HomeMy WebLinkAbout9.16.20 Full Agenda Revised REDEVELOPMENT AUTHORITY
of the City of Oshkosh
c/o Community Development Department
215 Church Ave., PO Box 1130
Oshkosh, WI 54902-1130 (920) 236-5055
(920) 236-5053 FAX
http://www.ci.oshkosh.wi.us
H. ALLEN DAVIS
Executive Director
LORI PALMERI
Chairman
REDEVELOPMENT AUTHORITY
OF THE CITY OF OSHKOSH
September 16, 2020 4:00 p.m.
City Hall Room 404
REVISED
Due to the current COVID-19 emergency, persons attending meetings will be required to comply
with current restrictions related to social distancing. While in person comment is permitted for
individual agenda items, citizens may and are encouraged to consider submitting written
comments. Written public comments may be sent via mail addressed to the Community
Development Office, placed in the City Hall dropbox, or sent by e-mail prior to the
Redevelopment Authority meeting at: amaier@ci.oshkosh.wi.us; written comments will be
distributed to the board and made part of the public record of the meeting.
ROLL CALL
CONSENT
Approve Minutes from August 25, 2020
NEW BUSINESS
Arena Update
Public Hearing: Consolidated Annual Performance and Evaluation Report (CAPER)
2019
Community Gardens Update
EXECUTIVE DIRECTOR’S REPORT
Next Meeting November 18, 2020
MOTION TO GO INTO CLOSED SESSION: The Redevelopment Authority may convene
into Closed Session to discuss the purchase of 413 Scott Avenue, 630 N. Main Street, and 640 N.
Main Street pursuant to Section 19.85(1)(e) of the Wisconsin State Statutes where competitive
bargaining reasons require a closed session.
ADJOURNMENT
This meeting will be available live on Channel 10 in the City of Oshkosh, live streamed on
oshkoshmedia.org, live on WOCT radio station 101.9fm, live through Roku, Apple TV, and
Amazon Fire Stick. You may also view the meeting later on oshkoshmedia.org and the
Oshkosh Media YouTube channel. If anyone requires other reasonable accommodation,
please contact amaier@ci.oshkosh.wi.us, phone 920-236-5055.
RDA Minutes August 25, 2020 Page 1
REDEVELOPMENT AUTHORITY SPECIAL MEETING MINUTES
August 25, 2020
PRESENT: Jack Bermingham, Jason Lasky, Lori Palmeri, Steve Hintz, Susan Panek
EXCUSED: Thomas Belter, Archie Stam
STAFF: Allen Davis, Executive Director/Community Development Director; Darlene
Brandt, Grants Coordinator; Anna Maier, Recording Secretary
Chairperson Palmeri called the meeting to order at 9:00am. Roll call was taken and a quorum
declared present.
The minutes and closed session minutes of July 15, 2020 were approved as distributed.
Public Hearing Spot Blight Designation; 668 N. Main St.
No one appeared for the public hearing.
20-16 Approve Spot Blight Designation; Approve Acquisition of Property at 668 N. Main St.
($45,000)
Motion by Bermingham to move Res. 20-16
Seconded by Hintz.
Mr. Davis stated that the impetus for the acquisition are the Jefferson Street projects and trying to
get a larger project combining Jefferson Street parcels and some properties that could use
redevelopment on North Main Street. RDA discussed this about this a year ago and there is a local
development group that is interested in the larger project if multiple parcels are acquired. There
would still need to be additional parcels acquired to the south, but then it could be combined with
the developer’s parcels even further to the south and basically all the way down to the end of the
RDA properties. It would have frontage on both Main Street and Jefferson Street. This acquisition
would help make that happen. By itself this lot has no parking and no access. It can really be a
walk-up bar and that’s about it. The individual who acquired it last year found it was not
economically feasible to rehab the building. According to our building inspectors, there’s so much
deferred maintenance that it really needs to come down. If the RDA does not acquire it, the owner
would likely sell it to someone who might be able to develop it, but that would make it more
difficult to complete the larger project. Acquiring this does not guarantee the completion of the
project, but it does make the completion more likely. This will be on council agenda tonight as
well, so Mr. Davis will bring RDA’s decision to the meeting tonight.
Ms. Panek asked what the all-in cost including demolition and everything else is if RDA purchases
for $45,000.
RDA Minutes August 25, 2020 Page 2
Mr. Davis replied that city crews would be taking it down. There’s going to be some tipping fees
and asbestos removal.
Ms. Brandt stated that there would be an additional $15,000 to $20,000 maximum.
Ms. Panek asked what the selling price to the developer would be.
Ms. Brandt replied that it would be the assessed value of the land.
Ms. Panek asked if the assessed value of the land is $45,000.
Mr. Davis replied that the assessed value of the land is less than $45,000.
Ms. Panek asked if RDA has the money.
Mr. Davis replied that the City does have the money.
Ms. Panek asked if staff had checked with the developer to see if they are still interested in
completing the project.
Mr. Davis replied that the developers are still very interested.
Ms. Brandt stated that the land value is around $20,000.
The item was called. Motion carried 5-0.
20-17 Authorize Land Disposition of Property at Corner of 6th Avenue and Michigan
St. ($11,000)
Motion by Bermingham to move Res. 20-17
Seconded by Lasky.
Mr. Davis stated that an old, blighted bar was at the site which was offered to the RDA. The RDA
demolished the property and it has been a green field since. The neighbor to the north has
expressed interest in the acquisition of the lot.
Ms. Brandt stated that they want to expand their current lot because it is a corner lot. They don’t
have much backyard and they have a family.
Ms. Palmeri asked if it was a residential lot.
Ms. Brandt replied yes. They are looking for more residential green space.
The item was called. Motion carried 5-0.
RDA Minutes August 25, 2020 Page 3
Executive Director’s Report
Mr. Davis provided updates to the RDA.
There was no further discussion. The meeting adjourned at approximately 9:10AM.
(Panek/Bermingham)
Respectfully submitted,
Allen Davis
Executive Director
TO: City of Oshkosh Redevelopment Authority
FROM: Allen Davis, Community Development Director
DATE: September 9, 2020
SUBJECT: September 16, 2020 RDA Meeting Agenda items
NEW BUSINESS
Arena Update
The City Attorney will be present to brief the RDA on the status of the bankruptcy and
conveying the land from the RDA to Fox Valley Pro Basketball (FVPB). FVPB has made
the August 2020 payments for real and personal property taxes, special events charges,
special assessments and utilities as required in the Development Agreement.
Public Hearing – Consolidated Annual Performance and Evaluation Report 2019
(CAPER)
The RDA will need to open and close the public hearing in case the public appears at
the RDA meeting. City staff provides the Department of Housing and Urban
Development (HUD) with the annual CAPER as required by Community Development
Block Grant (CDBG) regulations. This Public Hearing is an opportunity for the public
to comment on the results of the City’s recent CDBG activities.
The City has met all the CDBG spending criteria that HUD requires for CDBG
expenditures. These criteria are created and monitored by HUD, and non-compliance
with these regulations would jeopardize the City’s CDBG funding.
The CDBG spending activities resulted in a benefit to Low to Moderate Income (LMI -
up to 80% of County Median Income) of 78.1%. HUD minimum performance for LMI
benefit is 70%, so the City met that requirement.
The Public Service CDBG funding the City provided to a variety of non-profit
organizations for LMI programs was 10.8%. The HUD maximum for Public Services is
capped at 15%. The City also met this requirement.
The Planning and Administration of the CDBG funding that is paid to the City for using
City staff to implement the programs and activities throughout the year was 13.2%. The
HUD maximum for Planning and Administration is 20%, so the City also met that
requirement.
City staff will provide additional information and detail at the RDA meeting.
Community Gardens Update
Staff has created a draft Request for Proposals (RFP) for the RDA-owned sites that
would be possible community garden sites. After RDA input at this meeting, staff plans
to send this RFP out to the public in short order.
CAPER 1
OMB Control No: 2506-0117 (exp. 06/30/2019)
CITY OF OSHKOSH
2019 Consolidated Annual Performance and Evaluation Report (CAPER)
Community Development Block Grant Program
Program Year: May 1, 2019 – April 30, 2020
CR-05 - Goals and Outcomes
Progress the jurisdiction has made in carrying out its strategic plan and its action plan.
91.520(a)
This could be an overview that includes major initiatives and highlights that were proposed and
executed throughout the program year.
The Consolidated Plan is designed to help local jurisdictions assess their affordable housing and
community development needs. The consolidated planning process services as the framework for a
community-wide dialogue to identify housing and community development priorities. In the
Consolidated Annual Performance and Evaluation Report (CAPER), grantees repot on accomplishments
and progress toward Consolidated Plan goals in the prior year.
This is the fifth and final year of the 2015-2019 Consolidated Plan. During the 2019 Program year the
City of Oshkosh invested over $1 million of its Federal housing and community development block grant
funds and program income in the community's future. Completed projects and activities met the
objectives of the 2015-2019 Consolidated Plan and 2019 Annual Action Plan through creation of suitable
living environments; providing safe, decent, affordable housing; and creating economic development
opportunities. The last half of the program year was challenging for many of the subrecipients due to
the COVID pandemic. Oshkosh’s overall numbers may appear lower than in the first four years of the
reporting period, but City staff worked with, and continues to work with, local, state and federal
agencies in providing needed services to LMI households and persons in the community during these
trying times.
CAPER 2
OMB Control No: 2506-0117 (exp. 06/30/2019)
CAPER 3
OMB Control No: 2506-0117 (exp. 06/30/2019)
Assess how the jurisdiction’s use of funds, particularly CDBG, addresses the priorities and
specific objectives identified in the plan, giving special attention to the highest priority
activities identified.
During the 2019 Program Year, the City of Oshkosh's use of CDBG funds was consistent with the goals,
priorities and objectives described in both its 2015-2019 Consolidated Plan and its 2019 Annual Action
Plan. The City's priorities in 2019 were affordable housing through its housing rehabilitation and
downpayment assistance program ($432,680 spent during the program year), acquisition and
demolition of slum and blight properties ($150,206); and provided funding assistance to 12 public
service agencies ($101,713) to provide direct needed services to low and moderate income persons /
households in the community, including the local warming shelter that provides support services to
individuals experiencing homelessness.
The City did not meet the goal of acquiring and rehabilitating one single family home within a
neighborhood association during the 2019 Program Year. The condition of the properties acquired
during this program year did not warrant rehabilitation and the properties were demolished.
CAPER 4
OMB Control No: 2506-0117 (exp. 06/30/2019)
The City's average number of owner occupied homes that are rehabilitated during a given program year
has been descreasing over the past five years. Eleven homes were rehabilitated during the 2019
Program Year and downpayment assistance provided to one homebuyer. While the timeliness of the
award and release of funding is beyond discretionary control, and some homeowners who were
tentatively approved withdrew from the program, the City intends to continue the housing
improvement program to provide safe, decent, affordable housing options for low to moderate income
persons and households.
One of the public service agencies funded by the City is the Day by Day Warming Shelter which is open
from October to April, and has a limited 25 bed temporary facility. The Warming Shelter has had to turn
away individuals seeking shelter due to the limited beds. However, other agencies not funded by the
City also provide overnight emergency shelter for homeless individuals, but those numbers are not
included within this report. If those uncounted additional beds were included, the number of persons
seeking shelter would exceed the anticipated 500 homeless persons assisted during the program year.
All projects and activities carried out by the City during the 2019 program year utilized 2019 CDBG
entitlement funds, as well as prior years funds not yet spent. Program income received from repayment
of housing rehabilitation loans and vacant lots sold, is placed in a Revolving Loan Fund account and
those funds are spent on approved housing rehab projects before the current year CDBG funds allocated
for housing improvements is spent. The City of Oshkosh does not receive HOME funds.
CAPER 5
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-10 - Racial and Ethnic composition of families assisted
Describe the families assisted (including the racial and ethnic status of families assisted).
91.520(a)
CDBG HOME
White 27179 0
Black or African American 4005 0
Asian 1811 0
American Indian or American Native 317 0
Native Hawaiian or Other Pacific Islander 48 0
American Indian/Alaskan Native & White 7 0
Black/African American & White 32 0
Amer Indian/Alask Native&Black/African Amer 5 0
Other Multi-Racial 16557 0
Total 49961 0
Hispanic 1475 0
Not Hispanic 49961 0
Table 1 – Table of assistance to racial and ethnic populations by source of funds
Narrative
In all cases the numbers reported are individuals. In some cases, depending on the activity,
those individuals are reported as female head of household, elderly or handicapped and may
represent other individuals in the household.
CAPER 6
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-15 - Resources and Investments 91.520(a)
Identify the resources made available
Source of Funds Source Resources Made
Available
Amount Expended
During Program Year
CDBG public - federal 835,154
HOME public - federal 0
Table 2 - Resources Made Available
Narrative
The 2019 CDBG allocation was $835,154. Revolving loan fund program income ($211,606) received
during the 2019 PY was spent on housing rehabilitation projects undertaken during the program year.
Funds expended during the program year ($822,931) also include funds awarded to activities/projects in
prior years that were not spent until the 2019 program year. For example, housing rehab projects may
span the course of a couple of program years depending on when a rehab project is approved and when
the work is completed.
Identify the geographic distribution and location of investments
Target Area Planned Percentage of
Allocation
Actual Percentage of
Allocation
Narrative Description
Oshkosh Priority Areas 100 100 City-wide
Table 3 – Identify the geographic distribution and location of investments
Narrative
In the 2019 Program Year, the City continued to target its investments in low to moderate income
census tracts, neighborhoods with recognized neighborhood associations, and neighborhoods impacted
by slum and blight properties. The housing rehabilitation program is offered city-wide to LMI income
eligible households. 78% of the 2019 program year expenditures were spent on benefitting low to
moderate income persons/households. Any carry over funds from the 2019 Program Year will be spent
in the coming program year.
CAPER 7
OMB Control No: 2506-0117 (exp. 06/30/2019)
Leveraging
Explain how federal funds leveraged additional resources (private, state and local funds),
including a description of how matching requirements were satisfied, as well as how any
publicly owned land or property located within the jurisdiction that were used to address the
needs identified in the plan.
During the 2019 Program Year, CDBG funds were used to leverage additional public service
funds as the City continued to partner with Oshkosh Area United Way and Oshkosh Area
Community Foundation – known as the Public Service Consortium. A total of $117,000 in CDBG
fundsd was available for public service activities during the 2019 Program
Year. Twelve programs were funded during the program year. Over $3.6 million in matching
funds was leveraged from the agencies funded. Refer to the 2019 Oshkosh Public Service
Consortium Funding Worksheet in the Appendix.
Fiscal Year Summary – HOME Match
1. Excess match from prior Federal fiscal year
2. Match contributed during current Federal fiscal year
3 .Total match available for current Federal fiscal year (Line 1 plus Line 2)
4. Match liability for current Federal fiscal year
5. Excess match carried over to next Federal fiscal year (Line 3 minus Line 4)
Table 4 – Fiscal Year Summary - HOME Match Report
The City of Oshkosh does not receive HOME funds.
CAPER 8
OMB Control No: 2506-0117 (exp. 06/30/2019)
Match Contribution for the Federal Fiscal Year
Project No. or
Other ID
Date of
Contribution
Cash
(non-Federal
sources)
Foregone
Taxes, Fees,
Charges
Appraised
Land/Real
Property
Required
Infrastructure
Site
Preparation,
Construction
Materials,
Donated labor
Bond
Financing
Total Match
The City of
Oshkosh does
nost receive
HOME funds
n/a n/a n/a n/a n/a n/a n/a n/a
Table 5 – Match Contribution for the Federal Fiscal Year
HOME MBE/WBE report
Program Income – Enter the program amounts for the reporting period
Balance on hand at
begin-ning of reporting
period
$
Amount received during
reporting period
$
Total amount expended
during reporting period
$
Amount expended for
TBRA
$
Balance on hand at end
of reporting period
$
The City of Oshkosh does
not receive HOME funds
0 0 0 0
Table 6 – Program Income
CAPER 9
OMB Control No: 2506-0117 (exp. 06/30/2019)
Minority Business Enterprises and Women Business Enterprises – Indicate the number and dollar
value of contracts for HOME projects completed during the reporting period
Total Minority Business Enterprises White Non-
Hispanic Alaskan
Native or
American
Indian
Asian or
Pacific
Islander
Black Non-
Hispanic
Hispanic
Contracts
Number 0 0 0 0 0 0
Dollar
Amount
0 0 0 0 0 0
Sub-Contracts
Number 0 0 0 0 0 0
Dollar
Amount
0 0 0 0 0 0
Total Women
Business
Enterprises
Male
Contracts
Number 0 0 0
Dollar
Amount
0 0 0
Sub-Contracts
Number 0 0 0
Dollar
Amount
0 0 0
Table 7 - Minority Business and Women Business Enterprises
Minority Owners of Rental Property – Indicate the number of HOME assisted rental property owners
and the total amount of HOME funds in these rental properties assisted
Total Minority Property Owners White Non-
Hispanic Alaskan
Native or
American
Indian
Asian or
Pacific
Islander
Black Non-
Hispanic
Hispanic
Number 0 0 0 0 0 0
Dollar
Amount
0 0 0 0 0 0
Table 8 – Minority Owners of Rental Property
CAPER 10
OMB Control No: 2506-0117 (exp. 06/30/2019)
Relocation and Real Property Acquisition – Indicate the number of persons displaced, the cost of
relocation payments, the number of parcels acquired, and the cost of acquisition
Parcels Acquired 0
Businesses Displaced
Nonprofit Organizations
Displaced
Households Temporarily
Relocated, not Displaced
Households
Displaced
Total Minority Property Enterprises White Non-
Hispanic Alaskan
Native or
American
Indian
Asian or
Pacific
Islander
Black Non-
Hispanic
Hispanic
Number 0 0 0 0 0 0
Cost 0 0 0 0 0 0
Table 9 – Relocation and Real Property Acquisition
CAPER 11
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-20 - Affordable Housing 91.520(b)
Evaluation of the jurisdiction's progress in providing affordable housing, including the
number and types of families served, the number of extremely low-income, low-income,
moderate-income, and middle-income persons served.
One-Year Goal Actual
Number of Homeless households to be
provided affordable housing units 0 0
Number of Non-Homeless households to be
provided affordable housing units 15 11
Number of Special-Needs households to be
provided affordable housing units 0 0
Total 15 11
Table 10 – Number of Households
One-Year Goal Actual
Number of households supported through
Rental Assistance 0 0
Number of households supported through
The Production of New Units 0 0
Number of households supported through
Rehab of Existing Units 15 11
Number of households supported through
Acquisition of Existing Units 2 6
Total 17 17
Table 11 – Number of Households Supported
Discuss the difference between goals and outcomes and problems encountered in meeting
these goals.
CDBG funds are used to foster and maintain affordable housing primarily through the owner occupied
and rental rehabilitation programs. The City did not receive any applications for rental rehab assistance
during the program year.
CAPER 12
OMB Control No: 2506-0117 (exp. 06/30/2019)
The City also addresses housing needs of the community through public service activities. The funding
of organizations that include the Advocap Bridges Emergency Assistance Program, Day by Day Warming
Shelter and Christine Ann Shelter provide a support network for those in unfit housing or finding
themselves displaced. The City will continue to fund these types of public service agencies in future
years as long as CDBG funding is available.
The City's average number of owner occupied homes that are rehabilitated during a given program year
has decreased over the term of this Consolidated Plan. Eleven homes were rehabilitated during the
2019 Program Year and downpayment assistance was provided to one homebuyer. The City is not sure
why there has been a decline in the interest of this program, but the City intends to continue the
housing improvement program to provide safe, decent, affordable housing options for low to moderate
income households. The City may consider changes to the program to address more exterior work than
interior work, especially given the pandemic crisis during the last half of the 2019 program year which
prevented contractors from working on projects all together for several months.
Discuss how these outcomes will impact future annual action plans.
The City will continue to fund public service activities, and the housing improvement program, as well as
provide downpayment type assistance to income eligible homebuyers to make significant progress in its
goal of creating and preserving affordable housing in the City.
Include the number of extremely low-income, low-income, and moderate-income persons served by each activity where information on income by family size is required to determine the eligibility of the activity.
Number of Households Served CDBG Actual HOME Actual
Extremely Low-income 3 0
Low-income 3 0
Moderate-income 6 0
Total 12 0
Table 12 – Number of Households Served
Narrative Information The City’s housing improvement program benefits low to moderate income households. Public Service funded activities are presumed to benefit low and low to moderate income persons.
CAPER 13
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-25 - Homeless and Other Special Needs 91.220(d, e); 91.320(d, e); 91.520(c)
Evaluate the jurisdiction’s progress in meeting its specific objectives for reducing and ending
homelessness through:
Reaching out to homeless persons (especially unsheltered persons) and assessing their
individual needs
Housing and support services for the homeless are provided by a local network of public and private
agencies. The City assists with funding of these activities through the Public Services Consortium.
ADVOCAP deals with homelessness through its Homeless Programs Department and is taking the
leadership role in actively pursuing, obtaining and administering federal funding to address local
homeless needs. The agency has a HUD Supportive Housing Program (Supportive Services Only) award
to provide intensive case management and wraparound services to work with homeless persons and
families access permanent housing, obtain employment or increased income and achieve greater self-
sufficiency through their overcoming barriers. The agency also serves as the fiscal agent for state-funded
homeless prevention programs (State of Wisconsin HUD ESG, State Transitional Housing and State
Homeless Prevention Program Funds). ADVOCAP coordinates a twice a year point-in-time survey of
homelessness in the area, which local agencies participate in.
ADVOCAP also operates a homeless prevention program known as the “Bridges Emergency Assistance
Program”, which provides assistance to LMI persons who had temporary emergency needs related to
rental and utility payments, bus passes, gas vouchers, car repairs, work boots, insurance application fees
and vouchers.
During the 2015 program year, the local warming shelter (Day by Day) developed a resource
coordination program to assist guests from their initial intake to progressions and completion of goals
promoting independence, stability and self sufficiency. The program was successful and has continued
to operate during the 2019 program year. The program is designed to improve quality of life by giving
chronically homeless adults a place to receive coordinated assistance to help meet their needs without
the stigma of having to make trips to multiple agencies.
Advocap conducted a point in time count in late January, 2020 which identified an estimated 95
sheltered and 6 unsheltered persons. As part of the point in time count, sheltered and unsheltered
needs and demographics were collected, and blankets, personal care items, clothing and services
information were provided.
CAPER 14
OMB Control No: 2506-0117 (exp. 06/30/2019)
Addressing the emergency shelter and transitional housing needs of homeless persons
There are 207 emergency and transitional beds available for men, women and children :
ADVOCAP has two units of transitional housing (16th Avenue & Mt Vernon Avenue homes)
Christine Ann Domestic Abuse Services Inc. operates a 35-bed shelter for female victims of
domestic violence and their children.
Day by Day Warming Shelter operates a 25-bed seasonal emergency shelter that serves a small
but definite population of men and women
Father Carr’s Place 2B operates 75 beds for women and children.
Additionally, Father Carr’s operates 75 beds for men only.
The Salvation Army also provides emergency motel vouchers during periods when the shelters are full.
They also provide rent and utility help for those unable to obtain assistance through other services.
