HomeMy WebLinkAboutItem 2.b
PLAN COMMISSION STAFF REPORT SEPTEMBER 2, 2025
ITEM 2.b: General Development Plan Approval for a Multi-Family Development
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 approval of a General Development Plan
(GDP) for a multi-family development.
Applicable Ordinance Provisions: Planned Development standards are found in Section
30-387 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
The applicant is proposing a multi-family development consisting of two, ten-unit
townhome buildings and two, two-unit buildings; each building is on a separate
individual lot. The proposed ten-unit townhomes are not permitted in the TR-10 District.
Staff is supportive of a Base Standard Modification (BSM) to allow the proposed
Page 1
ITEM 2.b – GDP – Townhome Development
townhomes, as the residential use will be compatible with neighboring residential uses
and will also be compatible with the 2040 Comprehensive Land Use Plan
recommendation of Center City, which promotes higher density residential uses.
A neighborhood meeting was held on August 13th, 2025. Neighbors in attendance were
generally supportive of the proposed use. A Plan Commission workshop was held on
February 19th, 2025, with Plan Commission voicing support for the proposed
development.
Site Design & Access - The proposed site will have six driveway accesses from both
West 8th Avenue and West 9th Avenue to one-car attached garages for each unit. A
Certified Survey Map (CSM) will be required for the lot combinations needed for the ten-
unit buildings. The proposed plan requires the following BSMs related to the site design:
- Increased impervious surface ratio to 58.7% for the two-unit lots and 59.1% for the
ten-unit lots (maximum impervious surface ratio for the TR-10 District is 50%).
- Reduced front setback for the ten-unit buildings to 18.25 ft., (code requires 25 ft.).
- Reduced side yard setback for each of the sites to 1.5 ft. – 5.1 ft. (code requires a 7.5
ft.).
Staff is supportive of the increased impervious surface ratio as the overall site functions
as a multi-family development which would typically allow for a higher impervious
surface ratio. Also, the Center City future land use plan designation is intended to allow
for high density development and increased impervious surface ratios. The reduced front
and side yard setbacks are also supportable due to the Center City future land use plan
designation which encourages higher density development. These potential BSMs will be
addressed during future Specific Implementation Plan (SIP) reviews.
Page 2
ITEM 2.b – GDP – Townhome Development
Per the City’s Residential Design Standards, the setbacks of the two-unit buildings shall
be consistent with the adjacent neighboring homes. The plan shows a slightly increased
setback for the two-unit buildings as compared to the neighboring single and two-family
homes, which may also be a potential BSM(s) addressed during SIP phases. A ten-foot
principal building separation will be required from the neighboring homes and will be
confirmed during the SIP phases.
Multi-family uses are required to provide outdoor recreation area at a minimum of 200
sq. ft. plus 25 sq. ft. per bedroom (1,400sq. ft.). The proposed site plan provides sufficient
rear yard space to meet this requirement. The landscape plan shows pedestrian accesses
running through the sites connecting to sidewalks on West 8th Avenue and West 9th
Avenue. Cross access agreement(s) will be required for the walkways as they cross
property lines.
Required Provided
Parking Spaces Minimum: 28 48
Impervious
Surface Maximum: 50% of lot 59% of lots total
Building Height Lesser of 35 ft. or 2 ½ stories 33’ 8” and 3-stories
Minimum Required Minimum Provided
Front Setback 25 ft. Various Deficiencies
Side Setback 7.5 ft. Various Deficiencies
Rear Setback 25 ft. 35 ft. +/-
Signage - No signage plans were submitted with this request.
Lighting - A photometric lighting plan was not submitted with the GDP request. Final
lighting plans will be reviewed as part of the phased SIP requests.
Storm Water Management - The final storm water management plans will be reviewed
during the SIP and/or Site Plan Review processes.
Landscaping - Code requires building foundation, paved area, street frontage, and yard
landscaping requirements to be met for the proposed site. The applicant has provided a
conceptual landscaping plan for the overall development.
Page 3
ITEM 2.b – GDP – Townhome Development
The conceptual landscape plan shows a combination of trees and shrubs near the
building foundations, around the paved areas, along the street frontages and within the
yards. The final landscaping plan and landscape point requirements will be addressed
during the SIP phases.
Building Facades - Building renderings for the ten-unit buildings were submitted as part
of this request. The proposed building exteriors consist primarily of brick and window
area. The total area devoted to windows and doors on the ten-unit buildings wall exceeds
the 20% minimum requirement for multi-family uses. The two-unit buildings will need to
meet the code minimum of 25% door/window area on the front facades for single and
two-family uses. Final elevations will be submitted as part of each SIP phase.
