HomeMy WebLinkAboutItem 2.a
PLAN COMMISSION STAFF REPORT SEPTEMBER 2, 2025
ITEM 2.a: PUBLIC HEARING: Zone Change From Two Flat Residential-10 District
(TR-10) and Central Mixed Use District (CMU) to Two Flat Residential-10
District with a Planned Development Overlay (TR-10-PD) for Properties
Located on the South Side of the 100 Block of West 8th Avenue and the
North Side of the 100 Block of West 9th Avenue (Parcels 90301010000,
90301040000, 90301050000, 90301060000, 90301070000, 90301100000,
90301110000, 90301120000, 90301130000 and 90301150000)
Applicant: Jibril Odogba
Owner: Redevelopment Authority of the City of Oshkosh
Action Requested: The applicant requests a zone change from the existing Two Flat
Residential-10 District (TR-10) and Central Mixed Use District (CMU) to Two Flat
Residential-10 District with a Planned Development Overlay (TR-10-PD) for five
properties located on the south side of the 100 block of West 8th Avenue and five
properties located on the north side of the 100 block of West 9th Avenue.
Applicable Ordinance Provisions: Zoning map amendment standards are found in
Section 30-381 of the Zoning Ordinance.
Property Location and Background Information: The subject area consists of four vacant
lots and one lot with an existing single-family home along West 8th Avenue and five
vacant lots along West 9th Avenue. All properties are zoned Two Flat Residential-10
District (TR-10), with the exception of the western-most lot along West 8th Avenue (parcel
90301010000), which is zoned Central Mixed Used District (CMU). The surrounding area
consists of residential uses and a church to the south, residential uses to the east, parking
lots to the north, and mixed commercial uses to the west along Oregon Street. The 2040
Comprehensive Land Use Plan recommends Center City uses for the subject area.
Existing Land Use Zoning
Vacant and Residential TR-10 & CMU
Recognized Neighborhood Organizations
None
Existing Uses Zoning
North Parking lot UMU & I
South Residential & Institutional CMU, I-PD, TR-10
East Residential CMU-PD
West Mixed use & Residential CMU
Page 1
ITEM 2.a: Rezone 100 Blocks W 8th Ave. & W 9th Ave.
Zone Change - The applicant is requesting a zone change to Two Flat Residential-10
District with a Planned Development Overlay (TR-10-PD) for all ten of the subject
properties along West 8th Avenue and West 9th Avenue. The proposed zone change is
intended to accommodate a proposed townhome development, which will include two,
ten-unit buildings and two, two-unit buildings. The Planned Development Overlay is
needed to allow the ten-unit buildings as the TR-10 District only allows single family and
two-family uses. The zone change from CMU to TR-10-PD for the western-most subject
property along West 8th Avenue will provide consistent zoning with the other nine
subject properties included in the proposed development. A Certified Survey Map (CSM)
will be required for the lot combinations needed for the ten-unit buildings.
A neighborhood meeting was held on August 13th, 2025. Neighbors in attendance were
generally supportive of the proposed townhome development on the subject properties.
A Plan Commission workshop was held on February 19th, 2025, with Plan Commission
voicing support for the proposed development.
Staff is supportive of the proposed zone change to TR-10-PD as it will serve to
accommodate future residential development of the subject properties. Although the
proposed TR-10-PD zoning is not consistent with the 2040 Comprehensive Land Use Plan
designation of Center City, the zoning of the subject properties will remain consistent
with the current TR-10 zoning of the existing neighboring residential properties on the
100 blocks of West 8th Avenue and West 9th Avenue.
Page 2
ITEM 2.a: Rezone 100 Blocks W 8th Ave. & W 9th Ave.
Findings:
In its review and recommendation to the Common Council on an application for a
Zoning Map amendment, staff recommends the Plan Commission make the following
findings based on the criteria established by Chapter 30-381 (D)(2):
(a) Advances the purposes of this Chapter as outlined in Section 30-03 as the proposed
zone change will result in compatible zoning with the surrounding area.
(b) Maintains the desired overall consistency of land uses, land use intensities, and land
use impacts within the pertinent zoning districts as the proposed TR-10-PD zoning
designation will be consistent with TR-10 zoning of neighboring properties.