Helping low-income individuals and families avoid becoming homeless, especially extremely
low-income individuals and families and those who are: likely to become homeless after
being discharged from publicly funded institutions and systems of care (such as health care
facilities, mental health facilities, foster care and other youth facilities, and corrections
programs and institutions); and, receiving assistance from public or private agencies that
address housing, health, social services, employment, education, or youth needs
A variety of efforts were undertaken by the City and CoC agencies to prevent homelessness. Through
monthly meetings these varied perspectives, challenges, resources and successes are shared and cross
cutting solutions developed. The primary preventative services offered by different provider
organizations included emergency fuel assistance and food and meals programs, emergency rental
assistance, financial assistance, utility assistance, housing relocation and stabilization services,
counseling/advocacy and legal assistance. Each service sought to help families in their home by offering
services and support during times of financial and legal difficulty. Clients were offered followup case
management services consisting of but not limited to, creating and maintaining an accurate budget,
assistance increasing income (e.g. applying for public benefits), connecting to community resources (e.g.
food pantries and clothing programs), and other referrals driven by the needs of goals of the client.
CDBG Public Service Consortium funds helped community providers and residents access services,
information, prevention and referral.
CAPER 15
OMB Control No: 2506-0117 (exp. 06/30/2019)
Helping homeless persons (especially chronically homeless individuals and families, families
with children, veterans and their families, and unaccompanied youth) make the transition to
permanent housing and independent living, including shortening the period of time that
individuals and families experience homelessness, facilitating access for homeless individuals
and families to affordable housing units, and preventing individuals and families who were
recently homeless from becoming homeless again
The Winnebagoland Housing Coalition meets monthly to facilitate conversations and coordinate efforts
amongst the many separate agencies serving homeless, veterans, youth, families, housing and shelter
providers, and at risk support providers, to develop systems that address the individual and complex
needs of Oshkosh residents experiencing homelessness. The group includes homeless service providers,
local government, Housing Authority, United Way, faith based groups and others concerned with
housing issues, as well as the local COC. Homeless service providers also maintain continuing contact
with other agencies that may not be active members of the Housing Coalition to facilitate homeless
participants accessing services in a timely manner or to assure appropriate referral of persons by other
agencies, county mental health agencies, and Family Services.
CAPER 16
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-30 - Public Housing 91.220(h); 91.320(j)
Actions taken to address the needs of public housing
Oshkosh/Winnebago County Housing Authority works to promote and deliver adequate and affordable
housing and suitable living environments free from discrimination. Their mission is to promote and
ensure safe, decent, and affordable housing for their participants, as well as provide owners and
developers with an opportunity to rehabilitate and develop affordable housing.
Formed in 1970, the Housing Authority owns, manages and maintains 616 housing units that are
subsidized with rents based on 30% of adjusted incomes, of which 471 are in the City of Oshkosh. The
properties range from scattered site single family homes to 14-story high rise buildings. Affordable
housing opportunities are available for families, singles, disabled, and elderly low-income
applicants. The Authority also administers over 400 Housing Choice Vouchers, owns and maintains a
group home, and coordinates a family self-sufficiency program.
The Housing Authority recognizes their participants as their primary focus, works in partnership with
community and government organizations to promote affordable housing options, acts as an agent of
change when performance is unacceptable, continues to strive for public trust and confidence through
good communication and being responsive to the needs of their participants and the community, and
identifies and works to eliminate barriers that prevent it from achieving their goals as a housing
authority.
The City will continue to support the Housing Authority as public housing project needs are identified.
Actions taken to encourage public housing residents to become more involved in
management and participate in homeownership
The Housing Authority encourages its residents to participate in various activities and programs to
improve themselves and make themselves more self-sufficient. The Housing Authority offers first time
homebuyer education classes and credit counseling for those residents interested in
homeownership. The City would provide downpayment assistance to income eligible homeowners.
The Authority offers a Family Self-Sufficiency (FSS) program to help housing choice voucher and public
housing family unit recipients attain self-sufficiency through education advancement, employment skill
development, access to community resources, home ownership opportunities and development of
financial assets with the goal of improving their family's financial situation and overall quality of life.
CAPER 17
OMB Control No: 2506-0117 (exp. 06/30/2019)
Actions taken to provide assistance to troubled PHAs
The Oshkosh/Winnebago County Housing Authority is not a troubled housing authority.
CAPER 18
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-35 - Other Actions 91.220(j)-(k); 91.320(i)-(j)
Actions taken to remove or ameliorate the negative effects of public policies that serve as
barriers to affordable housing such as land use controls, tax policies affecting land, zoning
ordinances, building codes, fees and charges, growth limitations, and policies affecting the
return on residential investment. 91.220 (j); 91.320 (i)
Specific actions were taken to remove or ameliorate the negative effects of public policies that serve as
barriers to affordable housing including providing land for a variety of housing types, review of zoning
and land use updates, continuing to educate the public on the need for affordable housing, and offered
a diversity of affordable housing programs.
The City has contracted with the Milwaukee Fair Housing Council for several years and the City's Fair
Housing Ordinance was revised to reflect the current structure for investigation and disposition of
complaints through a third party contractor (Fair Housing Council) as needed.
The City of Oshkosh continues to administer a voluntary Residential Rental Registration and Inspection
program. The City-wide program is voluntary and provides for the registration and inspection of
residential rental dwelling units in the City to ensure units provide safe, decent and sanitary living
conditions for tenants and to prevent further deterioration of those units. This program went into effect
January 1, 2018.
Actions taken to address obstacles to meeting underserved needs. 91.220(k); 91.320(j)
City staff participates in monthly meetings of the Winnebagoland Housing Coalition, of which the local
Continuum of Care is a participant. This coalition includes members from United Way, the
Oshkosh/Winnebago County Housing Authority, Habitat for Humanity, and several other housing related
service providers such as ADVOCAP, The Salvation Army, Day by Day Warming Shelter, Father Carr's
Place 2 Be and the American Red Cross.
Several internal City departments such as Public Works, Forestry, and Police have participated in
implementation and planning efforts including neighborhood watch and neighborhood association
planning, and neighborhood improvements, as well as the City-wide eligible owner occupied housing
improvement program. With City staff coordinating implementation with other departments and
outside agencies, any potential obstacles are being addressed on tailored approach versus a one-size fits
all approach.
CAPER 19
OMB Control No: 2506-0117 (exp. 06/30/2019)
Actions taken to reduce lead-based paint hazards. 91.220(k); 91.320(j)
The City continues to implement applicable HUD lead paint regulations in owner and renter-occupied
housing rehabilitation projects. The City collaborates with the County Health Department to provide
CDBG rehabilitation assistance to income qualified owner-occupied households with children who have
elevated lead blood levels. The City’s Housing Rehabilitation Specialist is trained to use the City’s XRF
lead testing machine.
In every assisted project, the participants, whether homeowners, renters, landlords or contractors, are
notified and advised of the hazards of lead based paint. All contractors used to perform lead hazard
reduction work must be trained and certified by the State in a lead hazard reduction discipline and
associated with a certified lead company. The City prefers to work with State Certified general
contractors as part of the housing improvement programs, as most projects disturb lead based paint or
control/abate lead paint hazards. However, the general contractor may subcontract the lead work to a
certified lead contractor.
Actions taken to reduce the number of poverty-level families. 91.220(k); 91.320(j)
In considering the factors affecting poverty that may be impacted by the existing housing programs of
the City, it appears that coordination of production and preservation of affordable housing as well as the
Public Service programs and services targeted to special needs populations benefit and help to reduce
the numbers of families below the poverty level. While these activities may not increase the income of
these persons, the activities aid in reducing their cost burden.
The City will be reducing the housing cost burden on these households to some extent in completing
rehabilitation projects on properties owned by households below the poverty level limits. The reduction
in housing cost burden will result from actions that reduce energy costs and reduce the cost of repairs
needed to keep the home in habitable condition. The City recognizes that while this in itself will not
increase the level of income of these households, it will make more domestic funds available to cover
other expenses.
Additionally, the City requires owner-occupants applying for CDBG housing rehabilitation programs who
have a large volume of debt to participate in free budget counseling as a condition of housing
rehabilitation loan approval. This policy is based on the position that the rehabilitation loan is a
partnership effort with the City and bringing the house into livable condition while attempting to ensure
that the owner is in a financial position to keep up the home may reduce the possibility of the house
falling into future disrepair.
CAPER 20
OMB Control No: 2506-0117 (exp. 06/30/2019)
Actions taken to develop institutional structure. 91.220(k); 91.320(j)
The City of Oshkosh’s institutional structure for carrying out activities under the Consolidated Plan is in
place and working well. It includes coordination and cooperation with local, state and federal agencies
and organizations, as well as close interaction amongst internal departments. Effective coordination
exists among non-profit organizations involved in the delivery of supportive housing servicers, food
bank/pantry, health and emergency shelter. The City has increased relationship building with these
organizations and within the community by actively working with neighborhood associations,
community groups, service providers, economic development agencies, area schools, private investors,
non-profits and others to connect common interests for the greatest benefit.
Collaborative efforts during the program year included working with neighborhood associations and
residents to communicate needs, identify priorities, define and implement CDBG projects that meet
needs of LMI households. The City recognizes coordination and information sharing as critical to the
success of its activities and continues to seek and foster opportunities for increased collaboration.
Actions taken to enhance coordination between public and private housing and social service
agencies. 91.220(k); 91.320(j)
Housing and social service providers collaborate regularly through participation in the Winnebagoland
Housing Coalition monthly meetings. A City staff person attends these meetings as the City’s
liaison. These meetings include representatives from agencies who provide housing services, such as
emergency assistance, weatherization, homebuyer assistance, and non-housing services, such as
employment training, mental health counseling, veterans services, elderly services, and health
services. Through these monthly meetings these varied organizations share resources and information
to develop inter-agency housing and service solutions.
The Oshkosh/Winnebago County Housing Authority and local Habitat for Humanity also offer
downpayment assistance to income qualified homebuyers. Participants must complete a homebuyer
class from a certified housing counselor. Upon completion of the course, homebuyers are eligible to
receive up to $10,000 in CDBG funds from the City for down payment assistance or offset closing
costs. The Housing Authority and Habitat may also provide downpayment assistance.
With declining public funding at the State and Federal level for housing and social service agencies, City
staff and local officials continue to work with agencies to identify alternate funding sources which will
enable them to meet a larger portion of the community ‘s needs. Such sources include funding from
federal, state and local governments as well as the private sector.
CAPER 21
OMB Control No: 2506-0117 (exp. 06/30/2019)
Identify actions taken to overcome the effects of any impediments identified in the
jurisdictions analysis of impediments to fair housing choice. 91.520(a)
The City approved an Analysis of Impediments to Fair Housing Choice in 2013. This Plan will be updated
during the 2019 and 2020 program years. The AI identified 6 impediments. Staff continues to address
these impediments. Implementation efforts for most of the action steps have been completed; others
will be implemented in the near term.
Actions taken during the program year to address these impediments include:
The City of Oshkosh revised its Fair Housing Ordinance in 2016 to include transgender
individuals as a protected class. The City has contracted with the Milwaukee Fair Housing
Council for several years, and the City's Fair Housing Ordinance was revised to reflect the
current structure for investigation and disposition of complaints through a third party contractor
(Milwaukee Fair Housing Council) as needed.
Continued to use CDBG funds for owner occupied housing improvement loans and homebuyer
assistance loans.
Continued implementation of a rental registry and inspection program.
Created a Rental Housing Advisory Board who's purpose is to advise staff on the creation of
rental housing educational materials and residential rental training programs for landlords and
tenants, to review and make recommendations regarding City plicy or changes to the Municipal
Code pertaining to rental housing.
The City collaborated with Habitat for Humanity and the Housing Authority to construct an ADA
compliant twindominium for income eligible handicap homeowners.
The City collaborated with ADVOCAP on the construction of a single family ADA compliant house
for income eligible homeowners through ADVOCAP’s Youth Build program.
Annually the City’s Transportation Department reviews the public transportation service areas
and recommends updates/changes.
The City advertises its housing rehabilitation program via several media outlets. Flyers are also
mailed to homeowners in quarterly City utility bills. Housing pamphlets are available at the main
service counters at City Hall, the Seniors Center and the public library.
The City contracts with the Fair Housing Center of Northeast Wisconsin, a satellite office of the
Metropolitan Milwaukee Fair Housing Council a private, non-profit organization, to provide
comprehensive fair housing enforcement, outreach and education and technical assistance
services to Oshkosh residents. During the 2019 program year, 6 housing complaints were
investigated, provided referrals to 11 persons with non-fair housing issues, and provided 6
instances of technical assistance to residents, housing providers and social service agencies in
the community. Due to the COVID pandemic, the Fair Housing Council mailed fair housing
informational materials to Oshkosh housing providers and other interested organizations in lieu
of a fair housing seminar. The mailing contained a link to HUD’s Statement on Fair Housing and
COVID-19.
CAPER 22
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-40 - Monitoring 91.220 and 91.230
Describe the standards and procedures used to monitor activities carried out in furtherance
of the plan and used to ensure long-term compliance with requirements of the programs
involved, including minority business outreach and the comprehensive planning
requirements
The Community Development Department monitors its CDBG program to ensure compliance with HUD
regulations and attainment of Consolidated Plan goals. Annual Action Plan activities are setup and
tracked in IDIS to allow ongoing review of activities and expenditures.
Procurement & Awards: The City of Oshkosh encourages participation of disadvantaged business
enterprises, women owned business enterprises and minority business enterprises in the City's
procurement process. The City awards contracts to the lowest responsive, responsible bidder
possessing the ability to perform successfully under the terms and conditions of the proposed
procurement.
Contract Management: If applicable, bid packages and contractor meetings include documentation and
discussion of Federal Labor Standards Provisions, Davis Bacon wage rate requirements, Section 3 and
current Department of Labor Wage Rate Determinations. City staff inspects the work being invoiced
prior to processing the invoice for payment. Contractors performing work subject to Davis Bacon are
required to submit certified weekly payrolls, which are verified for compliance on a weekly basis. The
Grants Coordinator also performs periodic unannounced employee interviews to further ensure
compliance with applicable Federal requirements.
Subrecipient Monitoring: The City works closely with all subrecipients in order to ensure the goals and
objectives of federally funded programs are adhered to and national objectives are being
met. Subrecipients enter into agreements with the City to ensure all Federal, State and local regulations
and criteria are being adhered to and met. Quarterly reporting from subrecipients allows the City to
monitor progress each is making toward its year end goals. On-site monitoring is conducted as staff
time permits to further ensure that overall goals and objectives are being met. Determining factors were
the subrecipient's prior experience managing federal funds, the City’s prior experience with
subrecipient, timeliness of expenditures and reporting, etc. Telephone calls and email communications
were used to stay abreast of activities and changes to programs.
Housing Monitoring: Housing rehabilitation activities are monitored with the assistance of the Housing
Rehab Specialist and the City's building inspectors. This allows for multiple levels of oversight of various
federally funded activities to ensure compliance with local, state and federal requirements. City staff
inspects the work being invoiced prior to processing the invoice for payment. The home owner is also
required to approve the payment being requested.
CAPER 23
OMB Control No: 2506-0117 (exp. 06/30/2019)
Citizen Participation Plan 91.105(d); 91.115(d)
Describe the efforts to provide citizens with reasonable notice and an opportunity to
comment on performance reports.
As outlined in both the Five Year Consolidated Plan and the 2019 Action Plan, the City of Oshkosh
follows a public participation plan designed to solicit citizen input, while at the same time helping to
inform the public of resources, emerging needs and restrictions and limitations of available resources.
The notice of availability of the Consolidated Annual Performance and Evaluation Report (CAPER) for the
2019 Community Development Block Grant Program Year was published on September 10, 2020. The
notice included a provision that the Report includes an assessment of expenditures in relation to
community objectives; progress on HUD financed activities; and an analysis of persons benefitting from
activities. Also it was noted the Plan was available for public review online and in the Community
Development office. The notice provided citizens an opportunity to attend the Redevelopment
Authority meeting on Septemer 16 at which time staff presented the 2019 CAPER summarizing the
expenditures occurring during the program year and persons benefitting from the activities/programs
carried out. The Redevelopment Authority meeting is televised on the local city cable channel.
CAPER 24
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-45 - CDBG 91.520(c)
Specify the nature of, and reasons for, any changes in the jurisdiction’s program objectives
and indications of how the jurisdiction would change its programs as a result of its
experiences.
The City of Oshkosh has not changed the objectives in its CDBG program and continues to strategically
use CDBG funds to maximize leverage for affordable housing and homeownership, public services,
central city and neighborhood revitalization, planning and administrative activities. The City
continuously assesses and reviews its policies, procedures and programs in order to improve on the
effective and efficient delivery of its grant programs. There is continued need for CDBG funds to fulfill
objectives in all categories noted above, hence no changes are recommended based on Oshkosh's
experiences.
Does this Jurisdiction have any open Brownfields Economic Development Initiative (BEDI)
grants?
No
[BEDI grantees] Describe accomplishments and program outcomes during the last year.
n/a
CAPER 25
OMB Control No: 2506-0117 (exp. 06/30/2019)
CR-50 - HOME 91.520(d)
Include the results of on-site inspections of affordable rental housing assisted under the
program to determine compliance with housing codes and other applicable regulations
Please list those projects that should have been inspected on-site this program year based upon
the schedule in §92.504(d). Indicate which of these were inspected and a summary of issues
that were detected during the inspection. For those that were not inspected, please indicate
the reason and how you will remedy the situation.
The City of Oshkosh does not receive HOME funds.
Provide an assessment of the jurisdiction's affirmative marketing actions for HOME units.
92.351(b)
The City of Oshkosh does not receive HOME funds.
Refer to IDIS reports to describe the amount and use of program income for projects,
including the number of projects and owner and tenant characteristics
The City of Oshkosh does not receive HOME funds.
Describe other actions taken to foster and maintain affordable housing. 91.220(k) (STATES
ONLY: Including the coordination of LIHTC with the development of affordable housing).
91.320(j)
The City of Oshkosh does not receive HOME funds.
PR26 - CDBG Financial Summary Report
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:1
18:16
09-08-20
Program Year 2019
OSHKOSH , WI
Metrics
Grantee
Program Year
PART I: SUMMARY OF CDBG RESOURCES
01 UNEXPENDED CDBG FUNDS AT END OF PREVIOUS PROGRAM YEAR
02 ENTITLEMENT GRANT
03 SURPLUS URBAN RENEWAL
04 SECTION 108 GUARANTEED LOAN FUNDS
05 CURRENT YEAR PROGRAM INCOME
05a CURRENT YEAR SECTION 108 PROGRAM INCOME (FOR SI TYPE)
06 FUNDS RETURNED TO THE LINE-OF-CREDIT
06a FUNDS RETURNED TO THE LOCAL CDBG ACCOUNT
07 ADJUSTMENT TO COMPUTE TOTAL AVAILABLE
08 TOTAL AVAILABLE (SUM, LINES 01-07)
PART II: SUMMARY OF CDBG EXPENDITURES
09 DISBURSEMENTS OTHER THAN SECTION 108 REPAYMENTS AND PLANNING/ADMINISTRATION
10 ADJUSTMENT TO COMPUTE TOTAL AMOUNT SUBJECT TO LOW/MOD BENEFIT
11 AMOUNT SUBJECT TO LOW/MOD BENEFIT (LINE 09 + LINE 10)
12 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION
13 DISBURSED IN IDIS FOR SECTION 108 REPAYMENTS
14 ADJUSTMENT TO COMPUTE TOTAL EXPENDITURES
15 TOTAL EXPENDITURES (SUM, LINES 11-14)
16 UNEXPENDED BALANCE (LINE 08 - LINE 15)
PART III: LOWMOD BENEFIT THIS REPORTING PERIOD
17 EXPENDED FOR LOW/MOD HOUSING IN SPECIAL AREAS
18 EXPENDED FOR LOW/MOD MULTI-UNIT HOUSING
19 DISBURSED FOR OTHER LOW/MOD ACTIVITIES
20 ADJUSTMENT TO COMPUTE TOTAL LOW/MOD CREDIT
21 TOTAL LOW/MOD CREDIT (SUM, LINES 17-20)
22 PERCENT LOW/MOD CREDIT (LINE 21/LINE 11)
LOW/MOD BENEFIT FOR MULTI-YEAR CERTIFICATIONS
23 PROGRAM YEARS(PY) COVERED IN CERTIFICATION
24 CUMULATIVE NET EXPENDITURES SUBJECT TO LOW/MOD BENEFIT CALCULATION
25 CUMULATIVE EXPENDITURES BENEFITING LOW/MOD PERSONS
26 PERCENT BENEFIT TO LOW/MOD PERSONS (LINE 25/LINE 24)
PART IV: PUBLIC SERVICE (PS) CAP CALCULATIONS
27 DISBURSED IN IDIS FOR PUBLIC SERVICES
28 PS UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR
29 PS UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR
30 ADJUSTMENT TO COMPUTE TOTAL PS OBLIGATIONS
31 TOTAL PS OBLIGATIONS (LINE 27 + LINE 28 - LINE 29 + LINE 30)
32 ENTITLEMENT GRANT
33 PRIOR YEAR PROGRAM INCOME
34 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PS CAP
35 TOTAL SUBJECT TO PS CAP (SUM, LINES 32-34)
36 PERCENT FUNDS OBLIGATED FOR PS ACTIVITIES (LINE 31/LINE 35)
PART V: PLANNING AND ADMINISTRATION (PA) CAP
37 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION
38 PA UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR
39 PA UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR
40 ADJUSTMENT TO COMPUTE TOTAL PA OBLIGATIONS
41 TOTAL PA OBLIGATIONS (LINE 37 + LINE 38 - LINE 39 +LINE 40)
42 ENTITLEMENT GRANT
43 CURRENT YEAR PROGRAM INCOME
44 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PA CAP
45 TOTAL SUBJECT TO PA CAP (SUM, LINES 42-44)
46 PERCENT FUNDS OBLIGATED FOR PA ACTIVITIES (LINE 41/LINE 45)
OSHKOSH , WI
2,019.00
0.00
835,154.00
0.00
0.00
211,606.44
0.00
0.00
0.00
0.00
1,046,760.44
684,598.88
0.00
684,598.88
138,331.77
0.00
0.00
822,930.65
223,829.79
0.00
0.00
534,392.80
0.00
534,392.80
78.06%
PY: PY: PY:
0.00
0.00
0.00%
101,712.72
0.00
0.00
0.00
101,712.72
835,154.00
110,719.27
0.00
945,873.27
10.75%
138,331.77
0.00
0.00
0.00
138,331.77
835,154.00
211,606.44
0.00
1,046,760.44
13.22%
PR26 - CDBG Financial Summary Report
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:2
18:16
09-08-20
Program Year 2019
OSHKOSH , WI
LINE 17 DETAIL: ACTIVITIES TO CONSIDER IN DETERMINING THE AMOUNT TO ENTER ON LINE 17
Report returned no data.
LINE 18 DETAIL: ACTIVITIES TO CONSIDER IN DETERMINING THE AMOUNT TO ENTER ON LINE 18
Report returned no data.