Page 4
ITEM 2.b – GDP – Townhome Development
The heights of the townhome buildings are shown to exceed the maximum height of two
and a half stories for the TR-10 District. Staff is supportive of the proposed increased
building height to 3-stories, as this is the result of utilizing ground-floor attached garages,
serving as an efficient use of space to meet parking needs. The overall building height
will remain under the maximum height of 35 ft. for the TR-10 District.
Findings:
In its review and recommendation to the Common Council on an application for a
Planned Development district, staff recommends the Plan Commission make the
following findings based on the criteria established by Chapter 30-387 (C)(6):
(a) The proposed Planned Development project is consistent with the overall purpose
and intent of the Zoning Ordinance, as the proposed multi-family use of the site
will not have a negative impact on the public because it is compatible with
neighboring residential uses and the 2040 Comprehensive Land Use Plan.
(b) The proposed Planned Development project is consistent with the City’s
Comprehensive Plan as housing is listed as an intended use under the 2040
Comprehensive Land Use Plan recommendation of Center City.
(c) The proposed Planned Development project would maintain the desired
relationships between land uses, land use densities and intensities, and land use
impacts because the residential use of the property is consistent with neighboring
residential uses.
Recommendation and Conditions:
Staff recommends approval of the General Development Plan with the findings listed
above and the following conditions:
1. Base Standard Modification (BSM) to allow two, ten-unit townhomes in the TR-10-
PD Zoning District.
2. All other BSMs will be addressed as part of the Specific Implementation Plan
application.
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March 2025 Sign_______ Staff ________ Date Rec’d ________
City of Oshkosh
Planned Development Application
For General Development Plan or Specific Implementation Plan
**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: ____________
TYPE OF REQUEST:
General Development Plan (GDP) General Development Plan (GDP) Amendment
Specific Implementation Plan (SIP) Specific Implementation Plan (SIP) Amendment
SITE INFORMATION
Address/Location of Proposed Project: __________________________________________________________________________
Proposed Project Type: ________________________________________________________________________________________
Estimated Cost: _______________________________________________________________________________________________
Current Use of Property: ________________________________________________________________Zoning: ________________
Land Uses Surrounding Your Site: North: _________________________________________________________________________
South: _________________________________________________________________________
East: _________________________________________________________________________
West: _________________________________________________________________________
➢ It is recommended that the applicant meet with Planning Services staff prior to submittal to discuss the proposal.
➢ 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
For more information please visit the City’s website at https://www.oshkoshwi.gov/PlanningServices/
SUBMIT TO: Dept. of Planning Services
215 Church Ave., P.O. Box 1130
Oshkosh, WI 54901 Room 204
PHONE: (920) 236-5059 Email: planning@oshkoshwi.gov
Delafield 53018
jodogba@pangaeadimensions.com
8th avenue
05-23-2025
262
Milwaukee
378-1110
Jibril Odogba
$77,000
378-1110
WI
05-23-2025
Vacant lot
Pangaea Dimensions
WI
9th avenue
Single Family 24 Townhomes
current zoning: TR-10 & CMU
3215 Golf Road, Ste 222
Nebraska street
3215 Golf Road, Ste 222
N of W 8th ave, S of W 9th ave, between Oregon st and Nebraska st
05-23-2025
53018
Oregon street
jodogba@pangaeadimensions.com262
05-23-2025
Page 6
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)
The following information must be provided in order for the application to be considered complete and able to
be scheduled for Plan Commission Review. Please use the checklist below to determine the required information
to be submitted at the time of application. If all information below cannot be provided at the time of application,
please request a waiver in writing to the Division’s Director or designee.
❑ A General Development Plan (GDP) submittal, per Section 30-387(C)(4), shall include the following items
(Submit only digital files. Please note at the discretion of Community Development staff may request a hard copy):
❑ General location map of the subject site depicting:
• All lands for which the Planned Development is proposed and other lands within 100 feet of the
boundaries of the subject property.
• Current zoning of the subject site and abutting properties, and the jurisdiction(s) that maintains that
control.
• A graphic scale and north arrow.
❑ Generalized site plan showing the pattern or proposed land uses, including:
• General size, shape, and arrangement of lots and specific use areas.
• Basic street pattern and pattern of internal drives.
• General site grading plan showing preliminary road grades.
• Basic storm drainage pattern, including proposed on-site stormwater detention.
• General location of recreational and open space areas, including designation of any such areas to
be classified as common open space.
❑ Statistical data, including:
• Minimum lot sizes in the development.
• Approximate areas of all lots.
• Density/intensity of various parts of the development.
• Building coverage.
• Landscaping surface area ratio of all land uses.
• Expected staging.
❑ Conceptual landscaping plan.
❑ General signage plan.
❑ General outline of property owners association, covenants, easements, and deed restrictions.
❑ A written description of the proposed Planned Development, including:
• General project themes and images.