(c) Addresses any of the following factors that are not properly addressed on the
current Official Zoning Map:
(ii) Factors have changed (such as new data, infrastructure, market conditions,
development, annexation, or other zoning changes), making the subject
property more appropriate for a different zoning district as a proposal for a
townhome development has been submitted that requires the requested
Planned Development Overlay.
Recommendation: Staff recommends approval of the zone changes with the findings
listed above.
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March 2025 Sign_______ Staff ________ Date Rec’d ________
City of Oshkosh Application
Zoning Map Amendment (Rezoning)
**PLEASE TYPE OR PRINT USING BLACK INK**
APPLICANT INFORMATION
Petitioner: _________________________________________________________________________________ Date: ____________
Petitioner’s Address: ________________________________________ City: ______________________ State: _____ Zip: ________
Telephone #: ( ) _________________ Email: _______________________ Contact preference: Phone Email
Status of Petitioner (Please Check): Owner Representative Tenant Prospective Buyer
Petitioner’s Signature (required): _______________________________________________________________ Date: ____________ OWNER INFORMATION
Owner(s): __________________________________________________________________________________ Date: ____________
Owner(s) Address: __________________________________________ City: ______________________ State: _____ Zip: ________
Telephone #: ( ) _________________ Email: _______________________ Contact preference: Phone Email
Ownership Status (Please Check): Individual Trust Partnership Corporation
Property Owner Consent: (required) By signature hereon, I/We acknowledge that City officials and/or employees may, in the performance of their functions, enter upon the property to inspect or gather other information necessary to process this application. I also understand that all meeting dates are tentative
and may be postponed by the Planning Services Division for incomplete submissions or other administrative reasons.
Property Owner’s Signature: ___________________________________________________________________ Date: ____________
ZONING AND DEVELOPMENT INFORMATION
Address/Location of Rezoning Request: _________________________________________________________________________
Tax Parcel Number(s): _________________________________________________________________________________________
Rezone property from: ___________________________________________ to ___________________________________________
Purpose for Rezoning:__________________________________________________________________________________________
____________________________________________________________________________________________________________
Describe existing property development and land use: ________________________________________________________________
____________________________________________________________________________________________________________
Describe proposed development and/or proposed land use: ____________________________________________________________
____________________________________________________________________________________________________________
Proposed time schedule for development and/or use of the property: ________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________
Zoning Adjacent to the Site: North: _________________________________________________________________________
South: _________________________________________________________________________
East: _________________________________________________________________________
West: _________________________________________________________________________
SUBMIT TO:
Dept. of Planning Services 215 Church Ave., P.O. Box 1130 Oshkosh, Wisconsin 54903-1130 Room 204
PHONE: (920) 236-5059
Email: planning@oshkoshwi.gov
Delafield WI
262 jodogba@pangaeadimensions.com
Jibril Odogba 05-23-2025
3215 Golf Road, Ste 222
378-1110
05-23-2025
Pangaea Dimensions 05-23-2025
3215 Golf Road, Ste 222 Delafield WI 53018
378-110
N of W 8th ave, S of W 9th ave, between Oregon st and Nebraska st
9030-1070000,1060000,1050000,1040000,1010000,1150000,1130000,1120000,1110000,1100000
TR-10 & CMU Plannned Development (PD)
9 lots currently zoned TR-10, 1 lot zoned CMU, need all 10 rezoned
to planned development to accomodate the 24 townhomes construction.
Clusters of vacant lots that were previously
single family homes
24 townhomes - 2 bedroom, 1.5 bathroom,
& attached garage
Begin construction December 2025-July 2027
8th avenue
9th avenue
Nebraska street
Oregon street
53018
262 jodogba@pangaeadimensions.com
05-23-2025
Page 4
March 2025 2
SUBMITTAL REQUIREMENTS – Must accompany the application to be complete.