LINE 19 DETAIL: ACTIVITIES INCLUDED IN THE COMPUTATION OF LINE 19
Plan Year IDIS Project IDIS Activity Voucher
Number Activity Name Matrix
Code
National
Objective Drawn Amount
2018
2019
2018
2019
2018
2019
2018
2019
2018
2018
2019
2018
2019
2018
2018
2018
2019
2018
2018
2018
2019
2019
2017
2018
2018
2018
2019
Total
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
2
2
2
2
2
2
456
474
457
475
463
485
459
477
469
462
480
458
476
464
464
460
478
461
461
465
479
472
437
455
455
455
471
6325368
6372760
6334390
6372760
6325368
6372760
6325368
6372760
6325368
6334390
6372760
6325368
6372760
6325368
6372760
6325368
6372760
6325368
6334390
6325368
6372760
6372760
6325368
6325368
6334390
6372760
6372760
PSC - Day by Day Warming Shelter
PSC - Day by Day Warming Shelter
PSC - Advocap Nutrition
PSC - Advocap Nutrition
PSC - Clarity Care
PSC - Solutions Recovery
PSC - CADAS Emergency Shelter
PSC - CADAS Emergency Shelter
Fair Housing Center of NE Wis
PSC - Tri County Dental
POSC - Tri County Community Dental Clinic
PSC - Advocap Bridges
PSC - Advocap Bridges
PSC - Winnebago County Housing Authority
PSC - Winnebago County Housing Authority
PSC - Oshkosh Area Community Pantry
PSC - Oshkosh Area Community Pantry
PSC - Winnebago County Literacy Council
PSC - Winnebago County Literacy Council
PSC - HOME Emergency Repairs
PSC - Winnebago County Literacy Council
Housing / Downpayment Assistance
Housing Rehabilitation
Housing Rehabilitation / RLF
Housing Rehabilitation / RLF
Housing Rehabilitation / RLF
Housing Rehabilitation / RLF
03T
03T
03T
05A
05A
05A
05B
05B
05F
05F
05G
05G
05G
05J
05J
05M
05M
05M
05Q
05Q
05Q
05T
05T
05T
05W
05W
05W
05Z
05Z
05Z
05Z
05Z
13B
13B
14A
14A
14A
14A
14A
14A
LMC
LMC
Matrix Code 03T
LMC
LMC
Matrix Code 05A
LMC
Matrix Code 05B
LMC
Matrix Code 05F
LMC
LMC
Matrix Code 05G
LMC
Matrix Code 05J
LMC
LMC
Matrix Code 05M
LMC
LMC
Matrix Code 05Q
LMH
LMH
Matrix Code 05T
LMC
LMC
Matrix Code 05W
LMC
LMC
LMC
LMC
Matrix Code 05Z
LMH
Matrix Code 13B
LMH
LMH
LMH
LMH
LMH
Matrix Code 14A
$3,860.00
$6,150.00
$10,010.00
$4,500.00
$8,334.00
$12,834.00
$2,500.00
$2,500.00
$11,940.00
$11,940.00
$3,500.00
$7,500.00
$11,000.00
$5,000.00
$5,000.00
$3,000.00
$6,000.00
$9,000.00
$3,081.38
$1,150.00
$4,231.38
$2,359.00
$3,850.00
$6,209.00
$7,000.00
$9,000.00
$16,000.00
$5,000.00
$2,500.00
$988.34
$4,500.00
$12,988.34
$10,000.00
$10,000.00
$40,732.65
$103,573.22
$60,455.00
$6,312.77
$211,606.44
$422,680.08
$534,392.80
LINE 27 DETAIL: ACTIVITIES INCLUDED IN THE COMPUTATION OF LINE 27
PR26 - CDBG Financial Summary Report
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:3
18:16
09-08-20
Program Year 2019
OSHKOSH , WI
Plan Year IDIS Project IDIS Activity Voucher
Number Activity Name Matrix
Code
National
Objective Drawn Amount
2018
2019
2018
2019
2018
2019
2018
2019
2018
2018
2019
2018
2019
2018
2018
2018
2019
2018
2018
2018
2019
Total
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
456
474
457
475
463
485
459
477
469
462
480
458
476
464
464
460
478
461
461
465
479
6325368
6372760
6334390
6372760
6325368
6372760
6325368
6372760
6325368
6334390
6372760
6325368
6372760
6325368
6372760
6325368
6372760
6325368
6334390
6325368
6372760
PSC - Day by Day Warming Shelter
PSC - Day by Day Warming Shelter
PSC - Advocap Nutrition
PSC - Advocap Nutrition
PSC - Clarity Care
PSC - Solutions Recovery
PSC - CADAS Emergency Shelter
PSC - CADAS Emergency Shelter
Fair Housing Center of NE Wis
PSC - Tri County Dental
POSC - Tri County Community Dental Clinic
PSC - Advocap Bridges
PSC - Advocap Bridges
PSC - Winnebago County Housing Authority
PSC - Winnebago County Housing Authority
PSC - Oshkosh Area Community Pantry
PSC - Oshkosh Area Community Pantry
PSC - Winnebago County Literacy Council
PSC - Winnebago County Literacy Council
PSC - HOME Emergency Repairs
PSC - Winnebago County Literacy Council
03T
03T
03T
05A
05A
05A
05B
05B
05F
05F
05G
05G
05G
05J
05J
05M
05M
05M
05Q
05Q
05Q
05T
05T
05T
05W
05W
05W
05Z
05Z
05Z
05Z
05Z
LMC
LMC
Matrix Code 03T
LMC
LMC
Matrix Code 05A
LMC
Matrix Code 05B
LMC
Matrix Code 05F
LMC
LMC
Matrix Code 05G
LMC
Matrix Code 05J
LMC
LMC
Matrix Code 05M
LMC
LMC
Matrix Code 05Q
LMH
LMH
Matrix Code 05T
LMC
LMC
Matrix Code 05W
LMC
LMC
LMC
LMC
Matrix Code 05Z
$3,860.00
$6,150.00
$10,010.00
$4,500.00
$8,334.00
$12,834.00
$2,500.00
$2,500.00
$11,940.00
$11,940.00
$3,500.00
$7,500.00
$11,000.00
$5,000.00
$5,000.00
$3,000.00
$6,000.00
$9,000.00
$3,081.38
$1,150.00
$4,231.38
$2,359.00
$3,850.00
$6,209.00
$7,000.00
$9,000.00
$16,000.00
$5,000.00
$2,500.00
$988.34
$4,500.00
$12,988.34
$101,712.72
LINE 37 DETAIL: ACTIVITIES INCLUDED IN THE COMPUTATION OF LINE 37
Plan Year IDIS Project IDIS Activity VoucherNumber Activity Name MatrixCode NationalObjective Drawn Amount
2017
2017
2017
2018
2018
2019
Total
6
6
6
4
4
4
450
450
450
468
468
487
6325368
6334390
6372760
6334390
6372760
6372760
Administration
Administration
Administration
Administration
Administration
Fair Housing
21A
21A
21A
21A
21A
21A
21D
21D
Matrix Code 21A
Matrix Code 21D
$19,126.13
$45.00
$56,328.13
$53,476.24
$4,856.27
$133,831.77
$4,500.00
$4,500.00
$138,331.77
Page: 1 of 1
IDIS - PR09 U.S. Department of Housing and Urban Development Date:09-08-20
Time:18:15
Page:1
Report for Program:CDBG
*Data Only Provided for Time Period Queried:05-01-2019 to 04-30-2020
Office of Community Planning and Development
Integrated Disbursement and Information System
Program Income Details by Fiscal Year and Program
OSHKOSH,WI
Year Program
Associated Fund Estimated
TransactionGrant Number Type Income for Year Voucher #Created
Voucher
Type
Voucher
Actv. ID
IDIS
Code
Matrix
Amount
Receipted/DrawnProgramIDIS
Proj. ID
2019 0.00RLB19MC550007CDBG
RECEIPTS
5315710-001 471 14A 211,606.4404-24-20 2
DRAWS
6372760-001 471 14A 211,606.4404-27-20 PY 2
211,606.44
211,606.44RL Receipts
RL Draws
RL Balance 0.00
Total CDBG Receipts*:211,606.44
Total CDBG Draws against Receipts*:211,606.44
Total CDBG Receipt Fund Balance*:0.00
2019 CDBG
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:1
9:31
09-10-20
CDBG Summary of Accomplishments
Program Year: 2019
OSHKOSH
Activity Group Activity Category f Metrics
Open Count
Open Activities
Disbursed
Completed
Count
Completed
Activities
Disbursed
Program Year
Count
Total Activities
Disbursed
Acquisition
Housing
Public Services
General Administration and
Planning
Grand Total
Clearance and Demolition (04)
Total Acquisition
Homeownership Assistance-excluding
Housing Counseling under 24 CFR
5.100 (13B)
Rehab; Single-Unit Residential (14A)
Rehab; Multi-Unit Residential (14B)
Total Housing
Operating Costs of Homeless/AIDS
Patients Programs (03T)
Senior Services (05A)
Services for Persons with Disabilities
(05B)
Substance Abuse Services (05F)
Services for victims of domesticviolence, dating violence, sexual
assault or stalking (05G)
Fair Housing Activities (if CDBG, then
subject to 15% cap) (05J)
Health Services (05M)
Subsistence Payment (05Q)
Security Deposits (05T)
Food Banks (05W)
Other Public Services Not Listed in
05A-05Y, 03T (05Z)
Total Public Services
General Program Administration (21A)
Fair Housing Activities (subject to 20%Admin Cap) (21D)
Total General Administration and
Planning
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
5 $150,206.08 1 $0.00 6 $150,206.08
5 $150,206.08 1 $0.00 6 $150,206.08
1 $10,000.00 0 $0.00 1 $10,000.00
4 $422,680.08 2 $0.00 6 $422,680.08
0 $0.00 1 $0.00 1 $0.00
5 $432,680.08 3 $0.00 8 $432,680.08
2 $10,010.00 0 $0.00 2 $10,010.00
2 $12,834.00 0 $0.00 2 $12,834.00
2 $2,500.00 0 $0.00 2 $2,500.00
1 $11,940.00 0 $0.00 1 $11,940.00
3 $11,000.00 0 $0.00 3 $11,000.00
1 $5,000.00 0 $0.00 1 $5,000.00
3 $9,000.00 1 $0.00 4 $9,000.00
2 $4,231.38 0 $0.00 2 $4,231.38
2 $6,209.00 0 $0.00 2 $6,209.00
2 $16,000.00 0 $0.00 2 $16,000.00
3 $12,988.34 0 $0.00 3 $12,988.34
23 $101,712.72 1 $0.00 24 $101,712.72
4 $133,831.77 0 $0.00 4 $133,831.77
1 $4,500.00 0 $0.00 1 $4,500.00
5 $138,331.77 0 $0.00 5 $138,331.77
38 $822,930.65 5 $0.00 43 $822,930.65
Count of CDBG Activities with Disbursements by Activity Group & Matrix Code
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:2
9:31
09-10-20
CDBG Summary of Accomplishments
Program Year: 2019
OSHKOSH
Activity Group Matrix Code Accomplishment Type MetricsOpen Count Completed Count
Program Year
Totals
Acquisition
Housing
Public Services
Grand Total
Clearance and Demolition (04)
Total Acquisition
Homeownership Assistance-excluding Housing
Counseling under 24 CFR 5.100 (13B)
Rehab; Single-Unit Residential (14A)
Rehab; Multi-Unit Residential (14B)
Total Housing
Operating Costs of Homeless/AIDS Patients
Programs (03T)
Senior Services (05A)
Services for Persons with Disabilities (05B)
Substance Abuse Services (05F)
Services for victims of domestic violence, dating
violence, sexual assault or stalking (05G)
Fair Housing Activities (if CDBG, then subject to
15% cap) (05J)
Health Services (05M)
Subsistence Payment (05Q)
Security Deposits (05T)
Food Banks (05W)
Other Public Services Not Listed in 05A-05Y, 03T
(05Z)
Total Public Services
Housing Units
Households
Housing Units
Housing Units
Persons
Persons
Persons
Persons
Persons
Persons
Persons
Persons
Households
Persons
Persons
11 2 13
11 2 13
1 0 1
39 21 60
0 10 10
40 31 71
328 0 328
2,871 0 2,871
60 0 60
53 0 53
1,400 0 1,400
5 0 5
8,614 198 8,812
943 0 943
26 0 26
34,694 0 34,694
795 0 795
49,789 198 49,987
49,840 231 50,071
CDBG Sum of Actual Accomplishments by Activity Group and Accomplishment Type
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:3
9:31
09-10-20
CDBG Summary of Accomplishments
Program Year: 2019
OSHKOSH
CDBG Beneficiaries by Racial / Ethnic Category
Housing-Non Housing Race
Source Type
(for Funding
Fact Source)
Metrics
Total Persons
Total Hispanic
Persons Total Households
Total Hispanic
Households
Housing
Non Housing
Grand Total
White
Black/African American
Asian
Other multi-racial
Total Housing
White
Black/African American
Asian
American Indian/Alaskan Native
Native Hawaiian/Other Pacific Islander
American Indian/Alaskan Native & White
Black/African American & White
Amer. Indian/Alaskan Native & Black/African
Amer.
Other multi-racial
Total Non Housing
White
Black/African American
Asian
American Indian/Alaskan Native
Native Hawaiian/Other Pacific Islander
American Indian/Alaskan Native & White
Black/African American & White
Amer. Indian/Alaskan Native & Black/African
Amer.
Other multi-racial
Total Grand Total
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
0 0 64 2
0 0 4 0
0 0 2 0
0 0 1 0
0 0 71 2
27,179 1,454 14 0
4,005 7 12 0
1,811 1 0 0
317 1 0 0
48 0 0 0
7 0 0 0
32 0 0 0
5 1 0 0
16,557 11 0 0
49,961 1,475 26 0
27,179 1,454 78 2
4,005 7 16 0
1,811 1 2 0
317 1 0 0
48 0 0 0
7 0 0 0
32 0 0 0
5 1 0 0
16,557 11 1 0
49,961 1,475 97 2
U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Integrated Disbursement and Information System
DATE:
TIME:
PAGE:4
9:31
09-10-20
CDBG Summary of Accomplishments
Program Year: 2019
OSHKOSH
Income Levels ST MetricsOwner Occupied Renter Occupied Persons
Housing
Non Housing
Extremely Low (<=30%)
Low (>30% and <=50%)
Mod (>50% and <=80%)
Total Low-Mod
Non Low-Mod (>80%)
Total Beneficiaries
Extremely Low (<=30%)
Low (>30% and <=50%)
Mod (>50% and <=80%)
Total Low-Mod
Non Low-Mod (>80%)
Total Beneficiaries
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
MC
3 0 0
3 0 0
6 0 0
12 0 0
0 0 0
12 0 0
21 0 22,183
1 0 1,036
0 0 294
22 0 23,513
0 0 261
22 0 23,774
CDBG Beneficiaries by Income Category
:housing costs
I N C O M E
Purchase Total Lead EXTRLY
Assistance Project Grant # Fhoh Disab Single Race Elderly LOW LOW MOD
ADDRESS Loan Cost PPl Parent 0-30% 31-50% 51-80%
447 W 18th Ave 16,585.00 1,230.00 1 x white x x x x
1408 N Main St 12,848.00 3 x x white x x
517 Waugoo Ave 17,455.00 1 x white x x x x
2344 Comet St 8,675.00 6 hispanic x x
343 W South Park Ave 29,797.00 2 white x x x
1031 Taft Ave 24,064.00 325.00 1 white x x x
2113 Jefferson St 11,580.00 1 x white x x x
1044 Jefferson St 30,360.00 1 white x x x
2016 Plymouth St 8,814.00 1 x white x x x
1606 Mt Vernon St 15,389.00 1 x white x x x x
1116 Garfield St 12,100.00 1 x x white x x x
948 W 4th Ave 10,000.00 x x
TOTALS 10,000.00 187,667.00 1,555.00 19 Ext WorkRoofFurnaceFoundationElectricPlumbingHandic Acc
PUb Service grants awarded with matching investment.xlsx Consortium Worksheet 9/10/2020
Agency Program Program Description City CDBG award Match Amount Match Source
1
Tri-County Community Dental Clinic Focus on the Children Provide supplies and personnel for oral health
care services for children under 13 years of age; program offered through Oshkosh Area
School District 10,000
2
Oshkosh Area Community Pantry, Inc. Basic Needs: Food & Nutrition Community food bank and distribution center to
address food & nutritional needs of neediest
residents of southern Winnebago County,
including City of Oshkosh
12,000 557,007 other
3
Winnebago County Literacy Council Adult tutoring, volunteer outreach &
family literacy expansion
Help adults and families, students and children
increase their literacy skills so they can go from
aiming to survive to aiming to thrive
9,000 130,722
State & local;
private
4
Winnebago County Housing Authority Housing Choice Voucher security
deposit project
Aid eligible individuals and families with
financial assistance to satisfy security deposit
requirement
8,500
5
Christine Ann Domestic Abuse
Services, Inc.
Emergency Shelter & Advocacy
Services
Provide safety, support and advocacy to all
abuse victims, as well as cultivating community
awareness through collaborative education and
prevention programs.
10,000 776,905
other federal;
state & local;
private; other
6
Solutions Recovery Inc. Solutions Women's Sober Living Expand program for female drug addicted
population who are in recovery and seeking
transitional support.
15,000 24,227 Private; other
7
Partnership Community Health Center Health Outreach Prevention
Education / HOPE for Oshkosh
Provide primary medical, dental and integrated
behavioral health care to low income and
vulnerable patients
7,500
8
ADVOCAP, Inc. Bridges Emergency Assistance
Program
Provide direct assistance to clients who are
facing a termporary emergency situation.
13,500 19,689 other funds
9
ADVOCAP, Inc. Senior Nutrition Program Provide daily nutritious and tasty meals to
persons 60 years of age and older and to
some younger persons with disabilities. Meals are provided at congregate sites or through the
delivery of the meals to the person's residence
when the individual is homebound.
10,000 1,638,407
other federal;
state & local;
private; other
10
Clarity Care, Inc. Help at Home Supportive home care staff to provide
assistance with bathing and dressing, meal
preparation, transportation, help with
medications, and light housekeeping to low-income residents with physical or mental
limitations. 2,500 34,500 private
11
Reach Counseling Services Counseling Program Expand capacity of existing services in
Oshkosh for treatment of trauma resulting from
sexual and physical abuse
10,000 269,166
other federal,
state & local
12
Day by Day Warming Shelter Resource Coordinator Fund Resource Coordinator position that
provides direct supportive services to connect
clients with resources and support systems
necessary to secure long term stability and self
sufficiency
9,000 150,381
state & local;
private; other
Total Total Requests: 117,000 3,601,004
2019 Oshkosh Funding Consortium Funding Worksheet
Request for Proposal
Community Gardens
Several Vacant Sites
City of Oshkosh, WI
2
The Redevelopment Authority of the City of Oshkosh (RDA) seeks proposals from qualified organizations
and individuals regarding the creation, management, and operation of community gardens in several
available properties.
1. Development Goals
The RDA encourages submissions of a plan for the use of several vacant City parcels for community
gardens. The RDA seeks proposals from qualified individuals and organization regarding the creation,
management, and operation of community gardens. Community gardens and food plots serve as
gathering places for residents and provide opportunities for healthy fresh food.
It is the RDA’s intent to sell these parcels, however, the RDA will consider entering into a long term lease
if the applicant can demonstrate the capacity to develop and continually maintain the gardens and open
space within the parcels. All aspects of the creation, management and operation of the garden will be
identified in the terms and conditions that are mutually agreed upon by the awardee and the City and
RDA in the lease.
The scope of work to be performed shall include management of a garden with the following missions in
mind:
1) the establishment of a community garden
2) promoting community interest in gardening
3) providing City residents with gardening, recreational, socializing opportunities
4) enabling local residents within City boundaries to supplement their diets with home grown
produce
5) providing physical space for community members to learn about resource conservation, urban
gardening, and related issues in a safe, enjoyable environment.
Factors that the awardee should also consider include, but are not limited to, gardening services,
community involvement and outreach, garden access, facilities, gardening-related education, organic
practices, fundraising, water conservation and irrigation, composting, maintenance and trash collection,
parking, security, staff/crew/committees, and budgeting.
This may be accomplished by creating a set of by-laws as well as member use agreement, with each
document requiring adherence to requirements established by the City of Oshkosh. Any lease
agreement between the RDA and the awardee will be required to follow all rules and regulations set by
the City of Oshkosh and the RDA.
3
2. Property Description
The City and RDA have identified five (5) vacant parcels that they would consider conveying to allow for
the creation of a community garden. See [Appendix A] for maps and pictures of available parcels.
3. Area Conditions
The properties, located throughout the City, are vacant and are located in relatively close proximity to
several established neighborhoods. If properties are leased, RAISED BEDS are to be used as to not
disturb the soil. If properties are bought from the RDA, the buyer does not have these restrictions of
raised beds.
4. Proposed Zoning and Land Use
The use of any parcel within the City of Oshkosh are required to obtain a Conditional Use Permit as well
as follow all City zoning and land requirements. Please refer to the City of Oshkosh Zoning Ordinance for
regulations regarding setbacks, land use/permitted/conditional uses, parking, landscaping, storm water
management, etc. which can be accessed on the City’s website at the following link
https://www.ci.oshkosh.wi.us/PlanningServices/ZoningOrdinanceMaps.aspx
5. Terms and Conditions
If leased, all gardening MUST be done in raised beds. Lessee may not disturb the ground in
any form without consent from City.
Obtain a Conditional Use Permit and follow all necessary zoning and City requirements.
supply and City with detailed plans regarding the development of any work
Awardee must demonstrate the capacity to develop and continually maintain the gardens
and open space within the parcels.
6. Proposal Requirements
To achieve a uniform review process and a degree of comparability, the proposals should be
organized in the following order and contain all of the following elements:
1. Title Page: Show the proposal title, name of applicant, address, telephone number(s),
name of a contact person, date, and other relevant applicant information.
2. Organization/Applicant Credentials: Provide a narrative describing the applicant(s)
background, history, and construction experience in regards to community gardening,
including comparable projects successfully completed by the applicant.
3. Organization/Applicant Members: State the names and titles of key members of your
team, including proposed subcontractors if applicable.
4
4. Project Description: Provide a one-page or two-page narrative describing what is
proposed for construction, maintenance, and acquisition/lease of the land. Include an
explanation of the design concept and the expected timetable for construction.
5. Concept Plan: Submit a conceptual site plan showing initial ideas for garden placement,
and all other features.
6. Financing Plan: Provide a description of anticipated general financing for the project.
Include the following details:
a. Required investment and expected level of RDA participation in the
project (if any).
b. State of applicant’s financial ability and resources at the applicant’s
disposal.
c. Garden concept including target market for the planned project and
how the completed project would be marketed.
d. Offer price for the property.
7. Evidence of Insurance: The applicant shall provide evidence of possession of adequate
insurance. These items should be included in the proposal and clearly identified as
Exhibit A, Evidence of Insurance and Permits.
8. Approaches to Addressing City Goals and Vision (optional): This is an optional section
for the developer to highlight any specific unique qualities that may be appealing to the
goals, vision, or personality of the City of Oshkosh.
Submittal Requirements: Proposals must be received by the Redevelopment Authority of Oshkosh by
[DATE]. It is recommended that all proposals be submitted via certified mail or other commercial courier
services in order that the applicant will have a written record of the delivery. The following
requirements must be completed in full:
Address:
Redevelopment Authority of the City of Oshkosh
Department of Community Development
215 Church Avenue
Oshkosh, WI 540901
Three (3) bound original (hardcopy) of the completed proposal
One (1) digital copy of the completed proposal (CD, USB or DVD).
No proposals will be accepted via email or fax.
The RDA Board will select and recommend approval of proposals that enable the community to best
realize the objectives for the RFP. The RDA reserves the right to reject any and all proposals.
5
Submittals that meet the requirements of the RFP will be scheduled for review and a tentative oral
presentation to the RDA. The RDA will determine whether they wish to accept, reject or seek additional
information on a submittal.
After a proposal is selected by the RDA, a Term Sheet reflecting the basic provisions of a Developer
Agreement will be prepared by City Staff for review and approval by the developer, RDA and Common
Council.
