HomeMy WebLinkAboutAGENDApacket__09-23-25_1230_132
OSH KO SH C OMMO N C O UN C I L A GEN DA
C O UN C IL C H A MB ER S, C ITY H ALL
OSH KO SH , W I SC ON SI N
Septem ber 23, 2025
M issio n: The C ity o f Oshko sh provides go o ds and servic e s in pursuit of a safe and vibrant c o mmunity
V ision: A t hriving and sust ainable communit y offering abundant opportunit ie s for wo rk and life
If anyone requires reasonable ADA accommodations, please contact the office of the City Manager at
citymgr@oshkoshwi.gov, or phone 920-236-5002.
To send written correspondence to the Council, mail it to the City Manager, place it in the City Hall dropbox, or email it
to council@oshkoshwi.gov (prior to the Council meeting).
A.CALL TO ORDER (6 :0 0 p.m .)
B.ROLL CALL
C.INVOCATION - VOTING FIRST
Cou n cilor Nich ols
In v ocation #2
D.PLEDGE OF ALLEGIANCE
R ead Elem en tary Sch ool
E.PROCLAMATION ISSUED
(Issu ed ah ead of m eetin g)
Extra Mile Day, Nov em ber 1 , 2 0 2 5
F.PUBLIC STATEMENTS TO COUNCIL
(Th e pu blic is to address th e Cou n cil on ly. Statem en ts are lim ited to fiv e (5 )
m in u tes; th ey m u st address item s th at are n ot listed on th e Cou n cil
m eetin g ag en da, are lim ited to issu es th at h av e an im pact on th e City of
O sh k osh an d th e Com m on Cou n cil m ay address at a fu tu re m eetin g ,
an d m u st n ot in clu de en dorsem en ts of an y can didates or oth er
election eerin g). If you requ ire m ore tim e, please in form th e Mayor at th e
beg in n in g of you r presen tation .
G.CONSENT AGENDA ITEMS
(Con sen t Agen da item s are th ose item s of a rou tin e adm in istrativ e n atu re
th at are v oted on by th e Cou n cil in a sin g le roll call v ote. Staff
recom m en ds approv al of all item s. An y m em ber of th e pu blic or
Com m on Cou n cil m ay requ est th at an item be rem ov ed from th e
Con sen t Ag en da for discu ssion .)
1.R eport of Bills
2.Approv e Com m on Cou n cil Meetin g Min u tes 0 9 .0 9 .2 5
3.R eceipt & Filin g of Claim Filed with th e City's In su ran ce Com pan y -- Kyle
Corrig an
4.R es 2 5 -4 8 2 Disallow an ce of Claim -- Kyle Corrigan
5.R es 2 5 -4 8 3 R en ew al of Win n ebag o Cou n ty an d City of O sh k osh In ter-Ag en cy
Agreem en t for Haz-Mat R espon se Serv ices
6.R es 2 5 -4 8 4 Approv e bu dget am en dm en t to th e 2 0 2 5 Fire Departm en t's operation s
bu dget for fire equ ipm en t pu rch ases
7.R es 2 5 -4 8 5 Approv e R en ew al of Em ployee Health an d Den tal In su ran ce for 2 0 2 6
8.R es 2 5 -4 8 6 Approv e Labor Con tract with In tern ation al Association of Fire Fig h ters
(IAFF) Local 3 1 6 for years 2 0 2 4 , 2 0 2 5 & 2 0 2 6
9.R es 2 5 -4 8 7 Approv e Bu dget Am en dm en t to Police Special Fu n ds
10.R es 2 5 -4 8 8 Approv e Bu dget Am en dm en t to Police Departm en t Ev iden ce Secu rity
Project
11.R es 2 5 -4 8 9 Approv e Master Agreem en t w ith town san itary districts (O ctober 1 , 2 0 2 5
th rou gh Decem ber 3 1 , 2 0 4 5 )
12.R es 2 5 -4 9 0 Approv e G en eral Dev elopm en t Plan an d Specific Im plem en tation plan
for a bu ildin g en tran ce lan din g an d ram p at 6 0 8 Jefferson Street (Victory
Baptist Ch u rch ) an d adjacen t property located at th e n orth east corn er of
Jefferson Street an d East Park way Av en u e (Plan Com m ission
recom m en ds approv al)