(Submit only digital files. If file size exceeds 10 mb, please send through a file transfer. Please note at the discretion of
Community Development staff may request a hard copy)
❑ Map of the immediate area showing property involved. Area to be rezoned must be outlined in color
❑ A site plan drawn to readable scale showing present status of property and proposed development
❑ Street address, adjacent streets, intersections and any other information or landmarks to help identify the property
❑ Location of existing uses, structures, fences and signs and location of proposed uses, structures, fences and signs
❑ A narrative statement explaining the zone change and discussion of the project
➢ Property owner’s signature is required for submittal to be complete.
➢ Application fees are due at time of submittal. Make check payable to City of Oshkosh.
➢ Please refer to the fee schedule for appropriate fee. FEE IS NON-REFUNDABLE
I hereby certify that to the best of my knowledge all required application materials are included with this
application. I am aware that failure to submit the required completed application materials may result in
denial or delay of the application request.
Applicant’s Signature (required): _________________________________ Date: _____________________
SUMMARY OF PROCESS
The City of Oshkosh Plan Commission and Common Council act on all amendments to the Official Zoning Map.
The petitioner or owner should be present at both the Plan Commission and Common Council meetings to
discuss and answer questions regarding the request.
The application package is reviewed by Planning Services staff to determine conformance with adopted city
plans, zoning requirements and development standards. A staff recommendation is prepared for consideration
by the Plan Commission and Common Council. The petitioner will be provided with a copy of the staff report and meeting notice several days prior to the Plan Commission meeting. The staff report and meeting notice will
also be available on the City’s website. No notice is sent to the petitioner or owner regarding the Common
Council’s consideration of the request. Petitioners and owners are encouraged to contact Planning Services
staff to find out when the request will be sent to the Common Council for review.
Neighborhood opinion is an important factor in the decision-making process. If the proposed development is
expected to have significant impact on other properties, the petitioner may be required to conduct a
neighborhood meeting to solicit public input prior to action by the Plan Commission and City Council. Planning
Services staff is available to offer assistance in compiling a mailing list for the neighborhood meeting. If deemed
appropriate, notification by mail informing the property owners within 100 feet of the subject property of the
proposal may substitute for the public meeting. Please note that a meeting notice will be mailed to all abutting
property owners regarding your request.
Within 90 days of filing a complete application, Plan Commission shall hold a public hearing to consider the
request. Within 60 days of the public hearing, the Plan Commission may make a written report to the Common
Council with recommendations regarding the proposal. The Plan Commission’s report is advisory only. The
Common Council will make the final decision regarding all zone change requests. The Plan Commission may lay
over requests to subsequent meetings if incomplete information is provided or additional questions or concerns
are raised at the meeting.
After the Plan Commission makes its recommendation, the request will be forwarded to the Common Council for
consideration. This generally occurs three weeks after the Plan Commission meeting depending on the date the
Council meeting is scheduled (the Council meets on the 2nd and 4th Tuesday of every month) and on the
availability of a legal description for the zone change. Wisconsin State Statutes require a zone change to be
published as Class II notice in the local newspaper, the City takes care of this publication requirement prior to
the Council meeting.
The Common Council may approve the Official Zoning Map amendment as originally proposed, may approve
the proposed amendment with modifications, or may deny approval of the proposed amendment. If the
Official Zoning Map amendment is approved, the Ordinance is published in the newspaper on the following
Saturday and will be effective on Sunday. City administrative offices are notified of the effective date of the
Ordinance and will make changes to the Official Zoning Map accordingly.
For more information please visit the City’s website at https://www.oshkoshwi.gov/PlanningServices/
05-23-2025
Page 5
PLAN COMMISSION WORKSHOPFebruary 19, 2025
1
Narrative Statement for Zoning Change Request
Project Name: Claw Visions (Oshkosh 24 Townhomes)
Applicant: Pangaea Development, OLUOMO Group, AK Development
Requested Zoning Change: From TR-10 (Two Flat Residential) and CMU
(Commercial Mixed Use) to Planned Development (PD)
Project Location: Ten City-owned parcels within the South Shore Redevelopment Area
Parcel Status: 9 parcels currently zoned TR-10; 1 parcel zoned CMU
1. Introduction and Purpose of Zone Change
This zoning change request supports the development of 24 high-quality, Net Zero
Energy (NZE) or Net Zero Energy Ready (NZER) townhomes that align with City of
Oshkosh planning goals, including housing affordability, climate resilience, and infill
development. The Planned Development (PD) designation is the most appropriate
zoning to accommodate the site-specific design, energy standards, and cohesive
neighborhood integration envisioned for this project.