• The general mix of dwelling unit types and/or land uses.
• Approximate residential densities and nonresidential intensities.
• General treatment of natural features.
• General relationship to nearby properties and public streets.
• General relationship of the project to the Comprehensive Plan or other area plans.
• Proposed exceptions from the requirements of the Zoning Ordinance and enhancements that will
be provided to compensate for them.
❑ Traffic Impact Analysis (TIA), if deemed necessary by the Director of Planning Services, or designee.
❑ A Specific Implementation Plan (SIP) submittal, per Section 30-387(C)(5), shall include the following items.
Note that the area included in an SIP may be only a portion of the area included in a previously approved GDP
(Submit only digital files. Please note at the discretion of Community Development staff may request a hard copy):
❑ An existing conditions map of the subject site depicting the following:
• All lands for which the Planned Development is proposed and other lands within 100 feet of the
boundaries of the subject site.
• Current zoning of the subject property and all abutting properties, and the jurisdiction(s) that
maintains that control.
• Existing utilities and recorded easements.
• All lot dimensions of the subject site.
• A graphic scale and a north arrow.
❑ An SIP map of the proposed site showing at least the following:
• All property lines and existing and proposed right-of-way lines with bearings and dimensions clearly labeled
• All required and proposed building setback and offset lines
• Impervious surface ratio (percentage)
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March 2025 3
• All existing and proposed buildings, structures, and paved areas, including building entrances, walks, drives, decks,
patios, fences, walls
• Location of all outdoor storage and refuse disposal areas and the design and materials used for construction
• Location and dimension of all on-site parking (and off-site parking provisions if they are to be utilized), including a
summary of the number of parking stalls provided per the requirements of Section 30-175 City of Oshkosh Zoning
Ordinance
• Location and dimension of all loading and service areas on the subject property
• Location, height, design, illumination power and orientation of all exterior lighting on the property including a
photometrics plan
• Location of all exterior mechanical equipment and utilities and elevations of proposed screening devices where applicable (i.e. visible from a public street or residential use or district). Mechanical equipment includes, but is not
limited to; HVAC equipment, electrical transformers and boxes, exhaust flues, plumbing vents, gas regulators,
generators
❑ Proposed grading plan.
❑ Specific landscaping plan for the subject site, specifying the location, species, and installation size of
plantings. The landscaping plans shall include a table summarizing all proposed species and required and
provided landscaping points for all applicable landscaping components (building foundation, paved
areas, street frontages, yards, bufferyards).
❑ Architectural plans for any nonresidential buildings, multi-family structures, or building clusters, other than
conventional single-family or two-family homes on individual lots, in sufficient detail to indicate the floor
area, bulk, and visual character of such buildings. The architectural plans shall include a percentage
breakdown of exterior materials applied to each building façade.
❑ Conceptual Engineering plans for all water and sewer systems, stormwater systems, roads, parking areas,
and walkways.
❑ Signage plan for the project, including all project identification signs, concepts for public fixtures and signs,
and group development signage themes that may or may not vary from City standards or common
practices.
❑ Any other necessary information as determined during pre-submittal meeting with City staff.
❑ Specific written description of the proposed SIP including:
• Specific project themes and images.
• Specific mix of dwelling unit types and/or land uses.
• Specific residential densities and nonresidential intensities as described by dwelling units per acre,
and landscaping surface area ratio and/or other appropriate measures of density and intensity.
• Specific treatment of natural features, including parkland.
• Specific relationship to nearby properties and public streets.
• Statistical data on minimum lot sizes in the development, the precise areas of all development lots
and pads; density/intensity of various parts of the development; building coverage, and
landscaping surface area ratio of all land uses; proposed staging; and any other plans required by
Plan Commission.
• A statement of rationale as to why PD zoning is proposed. This statement shall list the standard
zoning requirements that, in the applicant’s opinion, would inhibit the development project and the
opportunities for community betterment that are available through the proposed PD project.
• A complete list of zoning standards that would not be met by the proposed SIP and the location(s)
in which such exceptions/base standard modifications would occur and enhancements that will
be provided to compensate for them.
• Phasing schedule, if more than one development phase is intended.
❑ Agreements, bylaws, covenants, and other documents relative to the operational regulations of the
development and particularly providing for the permanent preservation and maintenance of common
open areas and amenities.
❑ A written description that demonstrates how the SIP is consistent with the approved GDP and any and all
differences between the requirements of the approved GDP and the proposed SIP.
Planning Staff may waive certain requirements if deemed not applicable to the project review.