7. Questions and Contact Information
Allen Davis
Director of Community Development
(920) 236-5055
adavis@ci.oshkosh.wi.us
Darlene Brandt
Grants Coordinator
(920) 236-5029
dbrandt@ci.oshkosh.wi.us
6
Appendix A
Maps of Available Parcels
[Rest of this page intentionally left blank]
7
8
Parcel #1 – W. Custer Avenue
9
Parcel #2 – North Main Street (south of New York Avenue)
10
Parcel #3 - East Lincoln Avenue (adjacent to Railroad tracks)
11
Parcel # 4 - 422 Otter Avenue (corner of Broad and Otter at Railroad tracks)
NOTE: demolition scheduled for week of July 20
12
Parcel #5 - Oregon Street, adjacent to and south of Oaks Candy Store
The Public Service CDBG funding the City provided to a variety of non-profit
organizations for LMI programs was 10.8%. The HUD maximum for Public Services is
capped at 15%. The City also met this requirement.
The Planning and Administration of the CDBG funding that is paid to the City for using
City staff to implement the programs and activities throughout the year was 13.2%. The
HUD maximum for Planning and Administration is 20%, so the City also met that
requirement.
City staff will provide additional information and detail at the RDA meeting.
Community Gardens Update
Staff has created a draft Request for Proposals (RFP) for the RDA-owned sites that
would be possible community garden sites. After RDA input at this meeting, staff plans
to send this RFP out to the public in short order.
EXECUTIVE DIRECTOR’S REPORT
Healthy Neighborhood Initiative:
The “Rock the Block” (RTB) in the Congress Field Neighborhood Association has been
completed over many days through the summer of 2020. COVID restrictions made it
more difficult to complete the projects, but over 30 properties were improved. Very few
RTB programs throughout the nation were completed in 2020. Habitat, GOHNI and
city staff are now working on the 2021 RTB neighborhood, to be announced later this
year.
South Shore Redevelopment Area:
43 E 7th Ave/Rec Lanes/706 S. Main Street – Demolition is complete.
Environmental testing and minimal remediation has been done and WisDNR is
requiring additional testing due to contamination uncovered during the
demolition phase. The additional testing will not be complete until November,
2020. Restoration and seeding was completed this summer. Staff is working on
the draft Request for Proposal (RFP). A draft RFP is attached for your review.
The Oshkosh Police Department also provided the RDA with drone aerial video
to be used in the RFP.
Pioneer Area – Mr. Art Dumke continues to work with City staff to explore
multiple development options and funding scenarios. The City drafted a TIF
Plan for possible redevelopment and the City Council approved the TIF Plan on
September 24, 2019. The site also qualifies for New Market Tax Credits and was
included in an Opportunity Zone.
Miles Kimball Building - (Northwest corner of S. Main/9th Ave.) A new
developer is interested in developing the property and made a presentation to
the City Council regarding a possible Tax Increment Financing (TIF) application
for residential development. No application has been submitted to date.
9th Avenue extension to CN Railroad – The street extension and
undergrounding the overhead utilities has been submitted for a CIP request. The
9th Ave. extension and utility undergrounding was put in the CIP - Favorable
Economic Conditions category in 2022-2023.
Pioneer Drive Riverwalk – Staff submitted the WisDNR grant application due
May 1, 2020. The result of the application may be announced by the end of the
year.
Boatworks Property – The Option was granted to Morgan Partners through Dec.
31, 2020. Staff is working with Morgan Partners to help move the redevelopment
of the site forward.
Marion & Pearl Redevelopment Area:
Parcels H, I & J - The RDA conveyed all three parcels H, I & J to Merge in May,
2020. Merge began construction on parcel H, the BRIO building which also
contains the Food Co-op, earlier this summer. Footings and Foundation are
currently being poured. The “virtual groundbreaking” is on YouTube.
Sawyer Street/Oshkosh Avenue
Multi-modal Trail – WisDOT awarded the City $253,000 for extending the trail
east from Punhoqua through Rainbow Memorial Park to the Sawyer
Street/Oshkosh Avenue intersection in 2021. Staff is working on the
environmental documents and the preliminary design for WisDOT approval.
Lakeshore Riverwalk – Construction is complete and the riverwalk is open to
the public.
Jefferson Street Redevelopment:
668 N. Main Street – The City Council approved the funding for the purchase of
the building as was previously approved by the RDA.
AUGUST25, 2020 20-379 RESOLUTION
CARRIED __7-0_____ LOST _____ LAIDOVER ________WITHDRAWN ________)
PURPOSE: APPROVE2021 - 2025CAPITALIMPROVEMENTPLAN
INITIATEDBY: CITYADMINISTRATION
WHEREAS, theCityManagerhasprepared, submittedandrecommendeda
CapitalImprovementPlan fortheyears 2021 - 2025 whereinislistedallanticipated
revenuesandexpendituresforsaidyear, whichhasbeenfiledwiththeCommonCouncil
andtheCityClerk, andisavailableforpublicinspection; and
WHEREAS, theCouncilhasreviewedtheplananddesiretoadopttheplanfor
purposesofconsiderationoftheproposedprojectsintheFinalOperatingBudgetforthe
nextyear.
NOW, THEREFORE, BEITRESOLVEDbytheCommonCounciloftheCityof
Oshkoshthatthe2021 - 2025CapitalImprovementPlan, onfileintheOfficeoftheCity
Clerk, asummaryofwhichisattachedhereto, isherebyapproved.
City of Oshkosh, Wisconsin
Manager Recommended Capital Improvement Plan
2021 thru 2025
FUNDING SOURCE SUMMARY
Source 2021 2022 2023 2024 2025 Total
Assessment 2,947,400 3,680,600 3,146,100 3,327,200 3,217,900 16,319,200
Cash-Fund Balance 200,000 200,000 400,000
Debt 12,909,161 20,627,100 24,254,780 13,723,700 11,402,100 82,916,841
Debt State Trust Fund Loan 830,000 540,000 250,000 250,000 250,000 2,120,000
Donations 85,000 85,000
Grant 5,810,300 1,384,000 800,000 800,000 1,880,000 10,674,300
Levy 11100,000 1,464,170 1,707,140 1,535,084 1,584,958 7,391,352
Operations 100,000 292,000 1,075,000 290,000 230,000 1,987,000
PriorYear Funding 456,339 8,000 40,000 504,339
Safe Drinking Water Loan 10,000,000 8,530,000 9,520,000 28,050,000
Sewer Revenue Bonds 13,735,200 13,792,400 10,416,000 7,835,900 3,733,300 49,512,800
Sewer Utility Fund 816,000 715,000 810,000 810,000 818,150 3,969,150
Storm Revenue Bonds 6,990,000 10,704,500 9,435,000 7,175,000 7,702,000 42,006,500
Storm Water Utility Fund 790,000 790,000 790,000 1,140,000 790,000 4,300,000
TO#14 Cash 200,000 200,000 400,000
TO#19 Cash 20,000 20,000
TID Cash 400,000 400,000 400,000 400,000 400,000 2,000,000
Trade-In 73,000 175,000 129,500 105,500 134,350 617,350
Transit Fund 10,000 10,000 10,000 10,000 10,000 50,000
Water Revenue Bonds 5,809,900 7,405,600 5,771,200 5,779,300 9,512,300 34,278,300
WaterUtility Fund 1,429,000 1,505,000 165,000 165,000 165,000 3,429,000
GRAND TOTAL 64,511,300 72,223,370 68,719,720 43,546,684 42,030,058 291,031,132
Produced Using the Plan-It Capital Planning Software Page 1 Wednesday,July 1,2020
City of Oshkosh, Wisconsin
Manager Recommended Capital Improvement Plan
2021 thm 2025
DEPARTMENT SUMMARY
Department 2021 2022 2023 2024 2025 Total
201-Senior Center 10,000 30,000 40,000
202-Community Development 3,635,300 8,110,000 9,475,000 3,775,000 1,700,000 26,695,300
211-Recycling 205,000 300,000 300,000 250,000 1,055,000
212-Sanitation 600,000 335,000 200,000 200,000 200,000 1,535,000
215-Police 350,000 350,000
235-Fire 216,900 1,085,670 4,570,920 72,584 18,458 5,964,532
239-Library 40,600 186,600 105,100 117,300 449,600
241-Museum 100,000 585,000 2,575,000 300,000 3,560,000
311-Sidewalks 988,000 988,000 988,000 988,000 988,000 4,940,000
315-Streets 698,000 2,694,400 1,228,000 1,625,000 1,075,000 7,320,400
321-Utility Infrastructure 16,652,200 22,303,100 17,414,200 16,181,800 14,495,600 87,046,900
323-Gen Building&Equipment 1,241,000 2,728,500 1,813,500 1,531,000 1,764,000 9,078,000
325-Parks Improvement 4,050,000 3,890,000 3,555,000 4,800,000 3,715,000 20,010,000
326-Parks Equipment 88,000 320,000 300,000 170,000 165,000 1,043,000
400-Traffic 680,000 875,000 590,000 790,000 590,000 3,525,000
501-Grand Opera House 110,000 75,000 40,000 50,000 160,000 435,000
503-Convention Center 200,000 40,000 240,000
511-Transit 5,345,000 110,000 10,000 10,000 2,110,000 7,585,000
541-Water 15,468,600 12,780,000 12,200,000 1,960,000 6,334,000 48,742,600
551-Sewer 10,462,700 8,368,100 5,777,000 5,932,000 2,031,000 32,570,800
561-Storm Water 3,585,000 6,389,000 7,508,000 5,229,000 6,134,000 28,845,000
TOTAL 64,511,300 72,038,370 68,719,720 43,731,684 42,030,058 291,031,132
I
Wednesd y 1,2020ProducedUsingthePlan-It Capital Planning Sofhvare Page 1 ay,Jad
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Oshkosh
TO: Honorable Mayor & Members of the Common Council
FROM: Russ Van Gompel, Finance Director
DATE: August 20, 2020
RE: Approve 2021 —2025 Capital Improvement Plan
BACKGROUND
The City of Oshkosh typically has approved a five year Capital Improvement Plan. In previous
years, this plan was approved at the same time as the operating budget. Prior to preparing the
budget calendar for 2021, 1 had suggested to City Council to modify the process for approving
the Capital Improvement Plan. This revised process included the step of considering the
Capital Improvement Plan earlier in the process so that the plan could then be incorporated in
the Final Operating Budget.
The City Council held a budget workshop on July 8th to discuss the Capital Improvement Plan.
Additional discussions were also held on the budget workshop held on August 19th. In
addition, the Plan Commission considered the Capital Improvement Plan on August 181h
I am recommending the City Council consider and adopt the 2021 —2025 Capital Improvement
Plan. It is important to note that this a plan for future capital projects. The actual funding for
capital projects and the decision to issue debt for particular projects will be decided at a later
date.
Please contact me if you have any additional questions.
RECOMMENDATION
Staff recommends that Council consider the 2021 —2025 Capital Improvement Plan.
Respectfully Submitted,Approved:
Russ Van Gompel John M. Fitzpatrick
Finance Director Assistant City Manager
Request for Proposals
E.7th Avenue & E. 9th Avenue
Sawdust District
City of Oshkosh, WI
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The Redevelopment Authority of the City of Oshkosh (RDA) seeks proposals from qualified developers
regarding several mixed-use parcels located east of S. Main St. between E. 7th Avenue and E. 9th Avenue
in the Sawdust District of Oshkosh [See Appendix C]. The project should complement the surrounding
urban environment as well as incorporate and utilize the entire sites.
1. Development Goals
The RDA encourages submission of a plan for a creative and aesthetically pleasing designed multi-family
residential or mixed use commercial/multi-family development. Commercial uses should take advantage
of high visibility provided along South Main Street while all development should complement and utilize
the unique location with the Fox River riverfront, future river-walk, and great visuals of Lake Winnebago.
2. Property Description
The larger parcel has frontage along South Main Street that is approximately 427 ft. and 694 ft. deep
and is bordered by South Main Street, East 7th Avenue and East 9th Street. East 8th Street will be
The smaller parcel has frontage along East 9th Avenue that is approximately 81 ft. and 362 ft. deep and is
bordered by East 9th Avenue.
3. Area Conditions
The properties are within the South Shore Redevelopment Area and part of the Sawdust District Master
Plan. The area generally contains a mix of older manufacturing, light commercial and residential uses. It
is located in relatively close proximity to the City’s main water features the Fox River and Lake
Winnebago.
The areas immediately to the south and west are primarily commercial, industrial and residential. Some
of the area to the west is a hub of small businesses which provides an easy walk to area restaurants,
retail establishments, entertainment venues and service businesses. This area promotes a growing
desirability and demand, especially by millennials, young professionals, and/or students attending the
University of Wisconsin Oshkosh, which is a short walk west of S. Main Street.
The area to the north consists of mixed commercial/residential uses. Just a short walk over the Fox River
will take you to Oshkosh’s Center City, a bustling downtown district. The area to the south contains an
older commercial structure proposed for redevelopment along with the newly constructed Menominee
Nations Arena, home of the NBA G-League’s Wisconsin Herd. DRAFT
3
While demolition of existing building on the 700 Block of S. Main St., underground storage tanks were
discovered. The City hired AECOM to conduct samples of the area. To view the location of samples and
to read the results of findings, see [APPENDIX B]
Located between the available parcels and Pioneer Drive, is an active rail spur operated by Canadian
National. The City understands of the potential train traffic and train noise and is willing to work with
developers to mitigate these issues. Different tactics that may be discussed to mitigate noise can be and
is not limited to landscaping, sound proofing building materials, a sound barrier that limits the sound to
deflect up and away from the new development. The City is aware of the train noise and would be
supportive of discussing possible incentives to mitigate it.
4. Proposed Zoning and Land Use
The sites are zoned riverfront mixed use – riverfront overlay (RMU-RFO) which depends to protect
aesthetics and water quality while accommodating the wide variety of both indoor and outdoor land
uses that benefit from locating adjacent to the Fox River. The purpose of the overlay district is to
improve the quality of development along the riverfront by applying enhanced building design standards
and land use regulation in the area defined by the mapped boundaries of the Riverfront Overlay District.
The RMU zoning district permits low density residential uses, light commercial or mixed-use
developments.
The redevelopment parcels included in this RFP are located within Oshkosh’s Sawdust District Plan. The
Sawdust District Plan strives to expand upon the recommendations identified in Imagine Oshkosh
focusing on the South Shore sub-area identified in the Center City. The Sawdust District Plan will direct
growth, development and infrastructure investment by providing guidance through recommendations,
strategies and policies with an ultimate goal of reinvigorating the neighborhood. All project proposals
will have to follow these specific guidelines set in the Sawdust District Plan. See [Appendix C] for the
published Sawdust District Plan.
The parcels will also border the future Riverwalk along the Fox River. The Fox River Corridor Riverwalk
Plan is a comprehensive Riverwalk plan and design guidelines for the momentum of the Fox River
revitalization. Several portions of the Riverwalk have been completed with more segments in the
financing phases. More information on the Riverwalk design plans:
https://www.ci.oshkosh.wi.us/PlanningServices/RiverwalkDesignPlans.aspx
Please refer to the City of Oshkosh Zoning Ordinance for regulations regarding setbacks, land
use/permitted/conditional uses, parking, landscaping, storm water management, etc. which can be
accessed on the City’s website at the following link:
https://www.ci.oshkosh.wi.us/PlanningServices/ZoningOrdinanceMaps.aspx
DRAFT
4
5. Terms and Conditions
The larger site with frontage along South Main Street has been valued at BPLACEHOLDER based on an
appraisal obtained from PLACEHOLDER. The smaller site has been valued at PLACE HOLDER. At the time
of conveyance the developer would be expected to provide full payment of the value of the properties
unless a write down is agreed upon by the Redevelopment Authority (RDA), the Oshkosh Common
Council, and the selected developer. A decision by the RDA and the City to consider a write down would
be based on proof need and the value and quality of the project. However, the RDA and the City will
work with interested developers on attractive disposition terms to facilitate high quality projects.
6. Proposal Requirements
General Physical Development Requirements:
All new construction must be brick or a comparable masonry. If compatible with the
surrounding area the use of alternative materials may be used including vinyl siding.
Porches, decks and balconies shall have no exposed wood (stained or painted wood is
acceptable). Joists and other structural elements shall not be visible.
Mechanical and utility penetrations, utility facilities, drainage pipes, fixtures (other than
lighting) and the like shall not be located on the building facades visible from the right-of-
way or any building entry area, and where present, must be fully screened.
All elevations of a given structure shall have the same finishing materials and design quality.
All parking areas must be on the proposed buildings rear facades.
Exterior lighting must be compatible with the style and scale of the structure(s).
Site amenities shall include secure bicycle parking area for temporary use by guests and
residents, which should be located to the side or rear facades.
Window air conditioning units will not be permitted on the street facing façade or on a
façade visible from the right-of-way.
Proposal Content and Organization: To achieve a uniform review process and a degree of
comparability, the proposals should be organized in the following order and contain all of the following
elements:
1. Title Page: Show the proposal title, name of firm, address, telephone number(s), name
of a contact person, date, and other relevant company information.
2. Developer Credentials: Provide a narrative describing the developer’s background,
history, and construction experience, including comparable projects successfully
completed by the developer. Provide names and contact information for three
customer references.
3. Team Members: State the names and titles of key members of your development team,
including proposed subcontractors (if possible, provide resumes for the identified
members). DRAFT
5
4. Developer Legal Structure: Provide evidence of corporate status including, where
applicable, Articles of Incorporation or a partnership certificate or agreement. In
addition, identify by name and title entities holding an ownership interest of 20% or
more.
5. Project Description: Provide a one-page or two-page narrative describing what is
proposed for construction, demolition cost, environmental cost, and acquisition of the
land. Include an explanation of the exterior design concept and the expected timetable
for construction.
6. Concept Plan: Submit a conceptual site plan showing initial ideas for building
placement, parking layout, access drives, storm water features, and landscaping.
Preliminary building elevations should be included.
7. Financing Plan: Provide a description of anticipated general financing for the project.
Include the following details:
a. Required investment and expected level of RDA participation in the
project (if any).
b. State of developer’s financial ability and resources at the developer’s
disposal.
c. Business concept including target market for the planned project and
how the completed project would be marketed.
d. Offer price for the property.
8. Approaches to Addressing City Goals and Vision (optional): This is an optional section
for the developer to highlight any specific unique qualities that may be appealing to the
goals, vision, or personality of the City of Oshkosh.
Submittal Requirements: Proposals must be received by the Redevelopment Authority of Oshkosh
(RDA) by [DATE]. It is recommended that all proposals be submitted via certified mail or other
commercial courier services in order that the applicant will have a written record of the delivery. The
following requirements must be completed in full:
Redevelopment Authority of the City of Oshkosh
Department of Community Development
215 Church Avenue, Room 201
Oshkosh, WI 540901
Three (3) bound original (hardcopy) of the completed proposal
One (1) digital copy of the completed proposal (CD, USB or DVD).
No proposals will be accepted via email or fax.
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6
The RDA Board will select and recommend approval of proposals that enable the community to best
realize the objectives for the South Shore Redevelopment Area and the Sawdust District master Plan.
The RDA reserves the right to reject any and all proposals.
Submittals that meet the requirements of the RFP will be scheduled for review and a tentative oral
presentation to the RDA. The RDA will determine whether they wish to accept, reject or seek additional
information on a submittal.
After a proposal is selected by the RDA, a Term Sheet reflecting the basic provisions of a Developer
Agreement will be prepared by City Staff for review and approval by the developer, RDA and Common
Council.
7. Questions and Contact Information:
Allen Davis
Director
Community Development
PH: (920) 236-5055
Email: adavis@ci.oshkosh.wi.us
Darlene Brandt
Grants Coordinator
PH: (920) 236-5029
Email: dbrandt@ci.oshkosh.wi.us
Kelly Nieforth
Economic Development Manager
PH: (920) 236-5045
Email: knieforth@ci.oshkosh.wi.us
DRAFT
Appendix A
Maps of Redevelopment Parcels
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R e d e v e lo p m e n tS iteProposedE.9 t h St.R e d e v e lo p m e n tS ite
SSMMAAIINNSSTTPPIIOONN
EE
EE
RR
DD
RR
EE 1100TTHH AAVV
E 9TH AVE 9TH AV
PIONEER DRPIONEER DRC:\Users\brianw\Desktop\Sawdust Redevelopment RFP AREA MAp.mxd User: brianw
Prepared by: City of Oshkosh, WI
Printing Date: 8/20/2020
1 in = 150 ft
1 in = 0.03 mi¯Redevelopment SitesRedevelopment Sites
The City of Oshkosh creates and maintains GIS maps and data for its own use. They may show the
approximate relative location of property, boundaries and other feature from a variety of sources.
These map(s)/datasets are provided for information purposes only and may not be sufficient or
appropriate for legal, engineering, or surveying purposes. They are provided “AS-IS” without
warranties of any kind and the City of Oshkosh assumes no liability for use or misuse.DRAFT
R e d e v e lo p m e n tS iteProposedE.9thSt.
R e d e v e lo p m e n tS ite
HI
I-PD-RFO
UMU
TR-10
RMU-PD-RFO
CMU
CMU-PD
UMU
CMU-PD
UMU-PD
RMU-PD-RFO
S MAIN STS MAIN STW 9TH AVW 9TH AV SSMMAAIINNSSTTBBRRIIDDGGEEPPIIOONNEEEERRDDRREE 1100TTHH AAVV
E 9TH AVE 9TH AV
W 7TH AVW 7TH AV
W 6TH AVW 6TH AV
W 8TH AVW 8TH AV
W 10TH AVW 10TH AV
C:\Users\brianw\Desktop\Sawdust Redevelopment Zoning Map.mxd User: brianw
Prepared by: City of Oshkosh, WI
Printing Date: 8/20/2020
1 in = 208 ft
1 in = 0.04 mi¯Zoning - Riverfront Mixed Use -Zoning - Riverfront Mixed Use -
Riverfront OverlayRiverfront Overlay
The City of Oshkosh creates and maintains GIS maps and data for its own use. They may show the
approximate relative location of property, boundaries and other feature from a variety of sources.