13.R es 2 5 -4 9 1 Approv e Specific Im plem en tation Plan for a driv e-th rou gh car w ash at
1 7 0 0 Sou th Koeller Street (Plan Com m ission recom m en ds approv al)
14.R es 2 5 -4 9 2 Approv e Block Party - Jen Su lliv an to u tilize 1 2 th Av en u e for th eir
n eigh borh ood block party, O ctober 2 5 , 2 0 2 5
15.R es 2 5 -4 9 3 Approv e Special Ev en t - Down town O sh k osh Bu sin ess Im prov em en t
District (BID) to u tilize City streets, park in g lots an d O pera Hou se Squ are for
th e Down town O sh k osh Holiday Parade & Tree Ligh tin g , Decem ber 4 ,
2 0 2 5
16.R es 2 5 -4 9 4 Approv e Special Ev en t - Corn er Bar & G rill to h ost th eir 5 th An n iv ersary
Celebration in th e 2 0 9 0 W. 9 th Av en u e park in g lot, O ctober 4 , 2 0 2 5
17.R es 2 5 -4 9 5 Approv e Special Ev en t - Ven u Work s of O sh k osh , LLC to h ost th e Broadway
R ock of Ages con cert at th eir facility (1 2 1 2 N. Main St.), O ctober 1 8 , 2 0 2 5
18.R es 2 5 -4 9 6 Approv e Special Ev en t - Ven u Work s of O sh k osh , LLC to h ost th e Kan sas
w /Blu e O yster Cu lt con cert, Nov em ber 8 , 2 0 2 5
19.R es 2 5 -4 9 7 Approv e Special Ev en t - Ven u Work s of O sh k osh , LLC to h ost th e Crazy
Train - Th e O zzy Experien ce con cert, Decem ber 3 , 2 0 2 5
20.R es 2 5 -4 9 8 Approv e Special Ev en t - Ven u Work s of O sh k osh , LLC to h ost th e Harlem
G lobetrotters, Decem ber 3 1 , 2 0 2 5
21.R es 2 5 -4 9 9 Approv e ag en t ch an ge for R -Store Nos. 4 5 2 0 , 4 5 2 1 , 4 5 2 2 , 4 5 2 3
Class A Com bin ation
Agen t: R eg in a Niev in sk i
Addresses: R -Store #4 5 2 0 (3 0 5 O h io St); R -Store #4 5 2 1 (7 0 8 W Mu rdock
Av e); R -Store #4 5 2 2 (1 6 2 3 Bow en St); an d R -Store #4 5 2 3 (2 0 8 Bowen St)
22.R es 2 5 -5 0 0 Approv e con dition al su rren der of Com bin ation "Class B" Beer/liqu or
Licen se an d issu an ce of Com bin ation "Class B" Beer/liqu or Licen se (Kim
Wag n ern ese/ Ev erg reen Hospitality LLC, 3 1 0 5 S Wash bu rn St, O sh k osh to
Mitu l Patel AJJ O sh k osh Hospitality LLC, 3 1 0 5 S Wash bu rn St, O sh k osh )
H.ITEMS REMOVED FROM CONSENT AGENDA
I.PENDING ORDINANCES
23.O rd 2 5 -5 0 1 Approv e zon e ch an ge from Two Flat R esiden tial-1 0 District (TR -1 0 ) an d
Cen tral Mixed-Use District (CMU) to Tw o Flat R esiden tial-1 0 District w ith a
Plan n ed Dev elopm en t O v erlay (TR -1 0 -PD) for select properties located on
th e sou th side of th e 1 0 0 block of West 8 th Av en u e an d th e n orth side of
th e 1 0 0 block of West 9 th Av en u e between O reg on Street an d Nebrask a
Street (Plan Com m ission recom m en ds approv al)
24.O rd 2 5 -5 0 2 Approv e zon e ch an ge from Heav y In du strial District (HI) to Heav y
In du strial District w ith a Plan n ed Dev elopm en t O v erlay (HI-PD) at 2 7 5 1
Un iv ersal Street (Plan Com m ission recom m en ds approv al)
25.O rd 2 5 -5 0 3 Am en d Ch apter 1 3 of th e City of O sh k osh Mu n icipal Code Pertain in g to
Fire Prev en tion an d Protection to Adopt Updated Prov ision s from th e
In tern ation al Fire Code an d Clarify Prov ision s Pertain in g to R espon sibility
for Com plian ce an d Firework s
J.NEW ORDINANCES (NO TE: It is an ticipated th at th ere w ill be n o form al
action tak en at th is m eetin g on item s m ark ed w ith an asterisk (*) u n less
Cou n cil form ally w aiv es th e ru les.)