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: _____________________
05-23-2025
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PLAN COMMISSION WORKSHOPFebruary 19, 2025
1
Proposed Planned Development Description: Claw Visions
The Claw Visions (Oshkosh 24 Townhomes) project is a thoughtfully envisioned
Planned Development that combines sustainability, community-centered design, and
attainable housing for today’s workforce. Anchored in livability, climate justice, and
neighborhood revitalization ideals, the development seeks to activate a formerly
underutilized area with high-quality, energy-efficient housing in alignment with the
South Shore Redevelopment Area Amendment #3 (2024) and the Comprehensive
Plan goals.
General Project Themes and Vision (see project images in the Appendix)
Our vision is rooted in:
● Sustainability and Net Zero Energy readiness
● Walkable community living with shared green space
● Affordability and workforce accessibility
● Architectural harmony with Oshkosh’s historic and urban character
Residents will enjoy a modern, yet timeless design aesthetic with tri-level townhomes
that blend clean lines, warm materials, and natural landscaping. The development
embraces a human-scaled neighborhood feel—inviting front stoops, integrated
greenways, and thoughtful pedestrian paths encourage interaction and foster a sense of
belonging.
General Mix of Dwelling Unit Types and Land Uses
The development consists of:
● 24 rental townhomes: each featuring 2 bedrooms, 1.5 bathrooms, an attached
garage, and private patio space
● Open integrated communal green space—serving as a shared backyard,
gathering area, and stormwater management feature
Residential Densities and Intensities
Page 9
PLAN COMMISSION WORKSHOPFebruary 19, 2025
1
● Approximate residential density: ~12–14 units per acre across clustered infill
parcels
● Each townhome is approximately 900 sq ft of finished living space, plus a
garage and storage for a total of ~1,000 sq ft per unit
● Modest urban density that supports the goals of Smart Growth, walkability, and
infill without overwhelming the surrounding built environment
Natural Features and Environmental Enhancements
● Minimal disruption to existing topography, with landscape design focused on
reintroducing tree canopy and softening urban heat islands
● Green infrastructure including permeable pavement, bioswales, and native
landscaping will reduce runoff and enhance site ecology
Relationship to Nearby Properties and Public Streets
● Designed to complement and conform with the existing neighborhood
characteristics
● Walkable design that enhances street frontage and integrates well with the
adjacent residential lots
● Open space and side setbacks preserve neighbor privacy and encourage
interaction
● Building orientation and landscaping create a welcoming street presence
Relationship to Comprehensive and Area Plans
● Directly supports:
○ A Place in Oshkosh: Housing Needs Assessment & Strategy (2022)
by increasing the housing stock and quality
○ South Shore Redevelopment Area Plan by promoting infill development
and economic revitalization
○ Sustainable Oshkosh 2020 by targeting Net Zero Energy Ready
construction and long-term environmental goals
Zoning Ordinance Exceptions & Enhancements
Page 10
PLAN COMMISSION WORKSHOPFebruary 19, 2025
1
To enable this unique and impactful development, the Planned Development seeks the
following zoning exceptions:
● Lot coverage slightly exceeding base zoning in some clusters due to tighter
urban infill
● Reduced front-yard and side-yard setbacks to encourage walkability and align
with current neighbors' setbacks
● Flexible design standards to accommodate green infrastructure, rooftop solar
orientation, and integrated open space
To compensate for these exceptions, we propose:
● Enhanced sustainability features (solar-ready roofs, heat pumps, permeable
surfaces)
● Publicly accessible green space with benches, walking paths, and community
plantings
● High-quality materials and aesthetic design
● Architectural continuity and streetscape enhancements
Development Timeline and Staging
The Oshkosh 24 Townhomes project will be implemented in four overlapping phases
to optimize resource deployment and adaptively respond to market and community
needs:
● Phase 1 (10 months): Construction of the first 2 townhomes begins along with
site preparation for Phase 2.
● Phase 2 (15 months): Concurrent with Phase 1 completion, 10 additional
townhomes will be developed.
Phase 3 (10 months): Following the early stages of Phase 2, another 2
townhomes will be constructed in a mirrored configuration.
● Phase 4 (15 months): Final construction of the remaining 10 townhomes,
completing the planned 24-unit community.
This phased approach ensures manageable build-out, early occupancy, and measured
integration into the neighborhood.
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2
CONCEPTUAL RENDER - FRONT
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3
CONCEPTUAL RENDER - BACK
Page 13
W 8TH AVE.
W 9TH AVE.
NE
B
R
A
S
K
A
S
T
.
OR
E
G
O
N
S
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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
'
-
4
"
21
'
-
1
"
18
'
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3
"
22
'
-
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
'
-
0
"
31' - 5"
51
'
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0
"
26' - 6"191' - 0"
35
'
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"
42
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6
"
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"
35
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191' - 0"
35
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30' - 6"
58
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64' - 0"
57' - 6"
21
'
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5
"
22
'
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5
"
61' - 0"
23
'
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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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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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