These map(s)/datasets are provided for information purposes only and may not be sufficient or
appropriate for legal, engineering, or surveying purposes. They are provided “AS-IS” without
warranties of any kind and the City of Oshkosh assumes no liability for use or misuse.DRAFT
DRAFT
DRAFT
Appendix B
Environmental Study Information
[Rest of this page intentionally left blank]
DRAFT
Appendix C
Sawdust District Master Plan
[Rest of this page intentionally left blank]
DRAFT
SAWDUST DISTRICT MASTER PLANJanuary 10, 2020
Chapter 1 – Context 2Purpose of the Sawdust District Master Plan 3Existing Conditions 3District History 6Imagine Oshkosh Master Plan 8Outreach Summary 9Chapter 2 – Sawdust District Plan 10District Wide 12Functional Subareas 28COMMON COUNCIL PLAN COMMISSION SAWDUST DISTRICT STEERING GROUPCITY STAFFSpecial thanks to 44 Degrees North Advertising & Design for the Sawdust District logo development.Lori Palmeri, MayorSteve Herman, Deputy MayorDebra L. Allison-AasbyMatt MugerauerBob PoeschlJake KrauseBill MillerThomas Fojtik, ChairJohn HinzKathleen Propp, Vice ChairLori Palmeri, MayorJohn KieferMike FordThomas PerryDerek GrothLynnsey EricksonJustin MitchellMamadou Yoyaga Sengan CoulibalyJavad AhmadDebra L. Allison Aasby, Council MemeberAmy AlbrightTom BelterBrian BurnsJohn Casper Bob CoglianeseSteve Cummings, Former MayorTom FojtikAudra HoyRob KlemanJason LaskyLori Palmeri, MayorDiane PenzenstadlerGreg PierceMark Rohloff, City ManagerHeidi StrandChet WesenbergJason WhiteJudi WilliamsBill WymanAllen DavisMark LyonsAlexa Naudziunas Kelly NieforthDarryn Burich, former Planning DirectorJim CollinsJustin GierachTABLE OF CONTENTS ACKNOWLEDGMENTSSPECIAL THANKSPrepared by Houseal Lavigne and Oshkosh Sta
4421267641454520th Ave20th AveWitzel AveWashington AveNew York AveSnell RdIrving Ave9th Ave9th AveOsborn AveWaukau AveWaukau AveOregon StOakwood RdWesthaven DrKapp StSawyer StJackson StVinland StMain StAlgoma
B
l
v
d Hughes StLakeWinnebagoL a ke Butte Des MortsLake MichiganLake SuperiorSawdust DistrictCENTER CITYCITY OF OSHKOSHGREEN BAYMADISONMILWAUKEEVAN DYKECITY OFOSHKOSHWittmanAirport (OSH)ZIONFISKRINGHARBORSPRINGSMIMNMIILCONTEXTThe Sawdust District Master Plan is the guide for the City of Oshkosh’s efforts to revitalize the historic District on the South Shore. It sets a vision for the area in the coming years and establishes definitive guiding principles, recommendations, and actions to achieve them. The Plan aims to organize development within the District into a unified, comprehensive endeavor, founded by community input. Acting as a guidebook for the community, the Plan should be utilized by City staff, officials, and stakeholders in the decision-making process of the District’s revitalization. Coordination with ongoing and future planning efforts and projects will be critical for the successful implementation of the Plan’s recommendations. In this Chapter: Planning Area (page 2) Purpose of the Sawdust District Plan (page 3) District History (Page 6) Imagine Oshkosh (page 8) Outreach Summary (page 9)PLANNING AREAThe Sawdust District boundary was developed based on the Imagine Oshkosh functional subareas. City staff led an exercise with the Sawdust District Advisory Group (SDAG) to help determine the official boundary for the district. The district includes the South Shore East and portions of South Shore Central functional subareas. The southern boundary extends to 17th Avenue in order to include a significant extent of the South Main Street corridor for development potential.the South Main Street corridor for development potential.2Sawdust District Master Plan
PURPOSE OF THE SAWDUST DISTRICT PLANThe Sawdust District is the South Shore extension of Oshkosh’s Center City, a collection of neighborhoods located in the historic core of the community. The District includes the South Main Street corridor and the dual waterfronts of the Fox River and Lake Winnebago. Known for its historic industrial uses, the District was once home to leading lumber and furniture companies. As the lumber industry decreased in the community, those former lumber uses transitioned into other heavy uses, influencing the development pattern to this day.In 2000, the City partnered with the Oshkosh Area Community Foundation and the Oshkosh Chamber of Commerce to develop a Downtown Action Plan. The Downtown Action Plan provided a framework and agenda that successfully guided capital improvement projects and private investment for more than 15 years, including Opera House Square, the Riverwalk, Leach Amphitheater, and streetscaping along North Main Street. In 2017, Imagine Oshkosh: A Master Plan for Our Center City was developed as an update to previous planning efforts to serve as a long-term vision and comprehensive investment strategy for the entire Center City.The Sawdust District Plan expands on Imagine Oshkosh by providing focused and detailed planning strategies for the area identified as the South Shore subarea in that plan. The new Sawdust District Plan will direct growth, development, and infrastructure investment while providing guidance and specific recommendations to assist in the redevelopment of the Sawdust District. PLANNING PROCESSThe Sawdust District Plan is the result of a planning process that was initiated in March 2018, following the adoption of Imagine Oshkosh: A Master Plan for Our Center City. The process was designed to allow input from the advisory group of stakeholders. The planning process for the Sawdust District Plan consisted of the follow items:1 – Project InitiationIn March 2018, the planning process kicked off with the first SDAG meeting. 2 – Past PlansA summary of existing plans and current conditions was developed and presented to the SDAG. The following Plans were reviewed with the group in preparation of the Sawdust District Plan: Imagine Oshkosh: A Master Plan for our Center City (2017) Imagine Oshkosh Existing Conditions Report City Center Corridors Plan (2018) Let’s Be Pioneers! Riverfront Visioning Workshops Public Input Summary Report (2014) Comprehensive Plan (2005) Fox River Corridor – Riverwalk Plan and Design Guidelines (2005) Downtown Action Plan (2000)3– OutreachThe outreach process for Imagine Oshkosh provided the foundation for the Sawdust District Plan, and regular SDAG meetings steered it toward completion. Additional outreach efforts included a project website, targeted mailings to local property owners and stakeholders, and key stakeholder interviews conducted in support of the planning process.4 – Framework PlansBased on input from outreach and a review of existing plans and conditions, preliminary framework plans and recommendations were developed to address land use, transportation, urban design, and public spaces.5 – Final Report and AdoptionThe draft Sawdust District Plan represents the final step in the planning process. The draft plan was presented to the community and SDAG for review and consideration. Based on feedback, the draft plan was amended and presented to Common Council for adoption.EXISTING CONDITIONS An analysis of existing conditions provides a foundation for developing policies and recommendations. It is important to understand the district as it is today in order to make recommendations for its development into the future. Extensive fieldwork and reconnaissance was conducted to establish an existing conditions baseline as part of the first phase of the planning process for Imagine Oshkosh. This Plan builds on that baseline, while providing updates where conditions have changed. The decline of the local lumber/furniture industry in the District has presented an opportunity to reimagine this formerly industrial part of the South Shore. The Sawdust District is an industrial area intermixed with auto-oriented commercial and single-family detached uses. Pioneer Island, currently vacant, is a notable waterfront site for development within the District. The existing industrial character is somewhat out of place with the surrounding Oshkosh neighborhoods, and many of the existing land uses are not of the highest quality. The South Main Street corridor, which provides a gateway to the Center City, needs a new wave of investment.The District presents a relative blank slate on many sites and efforts toward parcel consolidation will facilitate wholesale redevelopment into an exciting mixed use district at the foot of Downtown Oshkosh. The first example of significant redevelopment is the Menominee Nation Arena. However, all properties have not been cleared and certain industrial businesses will need to be voluntarily relocated to designated industrial parks. While the Arena is an example of ground-up redevelopment, to the extent possible, buildings with historic characteristics should be integrated into new development scenarios wherever possible.Sawdust District Master Plan3
Fox RiverLakeWinnebago456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandEXISTING LAND USEExisting land use provides an inventory of every parcel in the Sawdust District to identi how land is used within the planning area. An assessment and understanding of the Sawdust District’s existing land use plays an important role in shaping plan recommendations. The District provides a mix of uses east of South Main Street with transition to more residential uses to the south. On the west side of South Main Street, the District largely exhibits the South Shore’s historic industrial uses, although that is changing with the Menominee Nation Arena. The west side of South Main Street offers the most potential for development in the form of large vacant sites. At the north side of the District, the block between 6th and 7th Avenues along South Main Street provides an intact historic street wall exhibiting potential for mixed use and gateway development. Single-Family Detached. This land use category consists of single-family detached homes, many of which feature detached garages. Single-family detached homes in the district are located primarily on the west side of South Main Street between 10th Avenue and 16th Avenue. Single-Family Attached. This land use category includes residential structures with two or more dwell-ings that share a common wall, with each unit having its own dedicated entry, such as rowhomes and townhomes. A single-family attached development is located at Nebraska Street and 8th Avenue. Multi-Family . Multi-family residen-tial uses include multiple housing units typically sharing common internal building space such as stairwells or hallways, including apartments and condominiums. Small multi-family buildings are found throughout the District. Mixed Use. This category includes multiple distinct uses in a single building. The most common form of mixed use developments are ground floor commercial uses with residential or office uses located on upper floors. Mixed use buildings are currently found throughout the District. Commercial. The commercial category includes buildings for retail or service businesses. This includes only stand-alone/single-purpose and mixed commercial buildings. Mixed-use buildings with residential uses on upper floors are not included.Office. Office and finance uses include banks, law firms, medical offices, and other office uses. There are a few former homes along South Main Street used for offices. Entertainment and Hospitality. Entertainment and hospitality uses include the riveront, and the Menominee Nation Arena, and the associated parking between 11th Avenue and South Park Avenue. The arena is the primary entertainment use in the District. Industrial. Industrial uses include manufacturing, storage, heavy commercial facilities, recycling, and more. Most industrial uses in the District are located between South Main Street and Pioneer Drive. Additional smaller industrial businesses occupy parcels inter-spersed along the west side of South Main Street.Public/Semi-Public. Public and semi-public land uses include a variety of community facilities. The Oshkosh Area School District maintenance building is the single example of this use in the District. Parks and Open Space. Land classi-fied as parks and open space includes portions of the District’s open areas along the wateront. Marina. This category consists of land along the wateront dedicated to water access or harbors with moorings. Marina uses are located on the Fox River west of the South Main Street bridge as well as south of Pioneer Island.Rail/Utilities. Rail and utility uses in the District include Canadian National (CN) railroad right-of-way and the CN Oshkosh rail yard.Parking. This land use classification includes parcels whose primary use is either public or private parking.Vacant. Vacant property consists of sites that currently contain no standing structure or use. Vacant parcels are located throughout the District, with the largest vacant site occupying the block between 8th and 9th Avenue on the east side of South Main Street. 0500 1,000250FEETNORTH4Sawdust District Master Plan
Fox RiverLakeWinnebago456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandCURRENT ZONINGThe City’s Zoning Ordinance is Chapter 30 of the Oshkosh Code of Ordinances. The Sawdust District currently contains five standard zoning districts and two overlay zoning districts, which regulate the usage and intensity of land. The overlay zoning districts are intended to address special land use circumstances beyond those addressed by the underlying standard district. TR-10: Two Flat Residential. This district intended to create, preserve, and enhance areas for single family detached and two flat dwellings at an approximate density of 10 dwelling units per acre. (Section 30-41)UMU: Urban Mixed Use. This district is intended to permit areas, generally on the inge of Downtown, that are mixed use in character and establish standards that are compatible with the existing mix of land uses and redevelopment objectives. This district is intended to provide for a variety of employment, retail and community service opportunities, while allowing some residential uses at an approximate density of up to 36 dwelling units per acre. Residential uses should not become the majority ground floor land use in this district. Uses shall be compatible not only with other uses within the district, but land uses in adjoining zoning districts as well. (Section 30-53)CMU: Central Mixed Use. This district is intended to permit both large- and small- scale downtown commercial development at an intensity which provides significant incentives for infill development, redevelopment, and the continued economic viability of existing development. The district is also intended to retain the existing “main street” characteristics of the core blocks in Oshkosh’ s historic downtown. Residential uses are intended to occur at a minimum approximate density of 10 dwelling units per acre. (Section 30-54)RMU: Riveront Mixed Use. This district is intended to protect aesthetics and water quality while accommodating the wide variety of both indoor and outdoor land uses that benefit om locating adjacent to the Fox River. Residential uses are intended to occur at a minimum approximate density of 10 dwelling units per acre. (Section 30-55)HI: Heavy Industrial. This district intended to provide space for manufacturing and industrial operations which are potentially incompatible with residential and commercial uses. (Section 30-62)RF-O: Riveront Overlay. The purpose of this overlay district is to improve the quality of development along the riveront by applying enhanced building design standards and land use regulations in the area defined by the mapped boundaries of the Riveront Overlay District. (Section 30- 159)PD-O: Planned Development Overlay. The purpose of this overlay district is to provide for the possible relaxation of certain development standards pertaining to the underlying standard zoning district. Planned develop-ments allow diversification and variation in the relationship of uses, structures, open spaces, and heights of structures in developments conceived and implemented as comprehensive and cohesive unified projects. The Planned Development Overlay District shall allow develop-ment to be designed, reviewed, approved, constructed, and managed as approved by the Common Council rather than required by the underly-ing zoning district. (Section 30-158)0500 1,000250FEETNORTHSawdust District Master Plan5
DISTRICT HISTORY Source: Oshkosh Public Museum archivesThe Sawdust District has a rich history of business and industry. The District was historically located within the boundary of the City’s 3rd Ward, an area that saw a series of rebuilding periods as natural disasters, fires, and changes in the economy have affected properties and businesses. The location near water sources has historically driven activity in the area, and the waterfronts continue to encourage activity today.LUMBER INDUSTRYOshkosh, and the South Shore area in particular, provided an attractive location for lumber industry development due to its proximity to woodlands in the north as well as diverse and growing markets in the Midwest industrial cities.Oshkosh was considered the lumber capital of the world at the height of the lumber boom in the early 1870s, with 24 sawmills, 15 shingle mills, and 7 sash and door companies in operation, earning Oshkosh the nickname “Sawdust City.” FOX RIVER AND LAKE WINNEBAGOAt the northeast corner of the District, The Fox River flows east through Oshkosh and into Lake Winnebago, a shallow freshwater lake that is the largest entirely within the state. Known as the Lower Fox at Lake Winnebago’s west central shore, it has long supported human activity, including indigenous people and Native American cultures. The first Europeans to reach the Fox were French, and during the French colonization of the Americas, this route was used frequently by fur traders. The Fox River’s importance continued into the 1850s, when locks, dams, and a canal enabled the Lower Fox to develop as a center of riverfront industry. During the mid-19th century, several flour mills were built along the river to harness its waterpower. Paper mills replaced these as Wisconsin’s wheat production declined. The Lower Fox proved to be an ideal location for paper production, owing to its proximity to lumbering areas that could supply wood pulp to make paper. Several well-known paper companies were founded in cities along the river.BREWINGBeer brewing was an important business in the South Shore neighborhood, with Oshkosh Brewery dating to 1866. By 1894, the brewery merged with two others to form Oshkosh Brewing Company. Oshkosh Brewing Company, located on the south side of the Fox River, coined the marketing slogan “By Gosh It’s Good.” Its Chief Oshkosh brand became a nationally distributed beer.Peoples Brewery, a competitor, was founded on South Main Street in 1911. Peoples Brewery eventually grew, occupying the entire block between 15th and 16th Avenues, where it stood until demolition in 1974. However, elements of the original brewery remain in the Sawdust District. The bottling department and offices have been incorporated into the Blended Waxes building at 1512 South Main Street, and a brewery garage is located on 15th Avenue.Oshkosh Public Museum P1935.2.15Oshkosh Public Museum P2003.20.10326Sawdust District Master Plan
BROOKLYN FIRE HOUSEBuilt in 1868, the Brooklyn Fire House is was designed by the architect William Waters. The building is on both the State and National Registers of Historic Places. Decommissioned due to age in 1947, the location of the building at 17 West 6th Avenue means it has potential to be is a significant gateway feature for the north side of the Sawdust District. It is a leading example of the historic structures that make up the fabric of the neighborhood and preservation should be a priority for this key building. BUCKSTAFF COMPANYThe firm of Buckstaff-Edwards Company was organized in 1881, and while it primarily manufactured chairs and rockers, at various times in the company history, it also manufactured caskets, burial robes, funeral cars, hearses, novelty furniture, and toys. With ownership changes in 1912, the name was changed to simply the Buckstaff Company. The company continued to manufacture furniture into the 21st century until the factory closed in 2011. MENOMINEE NATION ARENAThe Menominee Nation Arena is a 64,300 square foot, 3,500 person capacity indoor arena built on the old Buckstaff Company site. The primary use of the arena is for basketball, and it is the home of the NBA G League’s Wisconsin Herd, an affiliate team for the Milwaukee Bucks. The arena also acts as a venue for a variety events, ranging from a winter farmer’s market to musical performances. The development of the arena is a catalyst for the Plan, as it generates significant activity and brings people to the Sawdust District from throughout Oshkosh.PIONEER INN RESORT AND MARINAPioneer Island is located east of Pioneer Drive, south of the confluence of the Fox River and Lake Winnebago. The Pioneer Inn Resort and Marina was constructed and began operation on the island in 1965. In 2004, the resort owner partially demolished the existing hotel with plans to rebuild, but it closed in 2005 after those plans did not proceed. Since that time, the marina has continued to operate but the site has otherwise remained idle and underutilized.RAILROAD The Canadian National (CN) railroad right-of-way and the CN Oshkosh rail yard are prominent features of the Sawdust District, providing reminder of the industrial heritage of the District and the important role that freight transportation still plays in the City. The active CN rail line runs through the Sawdust District in a north-south direction. Oshkosh Public Museum P2003.20.354Oshkosh Public Museum P193611Oshkosh Public Museum P2003.20.386Oshkosh Public Museum P1938.05.01Sawdust District Master Plan7
IMAGINE OSHKOSH The Sawdust District Plan emerged from outreach undertaken in support of Imagine Oshkosh. Residents and Center City stakeholders were engaged early in the process through a diverse variety of outreach methods, including public workshops, interviews and focus groups, and an interactive project website, which featured an online community issues mapping tool. Outreach collected from the Imagine Oshkosh planning process specific to the Sawdust District is detailed below, providing relevant community feedback that should be considered in the Sawdust District Plan.REVITALIZING VACANT AND BLIGHTED AREASParticipants stated that they would like to see vacant structures either torn down or repurposed, based on the quality of the building and the stability of the block. Much attention was paid to former industrial areas on the south side of the river. Participants noted façade improvements for historic South Main Street buildings and investment in blighted residential neighborhoods as top concerns.HISTORIC CHARACTERMany individuals focused on the City’s past and Oshkosh’s rich inventory of historic buildings, expressing a desire to preserve the historic character. Specific actions noted included establishing a façade rehabilitation program and updating all signage to historic standards.NEED FOR A DIRECT ARTERYIt was noted that City should improve unattractive areas along arterial routes, such as South Main Street, to help communicate a positive first impression of Oshkosh and help draw visitors into Center City.CATALYTIC REDEVELOPMENTCatalytic redevelopments are major projects that can spark adjacent and surrounding development, leading to a chain effect of investment. Participants identified the need to activate the waterfront by completing the Riverwalk and promoting redevelopment of key sites, including the Buckstaff Company site, which has since been redeveloped for the Menominee Nation Arena. Residents suggested developing mixed-use destinations on the parcels, including retail, residential units, and hotels. With the Menominee Nation Arena now acting as a catalytic redevelopment, the viability of each envisioned use from outreach has increased. Redeveloping Pioneer IslandParticipants stated that they would like to see vacant structures either torn down or repurposed, based on the quality of the building and the stability of the block. Much attention was paid to former industrial areas on the south side of the river. Participants noted façade improvements for historic South Main Street buildings and investment in blighted residential neighborhoods as top concerns.Fox River DevelopmentResidents noted the positive impact the Riverwalk has had on the waterfront and would like to see it completed. Further, many felt that this amenity could be complimented by additional private investment that could also capitalize on the scenery and recreation along the waterfront, including new mixed-use development and corporate campuses. Emphasis was placed on the South Shore.Opportunity Sites Map from the 2017 Imagine Oshkosh Master Plan8Sawdust District Master Plan
OUTREACH SUMMARY Community outreach is critical to the Sawdust District Plan. Local outreach began with informative mailings sent to 79 property owners and stakeholders in the District, outlining the process and identifying the purpose of the Plan. The mailings provided a map of the District, a link to the Plan website, and included a request for input. Subsequent outreach efforts, detailed below, guided the planning process and is directly reflected in the recommendations and policies of the final Plan. STAKEHOLDER INTERVIEWSCity staff conducted nine one-on-one key stakeholder interviews designed to provide individuals an opportunity to engage with the planning process in a conversational setting. The goal was to examine nuanced information in finer detail from local stakeholder perspectives, and to more accurately assess conditions and potentials. Interview questions focused on the following topics: Current District Character Future District Character Land Use Future of Development, Redevelopment, and Housing Environment Economic Development TransportationSAWDUST DISTRICT ADVISORY GROUP (SDAG)Between March 2018 and July 2019, the advisory group met nine times to provide input on the Plan. Participation in the SDAG regularly included between 12 and 18 residents, community stakeholders, and City staff. The group worked to establish boundaries for the district and the functional subareas, create a logo and branding elements for the project, and expand upon recommendations identified in Imagine Oshkosh. Most importantly, the group was tasked with providing feedback and input to City staff as the Plan was created. Visioning ExerciseIn May 2018, the SDAG participated in an interactive exercise using a strengths, weaknesses, opportunities, and threats (SWOT) format to further develop a vision for the Sawdust District. The results of the workshop provided direction for the vision and are directly reflected in the policies and recommendations of the Plan. What is a Vision Statement?The vision statement sets forth an aspirational narrative that articulates the collective desires of the community and serves as the foundation for the strategies and recommendations set forth in the Plan. Through a series of public meetings, the SDAG identified improvements and changes they would make in the District. Knowing the intent of the stakeholders, and working under the framework of Imagine Oshkosh, the SDAG developed the Sawdust District vision statement in coordination with City staff. The vision statement also incorporates other information gathered through the planning process and imagines the district as it will be in the future, expressing ideas and concepts and describing an ideal scenario.Strengths Waterfront Walkable environment Local history Development ready area Quality buildings Available land City commitment to the area Major gateway Extends the Center City Adjacent neighborhoodsWeaknesses Environmental conditions Railroad Blight on Pioneer Island Adjacent neighborhoods Complex development Not directly accessible from highway Too many property owners control available land Opportunities Establish the area as an entertainment district Redevelopment of Pioneer Island Waterfront development New Menominee Nation Arena Threats Costly soil remediation Landowners may not want to develop or invest in their property Competition with other communitiesSawdust District Master Plan9
VISION STATEMENTThe Sawdust District, nestled in the heart of the Center City at the confluence of the Fox River and Lake Winnebago, is a regional destination containing an eclectic mix of businesses, entertainment venues, and residential opportunities. The dynamic neighborhood is active year-round, providing a variety of experiences for residents and visitors alike. People choose to live in the District due to the great quality of life supported by a diversity of housing options and convenient proximity to amenities, including shopping, lake and riverfront open spaces, trail connections, and a unique industrial heritage. Visitors come to enjoy the same amenities, and to experience the energetic excitement that surrounds Menominee Nation Arena on gameday or during a special event. The pedestrian-friendly environment of the District, enhanced by thoughtful streetscaping and roadway design, encourages activity at a human scale. New development complements the existing eclectic character, and buildings with historic characteristics are treasured as local assets and an integral part of the City’s fabric. Mixed use infill development along South Main Street has further encouraged people to interact daily with each other and their environment on the street. The District is well-connected to its surroundings, with development and transportation patterns engaging and respecting adjacent neighborhoods. Throughout Oshkosh, the Sawdust District waterfront has developed a reputation focused on public use and enjoyment, complementing the variety of activities and places found there. GUIDING PRINCIPLESImagine Oshkosh included key recommendations specific to the Sawdust District. These remain valid and are expanded here as guiding principles for the Sawdust District Master Plan. Recommendations and strategies articulated throughout the Plan support these guiding principles. Develop an Exciting, Mixed-Use DistrictThe success of retail and dining options depend on a residential population in proximity. A good housing mix exists in the Sawdust District, however, enhancing excitement and vitality will depend on the introduction of new housing options and businesses arranged in a mixture of land uses. The Sawdust District Master Plan strives to strengthen the mixed-use environment to this end.Encourage a Pedestrian-Oriented EnvironmentA mix of uses can also encourage pedestrian activity. The Plan intends to achieve a pedestrian-oriented environment for the District, especially along South Main Street, that improves mobility while minimizing pedestrian and automobile conflicts. Capture the Eclectic CharacterHistoric buildings and features define the district. To maintain the unique, eclectic character they provide, the Plan focuses on preserving and integrating them into new development scenarios wherever possible.Embrace the WaterfrontThe confluence of the Fox River and Lake Winnebago provide a waterfront, which the Plan aims to further cultivate and expand as an asset for the District and the larger Oshkosh community. Development of the Riverwalk and improvements to Pioneer Island will reinforce the South Shore waterfront as a lively and valuable community gathering space.SAWDUST DISTRICT PLANRecommendations for the Sawdust District are provided district-wide where appropriate. Detailed and specific recommendations are further defined for the six functional subareas.In this Chapter: District-Wide Recommendation (page 12) Fuctional Subareas (page 28)10Sawdust District Master Plan
