sites.
• Increases traffic to the site and surrounding area through a mix of uses and year-round activity.
• Develops a mix of housing, commercial, and public spaces that attract residents and new business, supports existing businesses, and stimulates continued development throughout the downtown area.
• Generates new employment opportunities by attracting a diverse range of employers, supporting small business growth, and creating jobs within the redeveloped space.

What is the long term financial impact for taxpayers?

By purchasing the site, taxpayers have a unique opportunity to guide the redevelopment that happens in their own downtown. Downtown investment is good for taxpayers because it helps the City get more value from infrastructure it already has, located in the heart of the community (as opposed to developments on our community edges); it strengthens the tax base in a compact area; it promotes increased foot traffic downtown, particularly for visitors; and it supports local business activity. A strengthened tax base means the financial impact of City services are spread across a bigger pie. Increased local business activity means more jobs. Added housing means more people living and spending in our community.

There will be additional costs associated with the redevelopment of the site, however, additional due diligence and analysis will need to be completed before staff will be able to outline what and how much those costs might be.

How is this being paid for?

There are a number of potential financing options to assist with the redevelopment of the site including, but not limited to the following:

Grant Opportunities

• Brownfield Grant (WEDC)
• Idle Site Loan (WEDC)
• Community Development Investment Grant (WEDC)
• Nonstate Grant (WI DOA)
• Potential support from state officials
• Community Project Funding - US Federal Appropriations
• Private fundraising

Other Funding Sources

• Tax incremental financing (TIF)
• State Trust Fund loans
• Resale of property

As this project develops, staff would continue to look for additional financial options.

How does this benefit our community?

Downtowns are often the emotional and economic center of a city. While Oshkosh benefits from a diverse economic landscape, spread throughout the community, our downtown houses historic landmarks and architecture, entertainment venues, and public gathering spaces. Strategic investment in our downtown can increase job opportunities, expand the tax base, encourage tourism, attract private investment, and support walkable, inclusive neighborhoods. When downtowns flourish, they often stimulate growth in other areas, generating a wave of positive change for a community.

Will City Hall move there?

Future uses for the site have not yet been determined. However, City staff do not believe that locating municipal offices on prime riverfront property is the highest and best use of the site and, therefore, are recommending against the idea of moving City Hall to the site.

The City Center project involves real estate, environmental, financial, and redevelopment terms that may not be familiar to all readers. These plain-language definitions are intended to help community members follow the City’s due diligence and decision-making process.

Property Purchase and Decision Process

Closing

The final step in a real estate purchase when ownership of the property would officially transfer to the City.

Contingent

Dependent on certain conditions being met. The proposed purchase remains contingent because the City may only move forward if due diligence results are satisfactory and all agreement conditions are fulfilled.

Due Diligence

A review period that allows the City to study the property in more detail before completing a purchase. This may include environmental, structural, financial, title, tenant, lease, and redevelopment feasibility reviews.

Offer to Purchase

A formal agreement that outlines the proposed terms for the City to purchase the property. Approval of an Offer to Purchase does not mean the purchase is final.

Title Review

A review of property records to confirm ownership and identify any legal matters that may affect the property, such as easements, liens, restrictions, or other recorded interests.

Property Operations and Procurement

Property Management

The day-to-day operation of a property, which may include tenant communication, rent collection, lease oversight, maintenance coordination, financial reporting, and upkeep of common areas.

Request for Proposals / RFP

A public process the City uses to invite qualified firms to submit proposals for a service, such as property management.

Environmental Review

Brownfield

A property where redevelopment may be complicated by actual or perceived environmental contamination.

Environmental Remediation

The cleanup, treatment, removal, or management of environmental contamination or hazardous materials.

Hazardous Materials Assessment / HMA

A review to identify materials that may require special handling, removal, or disposal, such as asbestos-containing materials or lead-based paint.

Historical Recognized Environmental Condition / HREC

A past environmental concern that has been addressed or closed under applicable standards, but is still noted because of the property's history.

Phase I Environmental Site Assessment

An initial environmental review that looks at current and past property uses to identify potential environmental concerns.

Phase II Environmental Site Assessment

A more detailed environmental review that may include sampling soil, groundwater, vapor, or building materials to better understand potential environmental conditions.

Recognized Environmental Condition / REC

A potential environmental concern identified during an environmental review. A REC may indicate that additional study is needed.

Building and Site Review

Design Validation Services

Professional review services used to test assumptions about a building or site, such as structural conditions, cost estimates, redevelopment concepts, or design options.

Raze Costs

Estimated costs to demolish or remove a building or structure. These costs may include demolition, disposal, hazardous material handling, utility disconnection, site restoration, and permitting.

Structural Analysis

A review of the building's physical condition, including major structural components and systems, to help the City understand safety considerations, repair needs, and potential long-term costs.

Financial Tools and Analysis

Tax Incremental Financing / TIF

A municipal financing tool that allows a city to use future increases in property tax revenue from a defined area to help pay for eligible project costs.

TIF Analysis

A financial review that estimates how redevelopment may increase property value over time and whether future tax increment could help pay for eligible project costs.

Project Partners

Ehlers

The City's financial advisor for this project. Ehlers is assisting with financial analysis, cost assumptions, financing options, TIF analysis, and related fiscal considerations.

GO-EDC / Greater Oshkosh Economic Development Corporation

A local economic development partner that works with the City and other organizations to support business growth, investment, redevelopment, and economic development opportunities.

Ramboll Americas Engineering Solutions

The environmental consulting firm assisting with environmental due diligence, environmental cost estimates, and hazardous materials review.

The Boldt Company

The firm assisting the City with design validation services, including review of structural conditions, cost estimates, and site-related considerations.

WEDC / Wisconsin Economic Development Corporation

The State of Wisconsin's economic development organization. Some potential grant or loan programs referenced on the page may involve WEDC.

City Center Appraisal

Boldt Executive Summary - City Center