2. Project Description
The proposed development consists of:
● 24 tri-level townhomes
● Approximately 900 square feet of interior living space per unit (approx. 1,000 sq
ft including attached garage)
● 2 bedrooms, 1.5 bathrooms, ensuite laundry, attached garages, and private
backyard patios
● Shared pedestrian-focused open space for social gathering and outdoor living
● Professional property management and maintenance
This infill housing development will occupy ten clustered, vacant City-owned lots to
maximize land use and create a walkable, community-oriented environment.
3. Sustainability and Smart Design
In alignment with the Sustainable Oshkosh 2020 Plan and the South Shore
Redevelopment Area Amendment #3 (2024), the project shall incorporate:
● Solar photovoltaic systems
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PLAN COMMISSION WORKSHOPFebruary 19, 2025
1
● Electric heat pumps for heating/cooling
● Water conservation systems
● Permeable pavement and low-impact landscaping
These features will reduce energy costs, support Oshkosh’s sustainability goals, and
ensure long-term operational affordability for residents.
4. Affordability and Livability
This development responds directly to local housing needs identified in “A Place in
Oshkosh: A Housing Needs Assessment and Strategy Plan” (2022):
● Townhomes are designed to be affordable and attainable to Oshkosh’s
workforce
● Housing costs are aligned with the Housing + Transportation Affordability
Index measures
● Units will serve a demographic often overlooked in new construction: the
“missing middle” — individuals and families who do not qualify for subsidized
housing but struggle to find reasonably priced, high-quality homes
5. Design Compatibility and Land Use Alignment
● The project enhances the downtown district’s urban character while respecting
its existing scale and architectural rhythm
● Development supports the South Shore Redevelopment Area’s goals of tax
base enhancement, neighborhood stabilization, and infill development
● Landscaping, walkability, and integrated green space foster social interaction,
well-being, and community identity
6. Justification for Planned Development Zoning
The Planned Development zoning is requested to:
● Allow flexible site design across multiple parcels
● Accommodate unified design standards across both TR-10 and SMU lots
● Support a phased development approach, including potential acquisition of
adjacent parcels for future expansion
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PLAN COMMISSION WORKSHOPFebruary 19, 2025
1
● Enable integration of green infrastructure and pedestrian-oriented community
space
7. Community Engagement
We are committed to a transparent, collaborative development process:
● Conducting outreach and informational sessions with the community
● Partnering with the City of Oshkosh to ensure alignment with municipal goals
● Working proactively to address feedback and integrate neighborhood priorities
into the final design
8. Conclusion
This zone change is essential to realize the full potential of a well-designed, socially
inclusive, and climate-conscious townhome development. The 24 Townhomes will
contribute meaningfully to the City’s housing supply, sustainability leadership, and
equitable neighborhood development. We respectfully request your consideration and
support.
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W 8TH AVE.
W 9TH AVE.
NE
B
R
A
S
K
A
S
T
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OR
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.