45234978111514132810125116171918202122232629316302425271. Pedestrian and bike access along existing bridge and an under pass connecting the riverwalk2. Gateway feature and plaza space announcing the entrance into the Sawdust District3. Office or mixed use building4. Single-family attached5. Public plaza and open space6. Mixed use infill development along South Main Street7. Mixed use development (commercial and restaurants uses on the groundfloor with office and residential uses on the upper floors)8. Office or mixed use building9. Mixed use development (commercial and entertainment uses on the groundfloor with office and residential uses on the upper floors)10. Parking for mixed use development along South Main Street11. Parking deck for office or mixed use (3 levels)12. Riverwalk13. Multi-family development14. 9th Avenue extension/connection15. Trailhead and parking16. Pedestrian bridge17. Multi-family development18. Hotel / resort19. Pioneer plaza and gathering area20. Existing marina, boat storage, and boat docks21. Multi-family development22. Trails, open space, and berm buffering existing railyard23. Arena24. South Main Street roadway improvements (using expanded right-of-way)25. Adjacent residential neighborhood26. Commercial infill development along South Main Street27. South Main Street roadway improvements (using current right-of-way)28. Commercial infill development along South Main Street29. Multi-family development30. Multi-family development31. Single-family attached Sawdust District Redevelopment PlanCONCEPTUAL VISUALIZATIONCONCEPTUAL VISUALIZATIONPrepared by Houseal LavignePrepared by Houseal LavigneSawdust District Master Plan11
LAND USE The Sawdust District contains a mix of land uses divided by South Main Street and framed by water on two sides, however, the prominence of vacant property and street-fronting surface lots can create the impression of an empty, inactive area. The land use plan serves as a blueprint for the location and type of future growth and development within the Sawdust District, outlining desired future uses on a parcel-by-parcel basis. The land use plan identifies uses for parcels to encourage new development that can create jobs and spur investment. Land uses shown on the future land use map have been selected as appropriate in the Sawdust District based on fieldwork and outreach conducted for Imagine Oshkosh, as well as subsequent fieldwork, outreach, and aerial examination. The future land use map shows a potential scenario defining where specific land uses may be located. The functional subareas provide further information on specific land uses. SINGLE-FAMILY ATTACHEDRowhomes, townhomes, and duplexes increase density and act as a middle-scale housing component between single-family detached neighborhoods and multi-family developments. These uses should be considered in key areas to provide a seamless transition into single-family neighborhoods to the west and south of the Sawdust District. MULTI-FAMILYTo generate pedestrian traffic and improve housing options for residents in all stages of life, multi-family housing should be developed in the district. There is significant opportunity for this housing type, including in new lakefront development areas near the marina, on either side of 10th Avenue, and at the south end of the District. Multi-family housing options should be available at a variety of price points in rental and condo configurations to serve young professionals, senior residents, and workforce residents. MIXED USEMixed use development is key to the walkability of the Sawdust District and should be the definitive land use found along the South Main Street corridor. Mixed use developments improve housing options and increase local retail opportunities. Building types should contribute to the street wall that will define South Main Street. COMMERCIALTo serve the whole corridor, larger commercial developments should be considered between 14th and 15th Avenues on the east side of South Main Street. Parcels on the northwest side of 14th Avenue and South Main Street provide additional opportunity for commercial uses. Commercial uses in this part of the District should further support Arena activity and provide shopping opportunities for the whole neighborhood, with easy access from US 45 to the south.ENTERTAINMENT AND HOSPITALITYEntertainment and hospitality uses should be increased in the District. Catalyzed by the Menominee Nation Arena, new hospitality uses should be developed on Pioneer Island. New entertainment development should be encouraged immediately south of the Arena, providing additional opportunities to visitors and residents. OFFICEOffice uses generate daytime activity and support local businesses and restaurants, especially during the lunch hour. Smaller office spaces should be considered on the east side of the South Main Street corridor between 14th and 16th Avenues. The parcel on the east side of South Main Street between 7th and 8th Avenues should be developed for a larger office/business park use with access to the South Main Street corridor and the Riverfront. DISTRICT WIDERecommendations specific to the needs of each functional subarea establish the approach for improvement and enhancement going forward. Detailed and specific recommendations are articulated around desired land uses, catalytic sites, design and redevelopment, specific transportation improvements, public spaces, and placemaking components for each of the subareas.In this section: Land Use (page 12) Transportation (page 14) Placemaking (page 23)12Sawdust District Master Plan
Fox RiverLakeWinnebago456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandSingle-Family AttachedMulti-FamilyMixed Use CommercialEntertainment and Hospitality OfficeIndustrialParks and Open SpaceMarinaRailroadPublic Parking LAND USE PLAN0500 1,000250FEETNORTHINDUSTRIALThe industrial use on the south side of the District remains appropriate as South Main Street in the District transitions to US 45. This use should be maintained to provide stable employment and draw regional daytime activity to the area. PARKS AND OPEN SPACEPublic open space should be further developed as a distinguishing feature of the District. Waterfronts are premium spaces, and the confluence of the Fox River and Lake Winnebago means that the District boasts two. The District should fully embrace these waterfronts by preserving public open space and providing river and lakefront access to all. MARINAThe marina should be updated and maintained as a key waterfront component that contributes to the unique character of the Sawdust District. Long term, the marina use should continue to provide recreational opportunities for boating and fishing on Lake Winnebago. RAILROAD The Canadian National (CN) Railway right-of-way and the CN Oshkosh rail yard are components of CN’s active North American rail network. The railroad right of way will remain active for the foreseeable future and should be maintained as a land use in the District. PUBLIC PARKINGPublic parking should be considered carefully to provide adequate space for the area. With new entertainment uses and a thriving South Main Street corridor, proposed parking between 8th and 9th Avenues should serve new open space along the riverfront, support new businesses along South Main Street, and provide convenient overflow access for evening events.blendedwaxes.comSawdust District Master Plan13
Fox RiverLakeWinnebago456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandArterial RoadCollector RoadLoca RoadAlley and AccessRoadway ExtensionRoadway VacationAverage Daily Traffic CountsROADWAYS0500 1,000250FEETNORTH#12,00010,5009,0003,6005,3002,400TRANSPORTATION To support a dynamic environment, the District’s transportation system must be comprehensive and multimodal. At the functional heart of the District is the need to get around – on foot, by bike, car, or bus. As an extension of the Center City, the Sawdust District should provide a pedestrian-oriented environment while accounting for the other modes. Adequate parking, without a surplus, should be available. The Sawdust District already enjoys convenient access and mobility. As the desired increase in intensity of uses occurs, a fully connected system will need to be supported by the improvements identified in this section. These include planned and necessary capital improvement projects, parking recommendations, complete street principles, pedestrian and bicycle mobility enhancements, and transit connections. COMPLETE STREET ELEMENTSA complete street is a roadway that is designed to be safe for all users of the transportation network, including motorists, transit riders, bicyclists, and pedestrians. At its foundation, complete streets reclaim the roadways and equally account for the full spectrum of potential users. This does not mean that automobile movement is ignored, but rather, complete streets seek to incorporate sidewalks, bike lanes, transit stops, and other elements within the roadway. A key recommendation in Imagine Oshkosh was to develop a complete streets plan. The City should also consider adopting a complete streets policy to encourage implementation of complete streets elements as road infrastructure is maintained and updated. The recommendations with the Sawdust District Master Plan are intended to align with a complete streets approach to the greatest extent possible, given roadway constraints in the DistrictROADWAYS There are four types of roadways within the Sawdust District, each with their own design and purpose. Roadway types include: Arterials carry the major portion of trips entering and exiting the urban area. South Main Street is the only arterial in the District, functioning as a primary route in and out of Oshkosh. Collector Roads connect neighborhoods to South Main Street and are intended to provide access to neighborhood amenities and community facilities. Local Roads serve the largely single-family neighborhoods to the west of the District. Alleys and Access Roads provide utility and service connections for businesses in the District. Changes to the roadway network within the Sawdust district include the extension or vacation of existing roadways. Roadway Extensions are proposed to improve connectivity and strategically complete the street grid. Roadway Vacations are intended to create opportunity for better access to the riverfront or to create opportunities to consolidate parcels for larger development or open space opportunities.14Sawdust District Master Plan
Shared Turn LaneRight-of-WayTravel LaneParkingPedestrianZonePedestrianZoneTravel Lane60’Right-of-WayTravel LanePedestrianZonePedestrianZoneTravel LaneParkingParking60’Collector Roads The District is served by two collectors, 9th Avenue and South Park Avenue, each intended to connect surrounding neighborhoods to South Main Street and provide access community destinations, such as schools, churches, parks, and shopping areas. At the north end of the District, 6th Avenue is a collector road, designed to distribute and collect traffic between local roads and arterials. 6th, 9th, and South Park Avenues should be comfortable places to drive, walk, and bicycle. Collector roads leading to and from the Sawdust District should be pedestrian-oriented with standard six-foot sidewalks, highly visible striped crosswalks, and parkways to create a separation between pedestrians and the roadway. The typical 60-foot right-of-way may also accommodate dedicated on-street parking or bike lanes. Streetlights should be both pedestrian and vehicularly scaled, with banners to promote the Sawdust District and special events. Street trees should be located within the parkway or in tree grates in the sidewalk depending on sidewalk width. Further, design elements from the South Main Street roadway treatment should be incorporated to reinforce a unified design theme throughout District. Utility lines should be buried if feasible. The City’s 2020-2024 Capital Improvement Plan (CIP) identifies a possible project to reconstruct 9th Avenue from South Main Street to just west of the CN Railroad tracks. Recommended improvements should coordinate with this project.Local RoadsLocal roads serve the largely single-family neighborhoods to the west of the District, but also connect to South Main Street in alignment with the City’s grid system. Local roads are quieter and less busy than collector roads and connect adjacent neighborhoods to and from the District. Considering wide lane widths, parking may occur on-street but does not necessarily require demarcation. Standard six-foot sidewalks are appropriate within the pedestrian areas, along with a tree-line parkway to enhance the image of local roads. Streetlights within the parkway should be scaled for vehicles. Given the low volume of traffic, crosswalks do not necessarily have to be striped or formalized and designated bike lanes are not necessary. Alleys and Access RoadsStreet-fronting buildings on the west side blocks of South Main Street between 9th and 16th Avenues are served by alleys, a workhorse component to the District’s transportation system. Alleys provide convenient rear access to businesses for deliveries and garbage pickup, keeping the utilitarian side of local businesses out of the public thoroughfare. These alleys should be maintained as a key component of South Main Street. The conditions of the alleys should be well maintained and free of visual clutter or litter. Screening should be encouraged for unattractive outdoor utility boxes and trash cans. Example Images1.) Minor arterial roadway with on-street parking and landscaping 2.) Minor arterial roadway with decorative brick and designated parallel parking 3.) Minor arterial with designated parallel parking 4.) Collector roadway with parkway, landscaped median, and designated bike laneExample Images1.) Residential roadway 2.) Residential roadway 3.) Commercial uses parking and secondary access from alley 4.) Residential uses accessed from alley24241313Sawdust District Master Plan15
Turn LaneRight-of-WayTravel LanePedestrianZonePedestrianZoneTravel Lane60’Right-of-WayTravel LanesPedestrianZonePedestrianZoneTravel Lanes60’Turn LaneRight-of-WayTravel LaneParkingParkingPedestrianZonePedestrianZoneTravelLane80’6th Avenue to 8th AvenueThis section should undergo a road diet to allow for a central turning lane and a wider pedestrian zone. A road diet reduces lanes in number or size to use the space for other modes of transportation or street elements. In this case, wider sidewalks with grated trees are added to provide a safer and more comfortable pedestrian experience. Due to the lack of space for bike lanes, bike inastructure can be provided as sharrows along travel lanes. Sharrows indicate bicyclists share lanes with automobile traffic. Bikeway facilities are further defined in the bike network section. 8th Avenue to South Park AvenueThe most significant enhancements and road diet should be implemented along this section. As development occurs, property along the east side of South Main Street should be acquired to increase the right-of-way to 80 feet by extending it eastward. The new roadway composition should include two on-street parking lanes, two travel lanes, a central turning lane, and wide sidewalks with grated trees. Bike inastructure should be provided as on-street sharrows or by converting a parking lane to dedicated bike lanes.South Park Avenue to 17th AvenueDue to the limited width of this section’s right-of-way at 60 feet, decreased lane widths to 11 feet should be considered. Landscaping should be provided on either side of the road, and six-foot sidewalks should be maintained. SOUTH MAIN STREET South Main Street functions as an arterial, carrying a major portion of trips into the Center City and functioning as a primary route in and out of Oshkosh. To the south, South Main Street transitions to Highway 45, a north–south United States highway spanning the country from border to border. South Main Street serves as the spine of the Sawdust District and should be the focus of future roadway improvements. To be successful, South Main Street must exhibit design considerations and elements that work together to make the District attractive and welcoming. Many of these components can already be found in other areas of Oshkosh, a testament to past planning, decision making, and City leadership. South Main Street should further build on this existing foundation by creating a corridor that is highly accessible for both pedestrians and vehicles and landscaped where right-of-way width allows. To foster a pedestrian environment, wide and comfortable sidewalks should be provided with opportunities for mid-block crossings. At key intersections, visible crosswalks with varied materials should be constructed to increase safety and create traffic-calming effects. Shade trees, attractive sidewalk landscaping, pedestrian-scaled lighting, and outdoor seating and amenities can also help strengthen pedestrian-orientation. The City should work with property owners to enhance South Main Street with attractive storefronts featuring hospitable entrances, large display windows, and awnings. Mixed use buildings with commercial on the ground floor and office and/or residential above should be promoted to activate the corridor, along with rooftop spaces and sidewalk cafes. Public gathering places and open spaces are also desirable. On-street parking should be provided for convenience, but also for pedestrian comfort. Parking lots should be located behind buildings with attractive paths connecting to the street.The most recent South Main Street traffic counts were conducted in 2019 for the segment between 8th and 9th Avenues in the District. AADT was measured at 12,200 vehicles. An additional South Main Street count measured AADT at 9,000 vehicles between South Park Avenue and 12th Avenue in 2016. The City’s 2020-2024 Capital Improvement Plan (CIP) identifies the entire section of South Main Street in the District for full reconstruction in 2023, including public utilities and laterals. The Plan divides South Main Street into three improvement sections, with a variety of recommendations to be considered based on traffic volumes and surrounding uses. These recommendations should be considered before and during reconstruction. 16Sawdust District Master Plan
Short Term ImprovementsWithin the next two to three years, the City should restripe South Main Street to designate on-street parking, two travel lanes, and a central turning lane. Interim striping can improve the roadway before the larger improvements outlined in the CIP take place. Existing Cross SectionThis cross section displays the existing conditions of South Main Street. Currently, there is a lack of landscaping and sidewalks run directly next to oncoming traffic, creating an uncomfortable walking experience. Long Term ImprovementsAer the acquisition of additional land to the east, the City should expand the right-of-way eastward to include wide pedestrian areas on both sides of the street with sidewalks, grated trees, two on-street parking lanes, two travel lanes, and a central turning lane.SOUTHEAST VIEW OF MAIN STREETPLAN VIEWPHASING OF SOUTH MAIN STREET ROAD DIETAs road diets can be a costly and lengthy process, intermediate improvements can be implemented to provide initial, short term enhancements. The City should phase improvements between 8th Street and South Park Avenue as short and long term improvements.Sawdust District Master Plan17
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandExisting On-Street ParkingProposed On-Street ParkingNo On-Street ParkingProposed Shared Parking Lot or Garage PARKINGPARKINGParking in the Sawdust District should accommodate visitors, employees, and residents. Parking areas should consist of a combination of on-street parking and carefully considered off-street parking lots or structures.On-Street ParkingOn-street parking areas should be designed to provide short-term convenient parking. On-street parking narrows the street crossing width, encourages slower speeds, and provides a buffer between moving motor vehicle traffic and pedestrians along a sidewalk. A road diet and right-of-way expansion along South Main Street from 7th Avenue to South Park Avenue will allow for parallel on-street parking. Additional on-street parking should be considered along collector roads. On South Main Street, businesses should be permitted to count on-street parking in front of the business toward parking minimums, reducing the need for additional off-street parking. Off-Street Parking Off-street parking lots and structures should be designed and located so that they are safe, efficient, and do not disrupt the pedestrian scale of the Sawdust District. Off-street public parking is proposed between 8th and 9th Avenues and Nebraska Street and 8th Avenue to serve new open space along the riverfront and businesses along South Main Street. It should also provide convenient access for overflow evening event parking when needed. Long term, a parking structure should be considered between 8th and 9th Avenues before additional surface lots are developed. The structure should be set behind street-fronting mixed use buildings on South Main Street and should be screened and landscaped on the ground floor to maintain a pleasant pedestrian experience. DesignCertain off-street parking designs should be implemented along South Main Street throughout the District: Between 6th Avenue and 11th Avenue, parking should be not be visible from South Main Street. All parking, whether public parking or an accessory lot for a business, should be accessed off a side street and located to the rear of buildings wherever possible. From 11th Avenue to 17th Avenue, parking located along South Main Street should be accessed from the cross street to reduce the number of curb cuts. All parking lots should be well landscaped and screened from South Main Street. Shared ParkingShared parking is a best practice which allows for parking to support different uses at different times of day. Shared parking can be formed by agreement between two businesses, or between a business and the City. An example in the Sawdust District could be the Arena offering daytime parking to support local businesses when no Arena events are scheduled. The City should investigate shared parking agreements to maximize existing surface lots in the District. Public parking furthers the shared parking concept by providing facilities for all to use. Parking SignagePublic awareness should be improved with methods to inform the community of public parking options within the Sawdust District. The development and implementation of a signage and wayfinding program, community outreach efforts, and a public parking branding strategy that is cohesive with Center City parking should make access easy and clear, especially for visitors. 1234567Example Images1.) Parking garage 2.) Parking lot designed with pedestrian connections 3.) Parking screened with brick knee wall and landscaping 4.) Public parking lot signage 5.) Parking lot designed with pedestrian connections and interior landscaping 6.) Parking lot screen with landscaping 7.) Public parking lot signage18Sawdust District Master Plan
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandExisting Bike RouteProposed Bike RouteExisting RiverwalkProposed Riverwalk Proposed Trail Proposed TrailheadTRAILS AND BIKE ROUTESTRAILSThe Sawdust District has the capacity to improve on the larger Oshkosh trail network by developing key trail segments and connections to the Riverwalk along the Fox River and Lake Winnebago. New lake and riverfront development should continue to incorporate trail connections. A new trail along the existing railway should be developed to provide a key north-south route in the District, providing connections to the Riverwalk at the trailhead locations and contributing to a cohesive system. Ultimately the trail system in the District should be pleasant but also utilitarian, serving as both a useful transportation connection and a place for leisure. Trail wayfinding should cohesively integrate with the bikeway wayfinding system.Trailheads The two proposed trailheads should provide active transportation nodes, acting as multimodal basecamps along the waterfront, connecting trails, the Riverwalk, and bike routes. The first, at 9th Avenue and Pioneer Drive, should be the nonmotorized gateway to the District and the waterfront. Trailhead signage should include a history of the Sawdust District and provide a wayfinding map to encourage enjoyment of the area on foot. Water fountains, benches, and dog waste stations should be provided.At 14th Avenue and Pioneer Drive, a south gateway trailhead should mark the entrance to the system with similar amenities provided. The 14th Avenue trailhead should connect to the marina, orienting trail users to the waterfront and boaters to the District. BIKE NETWORK To encourage biking as a viable, safe, and enjoyable mode of transportation in the District, a quality bike network should be developed. Close consideration should be given to the detailed bike and pedestrian improvements outlined in the City’s 2019 Bike and Pedestrian Master Plan. The network should be well-connected and defined along key arterials and collector roads, allowing residents from adjacent neighborhoods and even from neighboring communities to feel comfortable biking throughout the Sawdust District. Expanding the Network The City’s 2019 Bike and Pedestrian Master Plan identified South Main Street, 12th Avenue, Pioneer Drive, and the Riverwalk around the perimeter of Pioneer Island as new bikeway facilities which should be developed. The Bike and Pedestrian Master Plan included the following criteria for identifying recommended facilities: Formalizing safe routes from origins to destinations. Eliminating gaps within the current network. Continuing the expansion of the existing off-road facilities utilizing natural and other areas of opportunity. Improve access and connectivity for bicyclists and pedestrians within the Oshkosh community.The Sawdust District offers great potential to improve recommended facilities that meet each of these criteria while adding a new waterfront component to the City’s bike network. On-street, improvements should include dedicated bike lanes wherever right-of-way width allows; where lanes cannot accommodate a full bike lane, sharrows demarcating shared-lane routes should be incorporated. Bikeways should be well-marked by necessary striping and pavement markings. All bikeways should be clearly designated with signage, which can be incorporated within a broader wayfinding program as well as streetscaping enhancement projects. Bikeway wayfinding should also cohesively integrate with the trail wayfinding system. Bicycle ParkingTo encourage bicycle usage within the Sawdust District, additional bike racks should be added along designated bicycle routes and at key destinations such as the two trailhead locations. Bicycle parking should be incorporated within any streetscaping enhancement projects. To encourage shopping by bike, the City should work with local businesses to implement a bike parking request program, allowing business owners to request bike racks for the right-of-way in front of their store. The City should investigate using on-street parking spaces on certain blocks for bike parking corrals, which would provide parking for 10 to 20 bikes in the space previously occupied by one parked vehicle. 1234567Example Images1.) Trail signage with map of community’s parks and trails system 2.) Bike route directional signage 3.) Section of trail along water with protective bollards 4.) Marked on-street bike lane 5.) Decorative bike parking 6.) Bike intersection crossing 7.) River side trail with painted lanes Sawdust District Master Plan19
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandExisting SidewalkProposed SidewalkSignalized IntersectionRailroad CrossingSIDEWALKS &INTERSECTIONSSIDEWALKSMovement of pedestrians throughout the District is critical. A safe and attractive pedestrian environment can significantly contribute to the overall comfort, character, and appeal of the Sawdust District, helping catalyze additional investment. The width, placement, and design of sidewalks, as well as their use on different roadway classifications, can have a significant impact on pedestrian comfort and overall use. As opportunities arise in the Sawdust District, and especially in coordination with South Main Street capital improvements, the City should utilize sidewalk best practices which take into consideration specific needs for the roadway. These should be incorporated within streetscaping, general maintenance, and other public works projects to gradually update sidewalk gaps, creating a complete, well-connected sidewalk network. Sidewalk ZonesWell-functioning sidewalks consist of four distinct zones of activity that provide for a safe and comfortable pedestrian experience. This includes a frontage zone to buffer the building from pedestrians and allow space for dining or merchandise displays; a pedestrian zone that is free of obstacles for people to travel; a utility zone for trees, planters, and light and utility poles; and a curb zone that serves as a transition area between the sidewalk and road. Sidewalk TypesCurb-side sidewalks are directly adjacent to the roadway. This sidewalk placement can create an uncomfortable pedestrian experience, with pedestrians adjacent to moving traffic. Curb-side sidewalks should be a minimum of six feet in width with a preferred width of eight feet to provide a wider buffer to the travel lanes. The presence of on-street parking can assist to create a barrier between the sidewalk and traffic, while textured pavers, planters, and street trees can enhance long expanses of pavement.Parkway sidewalks are separated from the roadway with landscaping elements such as grass, flowers, or trees. Where the right-of-way allows, parkway sidewalks are the preferred sidewalk treatment to provide a landscaped buffer between pedestrians and vehicles. In addition to enhancing pedestrian safety, parkways have the potential to accommodate sustainable landscaping techniques including bioswales, rainwater inlets, and rain gardens, as well as provide opportunities to establish a tree canopy. INTERSECTIONS AND CROSSWALKSThe safe and easy crossing of roads is integral to a pedestrian-oriented environment. Common tools utilized to aid in safe crossing include signage, striping, countdown timers, and bump-outs. The type of tools used should vary based on the functional classification of the intersecting roadways, surrounding land uses, and type of pedestrian route. Transverse CrosswalksThese are traditional crosswalk markings, using two parallel bands to delineate pedestrian space. This type of crosswalk marking is difficult for motorists to see, which poses a safety hazard to pedestrians. Transverse crosswalks should not be used. Continental CrosswalkThese crosswalks are considered high-visibility, which are more easily seen by drivers. Use of continental crosswalks rather than transverse crosswalk markings have been shown to significantly increase intersection safety. These should be implemented as a best practice for all non-signalized South Main Street crossings in the District. Decorative CrosswalkThese crosswalks delineate pedestrian crossing areas using decorative elements, such as colored or textured concrete or stamped asphalt. They create a sense of place and identity within an area; however, low contrast designs can lead to decreased visibility. This crosswalk treatment is best used for roadways with slow travel speeds and few travel lanes and can be combined with continental crosswalks to further increase visibility. The City should consider decorative components for crosswalks at key signalized intersections, including at South Park and South Main Street, and at 6th Avenue and South Main Street. Signalized IntersectionsSignalized intersections are the busiest and most prominent intersections within the District. Signalized intersections are on South Main Street at 6th Avenue, 9th Avenue, and South Park Avenue which should be considered the core intersections of the District. As definitive stopping points for passing motor vehicles, these should be a focus for street-fronting buildout as development occurs.123456Example Images1.) Mid-block crossing 2.) Continental crosswalk with pedestrian crossing signage 3.) Wide curb-side sidewalk with landscaping 4.) Parkway sidewalk with street trees 5.) Mid-block continental pedestrian crossing with signage 6.) Transverse crosswalks20Sawdust District Master Plan
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandExisting Witzel and 9th RouteProposed Witzel and 9th Route ExtensionWitzel and 9th StopProposed Witzel and 9th Route Stop BUS ROUTESPUBLIC TRANSITGo Transit serves the City of Oshkosh with reliable, affordable, and accessible public transportation. The Sawdust District benefits from the system’s Witzel/9th route, which operates along South Main Street at the north side of the District. One stop is provided at the corner of 7th Avenue and South Main Street as the bus heads northbound toward the Center City on a circulator route. Coordinating with Development As the Sawdust District develops, the City should work with Go Transit to provide a total of three stops and a new loop on the Witzel/9th route. New route patterns and transit stops should be considered as follows: As the bus proceeds east, it should turn right instead of left on South Main Street. A new transit stop should be provided at South Park Avenue to serve Menominee Nation Arena and the surrounding area. The bus should travel east on 14th Avenue before heading north on Pioneer Drive. An additional new transit stop should be sited near the pedestrian bridge to Pioneer Island to serve new development. The bus should turn left on the newly connected 9th Avenue before turning right on South Main Street. The bus should resume the normal route and stop at 7th Avenue before heading into the Center City. Stop and Shelters Transit stops in the District should be fully improved with benches, shelters, and informational signage. These improvements should include a branding effort to contribute to the image of the Sawdust District. 123456Example Images1.) Bus stop and shelter 2.) Bus route map and schedule at bus stop 3.) Oshkosh bus 4.) Bus shelter 5.) Pioneer Resort 6.) Menominee National ArenaSawdust District Master Plan21
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandExisting RouteTRUCK ROUTESRAILROADSThe Canadian National (CN) Railway provides a reminder of the industrial heritage of the District and the important role that freight transportation still plays in the City. The active CN rail line runs through the eastern portion of the Sawdust District in a north-south direction. More than 20 trains per day use the rail line, which extends from Fond du Lac through Oshkosh, heading north to Neenah, Menasha, and Appleton. The rail line and switching lines form a physical barrier between Pioneer Island and the properties to the west along South Main Street.With no grade-separated railroad crossings, the rail line threatens connectivity between Pioneer Island and the rest of the Sawdust District. The height of the railroad bridge over the Fox River creates an additional barrier which disrupts boat travel and inhibits the extension of the Riverwalk further east to Lake Winnebago. In addition, the rail line acts as a major barrier to lakefront development and investment to the Sawdust District. Mitigating Rail ImpactsBeautification elements, such as landscaping, decorative streetlights, or new railroad gates, should be incorporated to decrease the relatively industrial character and improve the overall appearance of the corridor.Railroad Crossings With more pedestrian and bicyclist activity, safety around the railroad should be improved. The trail crossing at the railroad should be enhanced with crossing gates, flashing light signals, crossbuck signs, audible devices, and pavement markings. In addition to the existing crossing gates, the Pioneer Drive rail crossing at the north side of the District and the 14th Avenue crossing to the south should include approaching sidewalks, flashing light signals, crossbuck signs, audible devices, and pavement markings. TRUCK ROUTESThe City of Oshkosh has several designated multi-axle truck routes used for the delivery of industrial and commercial goods. While designated truck routes prevent significant noise and traffic impacts to local roads, the concentration of truck traffic on key corridors can have negative impacts on the areas they cross. South Main Street and 9th Avenue are existing designated truck routes that run through the Sawdust District, which the City should closely monitor. As the Sawdust District redevelops and move away from its industrial past, truck routes may become a hindrance to pedestrian-oriented developments, particularly along South Main Street. As necessary, truck routes should be reviewed for rerouting to protect pedestrian-oriented environments, while still allowing for efficient movement of trucks within the community. 463125Example Images1.) Railroad buffer from surroundings by vegetation 2-4.) Railroad crossing with crossing gate and flashing light signals 5.) Truck route through community’s traditional downtown area 6.) Truck route through community’s commercial corridor 22Sawdust District Master Plan
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandMajor Gateway FeatureMinor Gateway Element Wayfinding SignageGATEWAY & WAYFINDINGPLACEMAKINGThe success of the Sawdust District will be defined by its character. Placemaking is focused on creating public spaces that promote activity and identity. This section provides recommendations to improve the District’s function and to make this segment of South Main Street a destination street. Specifically, it addresses the relationship between people, the built form, and public spaces. Placemaking is intended to foster a comfortable, active, and attractive character for the Sawdust District.STREETSCAPINGSouth Main Street should feature streetscaping that is heavily pedestrian-oriented to improve the aesthetic and connectivity across the Sawdust District. Streetscape improvements, including lighting, sidewalks, signage, gateways and wayfinding, public art, and gathering spaces should continue to be implemented to enhance the image and appearance of the District. Streetlights should be both pedestrian scaled, with banners to promote the Sawdust District and its special events. Street trees should be located within the parkway or in tree grates in the sidewalk depending on sidewalk width. New streetscaping and pedestrian enhancements will improve connectivity across the Sawdust District. Gateway and Wayfinding SignageTo announce arrival to the Sawdust District, gateway features should be employed in key locations. Gateway features can be achieved through signage at ground level or through unique architectural elements. Attractive landscaping should work with lighting and other vertical design features to complement the signage and architectural elements. A north gateway feature should be developed at 6th Avenue and South Main Street, and a south gateway feature at 17th Avenue and South Main Street. Trailheads should also act as gateways, connecting trail users to bikeways, the Riverwalk, the waterfront, and the marina.Wayfinding signage assists people in finding important community landmarks, while enhancing the streetscape. Like gateway features, wayfinding should consist of signage complemented by landscaping and lighting. Wayfinding features should be in key locations to direct people to destinations. In the Sawdust District, it is important that a visitor knows which streets access the waterfront, how to get to Menominee Nation Arena, and where to find parking. Additionally, wayfinding should direct visitors to historic sites and buildings. A component of wayfinding should include distinct signage along the Riverwalk. This should be cohesive with the overall branding effort for the District, but also indicate the connection to the City’s existing network of bikeways and trails. Improvements such as mile markers can benefit bicyclists and joggers. Riverwalk signage may also include the distance to the Center City and other Oshkosh landmarks accessible on foot or by bike outside of the Sawdust District.Major and Minor Gateway FeaturesLarger, more prominent gateway features should be located along the South Main Street at 6th Avenue, 9th Avenue, and South Park Avenue. Additional minor gateways can be developed along secondary roadways as deemed necessary per traffic counts and future development.Public ArtPublic art can foster community pride, encourage healthier lifestyles, reduce vandalism and cost, expand learning and awareness, and strengthen the local art community. Public art installations should be prioritized within the Sawdust District to improve the area’s appearance, vitality, and interest. Public art installations should be prioritized at prominent locations, such as the key north and south gateways.As the Sawdust District develops, additional artistic elements should be incorporated. Local artists should be invited to participate in streetscape or infrastructure projects to create a more cohesive identity and take full advantage of capital improvement projects and investment.7645123Example Images1.) Downtown Oshkosh wayfinding signage 2.) Informational signage about public art displayed in a community 3.) Mural representing the community 4.) Public art on a street corner 5.) Wayfinding signage with brochures for nearby businesses and events 6.) Information map and key 7.) Public art built into natural landscapeSawdust District Master Plan23
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandProposed RiverwalkInterim Riverwalk ConnectionProposed Main Street Bridge UnderpassMarinaPioneer IslandPedestrian BridgeCONNECTINGTO THE WATERCONNECTIONS TO THE WATERAs a community with access to a river and lake, Oshkosh has the advantage of drawing in residents and visitors to partake in a variety of water-based recreation, events, and activities.RiverwalkWhen completed, the full Riverwalk will be nearly continuous along both sides of the Fox River from Wisconsin Street in the west to Lake Winnebago in the east, connecting with the University of Wisconsin via the Oshkosh and the Wiouwash Trail. At present, the northern shore of the project is complete while the south shore portion in the Sawdust District remains mostly incomplete.The Riverwalk is key for the activity and liveliness of the District. The proposed Riverwalk segments will provide access to Pioneer Island and Lake Winnebago, and to adjacent developments where appropriate. Views and access to the water should be maximized and enhanced whenever and wherever possible. The Riverwalk should provide pedestrian access to popular fishing on Lake Winnebago, well-known for its walleye and ice fishing. While the Riverwalk should support bike and pedestrian activity in the summer, it should not limit access for this year-round sport. Interim ConnectionsAs the City works with property owners to acquire easements for riverfront access, interim connections should be established for Riverwalk gaps. These should include on-street wayfinding, directing pedestrians and bicyclists to low-stress routes that return them to the Riverwalk quickly and efficiently.South Main Street BridgeThe South Main Street bridge establishes the north point of entry to the District. While sidewalks are provided, the City should investigate defining a bike route on the bridge deck with signage and pavement markings. Existing road width and bridge infrastructure constraints may limit pavement markings to sharrows rather than a dedicated bike lane. Where the south end of the bridge meets Pioneer Drive, the City should construct a Riverwalk underpass to provide stress-free off-road access for bicyclists, pedestrians, and joggers, improving the District’s capacity and connectivity for recreational use. MarinaThe marina should be developed as an active water recreation area for the Sawdust District. Development and reinvestment in this area should leverage the waterfront area as a community amenity by improving public access to the waterfront and maintaining views of the water and horizon. New development should pull the lakefront and water areas inland, rather than walling off the waterfront from other parts of the community. As new multi-family development occurs near the marina, the City should work to ensure compatibility between the uses. Pioneer Island Pioneer Island is located east of Pioneer Drive near the confluence of the Fox River and Lake Winnebago. Previously a resort, operations have since ceased and the facilities remain vacant. Moving forward, the City should redevelop Pioneer Island as a new resort or entertainment-based facility, with an adjacent residential component. A plaza-style public gathering space on the southeast tip of the island should be provided, giving opportunities for events such as concerts, weddings, and community activities. Given the unique location and high visibility of this site, it should be developed as a pinnacle development and focal point for the District, providing beautiful views of the lake and welcoming individuals traveling into the community from the water. Pedestrian BridgeThe Pioneer Island pedestrian bridge sits unused, connecting the northwest corner of the island to the mainland. As the island is redeveloped, the City should undertake a structural study and return it to service, providing increased bike and pedestrian connection to the island. Access points are key to good trail networks. Providing dedicated car-free access to Pioneer Island will encourage users to enjoy this segment of the Riverwalk around the island perimeter.123456Example Images1.) Riverwalk with benches, banner signage, and landscaping 2.) Access to water through water based recreational activities 3.) Creek trail signage showing location of access points and parks 4.) Wide waterfront trail can be used as gathering space 5.) Scenic waterfront trail with public open space 6.) Pedestrian bridge with clean and comfortable underpass24Sawdust District Master Plan
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandDevelopment should incorporate wateront into the design and siting WATERFRONTDEVELOPMENTWaterfront DevelopmentsA best practice to developing the waterfront areas is to avoid walling off the waterfront with adjacent development. It is important for the waterfront to visible as far inland as possible. Appropriate spacing between buildings and the maintenance and enhancement of view corridors to the water are essential for leveraging the waterfront for the entire Sawdust District, not just the inhabitants of the development at the water’s edge.Water Traffic The Fox River connects Lake Winnebago to Lake Butte des Morts and acts as a watery highway for canoes, kayaks, motorboats, and the Loos Cruises. For boaters, the first impression of the Sawdust District will be what they see from the water. It is critical that the waterfront is inviting and attractive.Appearance From the Water The City should make it a policy to consider the Sawdust District from the perspective of a boat-driver or passenger. Views from the water should be a key element of review for development proposals for river and lakefront properties. Unattractive uses, such as truck parking and storage, should not be visible from the river. Pioneer Island should provide a pinnacle for both the riverfront and lakefront, establishing an inviting and attractive first sight. A Boat-Friendly Waterfront Public spaces along the waterfront should be improved with boat-friendly features, such as docks, boat launches, or maintenance stations; waterfront uses in the District should include restaurants and civic spaces to host public events and activities. Waterfront signage and gateway elements should be directed toward boats entering the District. Oshkosh’s ties to boating and water-based recreation should be kept in mind for all elements of the Sawdust District, reflected in promotional materials, branding, and wayfinding. 12345Example Images1.) Riverwalk with direct access to water 2.) Oshkosh riverwalk 3.) Developments along river incorporate riverwalk into design 4.) Wide riverwalk could be used as public gathering space 5.) Developments along river with outdoor dinner to take advantage of views Sawdust District Master Plan25
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandPotential Gathering SpaceGATHERING SPACEGATHERING SPACESPlaces where people can gather to eat, chat, or people watch should be developed to bring people together and contribute to the liveliness of the District. Certain locations in the District can be improved to feel more like established gathering places for small or large groups. The District’s flagship plaza-style public gathering space should be on the southeast corner of Pioneer Island, oriented toward visitors and residents alike. Riverfront parks and open space should provide additional landscaping, pedestrian amenities, and site furnishings to serve as informal gathering places. EventsPioneer Island, new parks, trailhead areas, and Menominee Nation Arena provide varying scales and types of spaces for hosting community events. Going forward, larger Sawdust District open areas and gathering spaces should be used for regular community events or festivals. Smaller spaces should be used for shorter, minor events. Pedestrian Activities Outdoor dining, pedestrian arcades, and plazas should complement buildings whenever possible and should provide interest and engagement along the street frontage and waterfront. Pedestrian amenities welcome visitors and provide positive visual impact for gathering spaces. 453126Example Images1.) Oshkosh Opera House Square 2.) Large sidewalks create space for gathering 3.) Farmers market 4.) Public roadways used fro community event 5.) Music event in public plaza 6.) Public art air 26Sawdust District Master Plan
LakeWinnebagoFox River456th Ave7th Ave8th Ave9th Ave10th AveNebraska StDoty St11th Ave12th AveSouth Park Ave14th Ave16th Ave17th Ave15th AveMAIN STMenomineeNation ArenaPioneerIslandHISTORIC PRESERVATIONOshkosh LandmarkNational Register LandmarkPotential for Adaptive ReuseARCHITECTURE AND DESIGN New development in the Sawdust District should establish an architectural style that can strengthen the area’s character and distinguish Oshkosh from surrounding communities. New buildings are encouraged to use high quality materials and reflect the predominant scale, height, massing, and proportions of traditional downtowns. They should incorporate materials that complement preserved historic structures. Two primary orientations, street frontage and waterfront, should be reinforced in the Sawdust District. Street fronting buildings should be oriented toward South Main Street to capitalize on its active environment. Waterfront buildings should be positioned to take in views of Lake Winnebago, and to enjoy the open space amenities found along the river. The proposed trails, open space, and berm buffering the rail yard will require buildings facing the water to embrace a public “front yard.” HISTORIC PRESERVATIONHistoric structures area a defining component of the of the District’s charm, fostering a unique sense of character and place. As development occurs, local and national landmarks such as the Granary and Brooklyn No. 4 Firehouse should be preserved. New development should also be context sensitive, seeking to improve the District while respecting existing historic structures. The City should work closely with the Oshkosh Landmarks Commission to ensure that structures are considered for preservation prior to redevelopment. Adaptive Reuse The City should encourage and incentivize reinvestment and reuse of historic buildings in the District. To achieve this, the City should expand available financing tools, provide technical assistance with the conversion process, assist with grant applications, perform complimentary public right-of-way improvements, and streamline the reinvestment process by updating City policy. Buildings identified for adaptive reuse and preservation may not end up on the national landmark list, but they will still contribute to the character South Main Street corridor. Façade Restoration Façade restoration is an important tool for historic preservation and adaptive reuse. Restoration of historic facades within the Sawdust District should be prioritized, especially for those buildings which have been covered up, significantly altered, or fallen into disrepair. The City should consider developing new funding assistance for façade restoration. Salvaging and reusing historical architectural elements can encourage the creative utilization of pieces of older buildings and infrastructure when demolishing or replacing older structures. Reuse of architectural elements can show a connection to the past and uphold the District’s history. For example, if the CN rail bridge was to be replaced, the existing bridge could be re-purposed as a bike/pedestrian crossing. 21354Example Images1.) The Granary building 2.) Brooklyn No. 4 Firehouse 3.) Existing buildings between 6th and 7th Avenues 4.) Existing building near 9th Avenue and South Main Street 5.) Existing buildings between 9th and 10th Avenue Sawdust District Master Plan27
FUNCTIONAL SUBAREASBased on existing land use, built form, physical boundaries, character, market potential, and other factors, the Sawdust District has been separated into six functional subareas. These subareas are intended to guide planning efforts within the Sawdust District, allowing for recommendations and policies which address the specific needs of each distinct area. By addressing the planning area as functional subareas, planning efforts should be context sensitive while ensuring that separate districts work cohesively as a single district. The subareas should provide a framework for incremental development to build into. DESIRED LAND USEThe Plan aims to redevelop the Sawdust District into a thriving, mixed use district that expands on the City’s donwtown, providing attractive entertainment and higher density residential options. This section identifies desired land uses within the subarea, accounting for existing uses and context.DESIGN AND DEVELOPMENTFor the District to be successful, attention must be given to the built form and design of future development and its relationship to other structures and spaces. This section addresses desirable structural design and site layout components within the District, including height, setback, orientation, and architectural style.TRANSPORTATIONAt the functional heart of the Sawdust District is the need to get around – by foot, bike, car, boat, and bus. The District should provide a pedestrian-oriented environment while accommodating the automobile and necessary parking. By building on the existing street network and current facilities and programming, this section provides recommendations to enhance multimodal accessibility and incorporate complete street principals within the District’s roadways. PLACEMAKING Urban design is about making connections between people and places, movement and urban form, nature and the built fabric, public spaces and private places. Urban design draws together the many components of place-making and seeks to create a place with distinct beauty and identity. This section of the Plan addresses many facets of urban design, including streetscaping, activating public spaces, and establishing sense of place and scale. FUNCTIONAL SUBAREASRecommendations specific to the needs of each functional subarea establish the approach for improvement and enhancement going forward. Detailed and specific recommendations are articulated around desired land uses, catalytic sites, design and redevelopment, specific transportation improvements, public spaces, and placemaking components for each of the subareas. In this section: West Transitional (page 30) Core (page 31) River North (page 32) Arena (page 33) Pioneer (page 34) South Gateway (page 35)WEST TRANSITIONALCORERIVER NORTHPIONEERARENASOUTH GATEWAYLAND USES PERMITTEDRESIDENTIAL LAND USESP M P M M CTownhouse (3-8 units per building)M M P M M CMultiplex (3-8 unites per building)P M C M M CApartment (3+ units per building)AGRICULTURAL LAND USESC C C C C CCommunity GardenC C C C C CMarket GardenINSTITUTIONAL LAND USESC C C C C CPassive Outdoor RecreationC C C C C CActive Outdoor RecreationCOMMERCIAL LAND USESP P P P P POfficeP M P M M PPersonal or Professional ServicesM M P M M PIndoor Sales or ServiceP M M M M PPhysical Activity StudioP M M M M PArtisan Production ShopP M M M M PCommercial KitchenP M P M P PRestaurants, Taverns & Indoor Commercial EntertainmentC M C X X PGroup Daycare CenterC X C X X CCommercial Animal Boarding/DaycareP M X X X PTattoo Parlor/Body Piercing StudioP M X X X PTobacco and Paraphernalia ShopP M X X M PCell Phone StoresP M X X X PPawn ShopC X X X X CPay Day AdvanceX X X X X CDrive-Through & In-Vehicle Sales or ServiceP M X X X PLiquor StoreX X X X X CDollar/Discount StoreP P P P P PCommercial Indoor LodgingX X X P X CWater-Related RecreationP M C P P POutdoor Commercial EntertainmentX X C C C XIntensive Outdoor ActivityX X X X X XAdult Uses/Adult BookstoreMIXED USE BUILDINGSP P P P P PApartments with Limited CommercialP P P P P PMixed Use BuildingC C X X X CLive/Work UnitTRANSPORTATION LAND USESC C C C C COff-Site Parking LotC C C C C COff-Site Structured ParkingCOMMUNICATION/ENERGY PRODUCTIONC C C C C CCommunication TowerC C C C C CLarge Wind Energy SystemP - by right; C - by conditional use permit; M - permitted only as part of a mixed use development; X - not desired28Sawdust District Master Plan
45River NorthSubareaPioneerSubareaArenaSubareaSouth GatewaySubareaWestTransitionalSubareaCoreSubareaSawdust District Redevelopment PlanFUNCTIONAL SUBAREAS FUNCTIONAL SUBAREAS Prepared by Houseal LavignePrepared by Houseal LavignePrepared by Houseal LavignePrepared by Houseal LavigneSawdust District Master Plan29