10 UNITS
10 UNITS
2 UNITS
2 UNITS
202' - 10"
91' - 0"
91' - 2"
48' - 0"
202' - 7"
91' - 7"
91
'
-
9
"
50' - 6"
91' - 10"
18
'
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4
"
21
'
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1
"
18
'
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3
"
22
'
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3
"
8' - 4"3' - 2"
3' - 11"7' - 11"
7' - 6"1' - 6"
6' - 7"5' - 1"
33'-8" HEIGHT
33'-8" HEIGHT33'-8" HEIGHT
33'-8" HEIGHT
55
'
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0
"
31' - 5"
51
'
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0
"
26' - 6"191' - 0"
35
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42
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35' - 6"
24' - 6"
45
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58
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24' - 6"35' - 0"
39
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39' - 0"
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191' - 0"
35
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30' - 6"
58
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20
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64' - 0"
57' - 6"
21
'
-
5
"
22
'
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5
"
61' - 0"
23
'
-
4
"
81' - 0"
31730 SF OPEN YARD SPACE
PROPERTY NOT IN SCOPEPROPERTY LINE
EXIST. BUILDING OPEN YARD SPACE
20' BLDG
28' BLDG
29' BLDG
29' BLDG
25' BLDG
24' BLDG
32' BLDG 30' BLDG
28' BLDG
25' BLDG
13' BLDG
ARCHITECT: EVAN WILLIAMS
DATE: 06/27/2025
CLIENT: PANGAEA DIMENSIONS
OSHKOSH, WI 54902
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W 9TH AVE
OR
E
G
O
N
S
T
NE
B
R
A
S
K
A
S
T
107113123137
112132136126
AREA: 4506 SF
AREA: 4506 SF
AREA: 4506 SF AREA: 4506 SF AREA: 4506 SF
AREA: 4506 SF AREA: 4506 SF
AREA: 4506 SF
AREA: 4506 SF AREA: 4506 SF
PROPOSED ADDRESSES:
107, 109, 111, 113, 115, 117
119, 121, 123, 125
PROPOSED ADDRESSES:
118, 120, 122, 124, 126, 128,
130, 132, 134, 136
PROPOSED ADDRESSES:
135, 137
PROPOSED ADDRESSES:
110, 112
0 50’100’
YIELD SIGN
STOP SIGN
PEDESTRIAN SIGN
STREET LIGHT
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING SINGLE
FAMILY
RESIDENTIAL
EXISTING
COMMERICIAL/
MIXED-USE
EXISTING
COMMERICIAL/
MIXED-USE
ZONE: CMU
ZONE: CMU
ZONE: CMU ZONE: CMU
ZONE: TR-10
ZONE: TR-10 ZONE: TR-10
ZONE: TR-10 ZONE: TR-10
ZONE: TR-10
ZONE: TR-10
ZONE: TR-10
ZONE: TR-10 ZONE: TR-10 ZONE: TR-10 ZONE: TR-10
ZONE: TR-10
ZONE: TR-10
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NEBRASKA ST
W 5TH AV
W 10TH AV
W 7TH AV
W 6TH AV
W 8TH AV
W 9TH AV
OREGON ST
S MAIN ST
J:\GIS\Planning\Plan Commission Site Plan Map Template\2023 Plan Commission Site Plan Map Template.mxd User: katrinam
Prepared by: City of Oshkosh, WI
Printing Date: 6/20/2025
1 in = 180 ft1 in = 0.03 mi¯W 8TH & 9TH AVE PARCELSNOTICE MAP
City of Oshkosh maps and data are intended to be used for general identification purposes only, and the City of Oshkoshassumes no liability for the accuracy of the information. Those using the information are responsible for verifying accuracy. Forfull disclaimer please go to www.ci.oshkosh.wi.us/GISdisclaimer
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NEBRASKA
ST
NEBRASKA ST
W 8TH AV
W 7TH AV
NEBRASKA ST
NEBRASKA ST
W 7TH AV
W 8TH AV
W 9THAV
OREGON ST
W 9TH AV
OREGON ST
OREGON ST
OREGON ST
W 9TH AV
W 8TH AV
W 7TH AV
W 8TH AV
W 7TH AV
NEBRASKA ST
NEBRASKA ST
W 9TH AV
OREGON ST CMU
CMU-PD
CMU-PD
I
I
I-PD
TR-10
TR-10
UMU
J:\GIS\Planning\Plan Commission Site Plan Map Template\2023 Plan Commission Site Plan Map Template.mxd User: katrinam
Prepared by: City of Oshkosh, WI
Printing Date: 6/24/2025
1 in = 100 ft1 in = 0.02 mi¯ZONING & AERIAL MAP
City of Oshkosh maps and data are intended to be used for general identification purposes only, and the City of Oshkoshassumes no liability for the accuracy of the information. Those using the information are responsible for verifying accuracy. Forfull disclaimer please go to www.ci.oshkosh.wi.us/GISdisclaimer
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