WEST TRANSITIONALHistorically, the West Transitional Subarea contained single family residential uses between South Main Street and Nebraska Street. The subarea displays a mixed use character that includes older structures, which have been adaptively reused. The Redevelopment Authority has acquired most of the parcels in the block between 7th and 8th avenues west of South Main Street. This area should be redeveloped; however, the parcels will require appropriate environmental remediation which can greatly increase the cost. The Subarea has experienced some revitalization. The former Miles Kimball site at the northeast corner of 9th Avenue and Nebraska Street was redeveloped for townhouse-style rental apartments, an ideal infill housing type for the area. Using historic tax credits, the landmarked Granary Building was repurposed as Greene’s Pour House. The bar and restaurant will continue to benefit from new activity in the area. Additional catalyst developments include the former industrial building at 46 West 6th Avenue, which was converted into professional offices.KEY GOALSRedevelop existing structures in the neighborhood. Outside of the Granary Building, townhouses, and a few thriving businesses, the West Transitional Subarea presents opportunity for new development patterns and uses to drive activity. Define the intersection of 6th Avenue and South Main Street as a gateway entrance to the Sawdust District. This is the primary north entrance to the District. The gateway entrance prominently reflect the Sawdust District as drivers, pedestrians, and bicyclists enter over the South Main Street bridge. DESIRED LAND USESEntertainment Gateway parcels such as the one at the northwest corner of 6th Avenue and South Main Street can serve a variety of purposes. If this site becomes available, it should be redeveloped into a mixed use entertainment development, providing office or residential above ground floor entertainment development designed to capture water and pedestrian traffic. Alternately, the current owner may consider capitalizing on new activity in the district by rebuilding in alignment with the concept visualization, adding space for additional waterfront entertainment businesses. Mixed UseThe 6th Avenue collector is ideal for mixed use development that improves housing options and increase local retail opportunities. Building types should contribute to the street wall and complement the Granary and Brooklyn Firehouse historic sites. Single-Family Attached New single-family townhomes or duplexes should be developed between 7th Avenue and 8th Avenue along Nebraska Street, mirroring the existing single-family attached development to the south, increasing density and providing middle-scale housing options. This site is ideally situated between single-family detached neighborhoods to the west and the mixed use activity of South Main Street to the east. Multi-FamilyThe subarea presents an excellent opportunity for new multi-family housing, accommodating residents in all stages of life. Multi-family housing options should be oriented toward the waterfront. It should be developed at a variety of price points in rental and condo configurations to serve young professionals, senior residents, and workforce residents. Residents will further benefit from easy access to new development along South Main Street.MarinaLike the larger lakefront marina, this marina area should be updated and maintained as a key riverfront component that contributes to the unique character of the District. Opportunities for boating and fishing on the Fox River and Lake Winnebago make the District unique, and the two marinas bookend the district with water access. Public riverfront amenities should be provided. Public ParkingThe public lot would provide additional parking for activity along 6th Avenue. The parking should be situated on 7th Avenue behind mixed use buildings, and a shared approach should be taken to offer daytime parking for businesses and evening parking for new entertainment uses. DESIGN AND DEVELOPMENTOne- to three-story buildings should be built at or near the property line along 6th Avenue, encouraging a pedestrian-oriented environment. Active pedestrian uses, such as mixed use developments or entertainment, should be encouraged at the corner of 6th Avenue and South Main Street.Single-family attached residential development should be located between 7th Avenue and 9th Avenue along Nebraska Street. Development along the Fox River should provide public access and scenic views via the proposed Riverwalk. Historic buildings should be preserved and enhanced for adaptive reuse. The Granary is a good model for reuse. The well-preserved Brooklyn Firehouse offers a similar opportunity for activation.TRANSPORTATIONBoth 6th and 9th avenues serve as collectors through the subarea and should be streetscaped to promote a pedestrian environment that draws people from western neighborhoods. The existing bike route along 6th Avenue should be maintained, while the proposed bike route on 9th Avenue should be developed to provide multimodal connections to the west. PLACEMAKINGA significant gateway feature should be developed at 6th Avenue and South Main Street to welcome those entering the District. Entry to the District should be further defined by redevelopment on the parcel at 6th Avenue and South Main Street. F ox RiverLakeWinnebago45MAIN ST6th Ave9th AveNebraska StSouth Park Ave17th Ave30Sawdust District Master Plan
COREThe Core Subarea is built around the prominent South Main Street corridor, which connects directly to the Center City across the South Main Street Bridge. Several historic buildings that stand intact establish the historic fabric of the corridor. The Core is the most active subarea in the Sawdust District, with a steady flow of vehicular traffic heading to and from the Center City. The Core should enhance connections between the North and South Main Street. The Core is currently auto oriented, allocating little space for pedestrian activity. Redevelopment within the subarea should include pedestrian-oriented accommodations and thoughtful roadway designs which provide multimodal mobility and minimize pedestrian-vehicle conflicts. Visitors should be welcomed by a prominent gateway feature to the north and enhancements to the Al Broullire Memorial Garden.KEY GOALSReestablish the historic South Main Street building and development pattern. The street wall is a defining feature of the Core. The Core’s South Main Street blocks should be a model for the larger Sawdust District, and new development should reflect their historic development pattern. Additionally, consistency with the City’s North Main Street Historic District will help achieve the goal of reestablish the historic South Main Street pattern.Rehabilitate existing historic buildings wherever possible. There are structurally sound buildings some of the blocks in the Core. While these may not be landmarked, they contribute to the overall character of the district and they should be maintained and rehabilitated. De-industrialize the subarea. Industrial and manufacturing businesses previously occupied large portions of the east side of South Main Street in the Core. To create an active South Main Street Corridor that contains attractive shops and offices, some remaining businesses require relocation to designated industrial and business parks. DESIRED LAND USESMixed Use Mixed use buildings should include commercial on the ground floor with residential and office uses on the upper floors. First floors should provide higher ceilings for attractive commercial spaces that invite passersby to enter.OfficeOffice uses that generate daytime activity and support local businesses and restaurants should be considered for the area between 6th Avenue and 8th Avenue along South Main Street. The office park’s buildings should front the property line along South Main Street, while orienting the campus toward surrounding open space and the Riverwalk to the east. Parks and Open Space The Al Broullire Memorial Garden should be maintained, improved, and connected with the Riverwalk. The Garden can act as a component of the gateway at the north, quickly orienting visitors to riverfront open space. Additional open space should be developed as a public plaza between 7th and 8th Avenues on the west side of South Main Street. DESIGN AND DEVELOPMENT To grow the historic South Main Street building and development pattern, two- to four-story mixed use infill should be developed. Buildings should be situated at or near the sidewalk, with no side yard setbacks, creating a consistent street wall and sense of enclosure to improve the pedestrian experience. Private parking for individual buildings should be located to the rear, accessed by side streets and rear alley, and screened from public right-of-way by a low masonry wall, decorative fencing, and landscaping.Main entrances should be at the front of the building facing the sidewalk. Buildings situated on corner lots should take advantage of their prominent locations with angled or rounded corner entrances.Modern industrial style architecture should be encouraged for new infill development. Inviting storefronts with large windows and displays, prominent entrances, and attractive architectural detail should be encouraged to provide visual interest along South Main Street A complete program of redevelopment should be undertaken on the east side of South Main Street between 7th Avenue and 11th Avenue. Adaptive reuse of existing buildings along the west side of South Main Street should be considered wherever possible. Buildings with historic and architectural value should be maintained and enhanced.TRANSPORTATIONSouth Main Street should be reconfigured to include a road diet from 6th Avenue to South Park Avenue. As opportunities arise, property should be acquired to increase the right-of-way to 80 feet for wider sidewalks, on-street parking, and bike lane improvements.PLACEMAKINGPedestrian orientation should be improved with streetscaping along South Main Street. A gateway feature at 9th Avenue and South Main Street should welcome those entering the Sawdust District from the west via 9th Avenue. Fox RiverLakeWinnebago45MAIN ST6th Ave9th AveNebraska StSouth Park Ave17th AveSawdust District Master Plan31
RIVER NORTHThe River North Subarea has a long history of industrial uses, many of which are still present today. Large parcels, substantial buildings, and railroad properties have created a complex land ownership configuration in the area. The presence of rail facilities has decreased as the Canadian National Railroad removed numerous spurs; however, the primary rail facility will remain as an eastern boundary to the subarea. To improve open space and provide a front yard for the subarea, railroad visual and noise impact should be reduced through landscaped buffering.The northern section of the subarea was historically river-oriented, with businesses catering to lumber factories lining the banks of the Fox River. With the decline of the lumber industry, the factory buildings were converted to other industrial uses, such as tooling and vehicle manufacturing. As the subarea develops, the City should commit to ongoing collaboration with existing businesses to relocate to Oshkosh industrial parks or other appropriate areas of the City. Relocating the few remaining industrial uses will allow for establishment of the preferred uses in the subarea.The waterfront is a prominent feature for the River North subarea. The vacated Pioneer Drive will play a critical role in embracing the confluence of the Fox River and Lake Winnebago. Water-oriented redevelopment should occur along the shore, and the proposed 9th Avenue extension will improve connectivity in the absence of Pioneer Drive. As the area currently has no housing, multistory developments would be ideal to create density and capture the view of the waterfront. Multi-family housing would benefit from waterfront orientation, proximity to South Main Street activity, and abundant open space provided by the front yard of the Sawdust District. KEY GOALSVacate the Pioneer Drive right-of-way. This would improve waterfront access for the Sawdust District’s most prominent mainland corner, enhance open space, and further the concept of a public front yard. Extend and connect the Riverwalk to Pioneer Island. The vacated Pioneer Drive right-of-way should be redeveloped as part of the Riverwalk, connecting to the network of trails and bike routes in the District. The new Riverwalk should connect River North to Pioneer Island via a reconstructed pedestrian bridge, which currently sits unused. De-industrialize and relocate conflicting land uses. The City should work closely and collaboratively with existing industrial businesses to find locations where they can flourish. DESIRED LAND USEParks and Open SpacePublic open space should be developed as a distinguishing front yard feature of the River North Subarea. Pioneer Drive should be vacated, and the Riverwalk extended to connect parks and open space to the waterfront, encouraging passive and active recreation for visitors and residents. Multi-FamilyThe subarea presents an excellent opportunity for new multi-family housing, accommodating residents in all stages of life. Multi-family housing options should be oriented toward the waterfront. It should be developed at a variety of price points in rental and condo configurations to serve young professionals, seniors, and the local workforce. Residents will further benefit from easy access to new development along South Main Street. OfficeThe parcel on the east side of South Main Street between 7th and 8th Avenues should be developed for a larger office/business park use with access to the South Main Street corridor and the Riverfront. This office use will generate daytime activity and support local businesses and restaurants. Office campus open space should be publicly accessible. Public ParkingParking areas should be considered carefully to provide adequate space for the area without creating a surplus. In the long term, River North presents the best opportunity for a new parking deck that supports the office campus, multi-family housing, and open space access. Events on Pioneer Island may also require use of public parking areas, and a shared parking approach should be implemented to allow maximum usage of the deck 24 hours a day. DESIGN AND DEVELOPMENTBuildings facing the waterfront should be developed between two to four stories. On the west side of the subarea, depending on development patterns, a maximum height of seven stories should be considered. High density multi-family residential that may contain a mixed use component should be encouraged in the subarea.Development plans should buffer and screen the Canadian National Railroad right-of-way to mitigate negative impacts. Public parking should be set back from the waterfront. It should be well-landscaped and screened from the right-of-way to encourage pedestrian activity on 9th Avenue. Development along the waterfront should provide orientation and visual interest toward the water, reinforcing the Sawdust District as a unique water-oriented, mixed use destination.TRANSPORTATION Pioneer Drive should be vacated east of South Main Street to the railroad tracks and redeveloped for the Riverwalk. East of South Main Street, 7th and 8th Avenues should be vacated to encourage campus style development, provide for a parking deck, and create open space opportunities. 9th Avenue should be extended east to connect with Pioneer Drive, providing a new east-west connection for pedestrians, bicyclists, and motorists. The 9th Avenue connection should be used for the reconfiguration of the Witzel/9th bus route, allowing it to circulate the District in a loop with a new stop at Pioneer Island.Safe and comfortable railroad crossings for pedestrians and motorists should be provided on 9th Avenue.The trail network should connect new office and residential developments to the Riverwalk.A trailhead should be provided near the new 9th Avenue and Pioneer Drive curve, acting as the subarea’s hub for multimodal connections.PLACEMAKING Pedestrian-oriented streetscaping should reinforce 9th Avenue as an important east-west multimodal route. The railroad should be mitigated with corridor landscaping and landform features, such as a berm. The Riverwalk should be cohesively integrated as a component of the transportation network as well as a destination. To improve cohesiveness, the segment between South Main Street and Pioneer Island should be completed after vacation of Pioneer Drive is vacated. Fox RiverLakeWinnebago45MAIN ST6th Ave9th AveNebraska StSouth Park Ave17th Ave32Sawdust District Master Plan
ARENAThe Arena Subarea occupies a formerly heavy industrial area known for the prominent Buckstaff Company. The City of Oshkosh demolished the vacant Buckstaff property in 2016 to prepare the area for revitalization and redevelopment. In 2017, the Menominee Nation Arena was developed, offering significant regional entertainment options. The 64,300 square foot, 3,500 person capacity indoor arena serves as the home for the NBA G League’s Wisconsin Herd, an affiliate team for the Milwaukee Bucks. The development of the arena is a catalyst for the Plan. The arena generates significant activity and brings people to the Sawdust District from throughout Oshkosh and the surrounding area. As the Sawdust District develops, new uses surrounding the arena should complement its activity and provide options for be complementary services, entertainment, and dining. KEY GOALSBlock 17, the former Buckstaff furniture site, should be redeveloped. Entertainment uses should be encouraged to take advantage of the arena activity generation.The subarea should support a transition from residential uses to commercial uses. New commercial development should complement the arena and contribute to activity on South Main Street. Adaptive reuse should be considered. The School Stationers building is a handsome brick structure that can be repurposed on the south side of the Sawdust District.DESIRED LAND USESEntertainmentEntertainment uses should be increased in the Arena Subarea. The large Block 17 site between South Park and 14th Avenues on the east side of South Main Street is an opportunity to develop new entertainment-oriented amenities. These should build on arena activity and contribute to the South Main Street corridor. Mixed Use Mixed use buildings along South Main Street between 11th and South Park Avenues should continue the street wall south from the Core Subarea. Ground floor commercial uses with attractive commercial space and upper floors for offices and housing should be encouraged. Mixed use should provide transition between the pedestrian-oriented Core and the entertainment focus of the Arena Subarea.OfficeParcels between 14th and 15th Avenues on the west side of South Main Street should be prioritized for office uses that generate daytime activity and support local businesses and restaurants. Office uses are ideal for providing transition between disparate areas and for bringing people into the Sawdust District. CommercialThe block between 14th and 15th Avenues on the east side of South Main Street contains the School Stationers building, which should be repurposed for a commercial use that serve the whole District. Larger format regional stores may be considered on this site. Additional parcels on the northwest side of 14th Avenue and South Main Street provide opportunity for commercial uses transitioning from corridor mixed use to the north. Commercial uses would further support Arena activity and provide shopping opportunities for the whole neighborhood. Regional commercial activity is supported by easy south access via US 45.Parks and Open SpaceBuilding upon the front yard concept established in the River North Subarea, public open space should be developed and maintained between the arena and the marina along the lakefront. The open space will be activated by the proposed multi-use trail and the Riverwalk and will provide opportunities for public use on game days and throughout the year. Landscaping and landform features should contribute to the open space by screening the existing rail facilities.DESIGN AND DEVELOPMENTBuilding height should be limited to one to three stories to carry the built form of the South Main Street corridor throughout the District. Block 17 redevelopment should be carefully designed to be cohesive with the street wall on South Main Street while providing new regional entertainment attractions to complement the arena. Parking should be located to the rear and should be well-screened from public parks and open space.As redevelopment occurs, new industrial uses should not be considered for the Arena Subarea. Dedicated commercial and office uses are appropriate in the Arena Subarea, but these may also incorporate mixed use to support the overall liveliness and character of the Sawdust District. Parking lots should be set behind structures and screened from South Main Street. Landscaping should and natural perimeter screening should shield surface lots from public open space. TRANSPORTATION The pedestrian experience should be enhanced with new sidewalks along 14th Avenue to Pioneer Drive. 14th Avenue should mirror 9th Avenue to the north, providing connection to the west neighborhoods and encouraging multimodal access to the waterfront. As detailed in the transportation section, South Main Street should be reconfigured with a road diet from 6th Avenue to South Park Avenue, incorporating complete streets principles.As opportunities arise, property should be acquired south of South Park Avenue to increase the-right of-way to 80 feet for wider sidewalks, on-street parking, and bike lane infrastructure. The trail network, bikeways, and sidewalks should connect new office, commercial, and entertainment developments to the Riverwalk.Safe and comfortable railroad crossings for pedestrians and motorists should be provided on 14th Avenue.PLACEMAKINGA significant gateway feature should be developed at South Main Street and South Park Avenue to welcome those entering the Sawdust District from the west, and to identify the entertainment focus of the Arena Subarea. The railroad should be mitigated with corridor landscaping and landform features, such as a berm. Mixed use patterns and streetscaping should be used to continue the pedestrian oriented character of South Main Street between 11th Avenue and South Park Avenue. Fox RiverLakeWinnebago45MAIN ST6th Ave9th AveNebraska StSouth Park Ave17th AveSawdust District Master Plan33
PIONEERThe Pioneer Subarea borrows its name from the former Pioneer Inn Resort and Marina established in the 1960s. The resort was constructed and began operation on the island in 1965. In 2004, the resort owner partially demolished the existing hotel with plans to rebuild, but it closed in 2005 after those plans did not proceed. While the marina is still operational, the site once offered multiple amenities for hospitality, events, and tourism. The property has been considered a key anchor site for revitalizing the City’s south side for many years. The Riverwalk is planned to encircle Pioneer Island and provide public access to a plaza at the southeast point of the island. The Pioneer Subarea should return the key island and marina areas to their former glory, capitalizing on hospitality, events, and tourism while embracing the waterfront that makes the Sawdust District special. while embracing the waterfront that makes the Sawdust District special. KEY GOALSReestablish the Pioneer Subarea as a destination for tourism. Modernization of the marina and a new hotel on Pioneer Island will provide support for tourist activity and complement the arena and South Main Street. Emphasize public space to support hotel, marina, and residential uses. Construction of the Riverwalk and the public plaza at the southeast tip of Pioneer Island will serve both visitors and Oshkosh residents. Implement the Tax Increment District (TID). TID Number 38 is a proposed blighted area district consisting of three parcels and approximately 20 acres comprising Pioneer Island, the adjacent Pioneer Marina, and adjoining City and State-owned lands. Implementation of the TID will enable the City to return the subarea to active use. DESIRED LAND USESEntertainment and HospitalityComplementing the entertainment use provided by the Arena, Pioneer Island should be developed for a new hotel. The hotel should further the District’s appeal for tourism and provide a springboard for development and growth along South Main Street.Multi-FamilyMulti-family condominiums should be developed on Pioneer Island. These will complement the hotel development and provide unique lakefront housing that increases year-round activity on the waterfront. Parks and Open Space The Pioneer Island plaza and gathering area will serve visitors and Oshkosh residents. The plaza’s location is ideal as a desirable site events such as weddings. This should be maintained as a public space that can be rented from the City, as well as accessed year-round via the Riverwalk. MarinaThe marina should be updated and maintained as a key waterfront component that contributes to the unique character of the Sawdust District. The marina use should continue to provide recreational opportunities for boating and fishing on Lake Winnebago, acting as the waterfront gateway inviting boaters into the Sawdust District. DESIGN AND DEVELOPMENT The new hotel and waterfront multi-family developments should be two to four stories in height, oriented around open space that allows viewsheds toward the lake. Waterfront development should provide orientation and visual interest toward the water to reinforce the Sawdust District as a unique water-oriented mixed-use destination.Green space and landscaping should mitigate and buffer the railroad tracks and enhance the Riverwalk experience. TRANSPORTATION Bikeways should be installed along Pioneer Drive. Sidewalks should be installed along Pioneer Drive to connect with 14th Avenue, encouraging boaters to pull into temporary slips and enjoy recreation and restaurants along South Main Street.Access should be improved to Pioneer Island. Bike and pedestrian access should be available on all bridges, and the pedestrian bridge at the north side of the island should be reconstructed. A trailhead should be provided near 14th Avenue and the waterfront, acting as a hub for multimodal connections and inviting boaters to explore the District on foot. PLACEMAKINGThe plaza at the eastern tip of Pioneer Island should be constructed on land owned by the State of Wisconsin. The plaza should be open to the public and constructed with high quality materials in an architectural style that incorporates the waterfront. Street trees and landscaping along Pioneer Drive should soften marina storage areas and the railroad tracks. The Riverwalk should be completed around Pioneer Island, creating a loop for joggers, bicyclists, and pedestrians. Fox RiverLakeWinnebago45MAIN ST6th Ave9th AveNebraska StSouth Park Ave17th Ave34Sawdust District Master Plan
SOUTH GATEWAYThe South Gateway Subarea marks the southern extent of historic industrial activity in the Sawdust District. The south side of the District was originally anchored by Oshkosh Brewing and People’s Brewery. The Oshkosh Brewing property is now occupied by School Stationers at 1641 South Main Street. Blended Waxes, a local manufacturer, was able to incorporate the People‘s Brewery building into their existing facility. Blended Waxes offers stability in the subarea with no relocation plans. The South Gateway area displays development patterns of one story buildings with street facing parking. This area will likely remain auto oriented serving as a transition to US 45 to the south.KEY GOALSupport Blended Waxes potential expansion. Parcels should be consolidated between 1600-1650 South Main Street to create a redevelopment site for the business to grow. DESIRED LAND USESSingle-Family AttachedTownhomes increase density and act as a middle-scale housing component between single-family detached neighborhoods and multi-family developments. Townhomes at the northwest corner of 17th Avenue and South Main Street should provide transition for single-family home neighborhoods to the west and south of the Sawdust District.Multi-FamilyMulti-family condominiums and apartments should be developed south of 16th Avenue. These should be available at a variety of price points. Building orientation should be toward South Main Street to help define the south gateway to the District. OfficeParcels between 15th and 16th Avenues on the west side of South Main Street should be prioritized for office or commercial uses that generate daytime activity and support local businesses and restaurants. Office uses are ideal for providing transition between disparate areas and for bringing people into the Sawdust District.IndustrialThe Blended Wax industrial use remains appropriate as South Main Street transitions to US 45. This use should be maintained to provide stable employment and draw regional daytime activity to the area.DESIGN AND DEVELOPMENTOne to three story buildings should continue the South Main Street pattern established in the Core and Arena subareas.Commercial and office uses should be flexible. They may include mixed use components. Parking areas should be screened from South Main Street and provided at the rear of buildings. Light industrial and manufacturing uses should be maintained on the east side of South Main Street. Industrial storage and loading areas should be located at the rear of the buildings, accessible off 15th Street. TRANSPORTATIONThe trail network should extend south parallel to the railroad prior to joining the 16th Street right-of-way and connecting to the South Main Street bike route. PLACEMAKINGA gateway should be developed at 17th Avenue and South Main Street to welcome those entering the Sawdust District from the south. Multi-family developments and the proposed trail should be separated from the railroad with landscaping and natural screening.Fox RiverLakeWinnebago45MAIN ST6th Ave9th AveNebraska StSouth Park Ave17th AveSawdust District Master Plan35