26.*O rd 2 5 -5 0 4 Desig n ate 2 0 th Av en u e an d th e east driv ew ay of Traeger Sch ool as
Traffic Con trolled In tersection per Section 2 7 A-7 of th e Mu n icipal Code
27.*O rd 2 5 -5 0 5 Am en d Section 2 7 -3 6 (j)(2 )(c) of th e City of O sh k osh Mu n icipal Code
pertain in g to Park in g Perm its w ith in Mu n icipal Park in g Lots an d R epeal
Section 2 7 -3 6 (e) pertain in g to Hou rs of En forcem en t with in Mu n icipal
Park in g Lots
28.*O rd 2 5 -5 0 6 Am en d Section s 2 -1 9 , 2 -2 0 an d Create Ch apter 2 Article VII-1 of th e City
of O sh k osh Mu n icipal Code all Pertain in g to Creation an d En forcem en t of
R u les on City Properties
29.*O rd 2 5 -5 0 7 Am en d Section 2 -1 0 (A) of th e City of O sh k osh Mu n icipal Code to rem ov e
th e requ irem en t th at th e an n u al Cou n cil O rgan ization al Meetin g be h eld
at 1 2 :0 0 n oon
30.*O rd 2 5 -5 0 8 Am en d Section 2 -1 6 (B) of th e City of O sh k osh Mu n icipal Code to
elim in ate th e requ irem en t for tw o readin g s of ordin an ces prior to
adoption
K.NEW RESOLUTIONS
31.R es 2 5 -5 0 9 Approv e G en eral Dev elopm en t Plan an d Specific Im plem en tation Plan
for a bu ildin g expan sion at 2 7 5 1 Un iv ersal Street (Plan Com m ission
recom m en ds approv al)
32.R es 2 5 -5 1 0 Approv e G en eral Dev elopm en t Plan for a m u lti-fam ily dev elopm en t
located on th e sou th side of th e 1 0 0 block of West 8 th Av en u e an d th e
n orth side of th e 1 0 0 block of West 9 th Av en u e (Plan Com m ission
recom m en ds approv al)
33.R es 2 5 -5 1 1 Adopt 2 0 2 6 calen dar of Cou n cil m eetin g s
34.R es 2 5 -5 1 2 Approv e Am bu lan ce Serv ice Agreem en t for 2 0 2 6 w ith th e Tow n of
Algom a
35.R es 2 5 -5 1 3 Approv e Utility Un dergrou n din g Policy
L.COUNCIL DISCUSSION, DIRECTION TO CITY MANAGER & FUTURE AGENDA
ITEMS
36.Discussion and Direction to City Ma na ger
37.Future Agenda Items, Meeting s, and Workshop s
A.Bu dget Work sh ops:
Tu esday, O ctober 1 4 , 2 0 2 5 , 4 -6 pm
Wedn esday, O ctober 1 5 , 2 0 2 5 , 5 -7 pm (if n eeded)
B.2 0 2 6 O peration s Bu dget Pu blic Hearin g , O ctober 2 8 , 2 0 2 5 , 5 pm
M.COUNCIL MEMBER ANNOUNCEMENTS & STATEMENTS
N.CITY MANAGER ANNOUNCEMENTS & STATEMENTS
38.R em ov al of 1 9 1 5 Fire En g in e from Mu n icipal Collection
39.Cu rren t In itiativ es
O.MOTION TO GO INTO CLOSED SESSION (R oom 4 0 2 , City Hall)
Th e Com m on Cou n cil m ay con v en e in closed session pu rsu an t to Section
1 9 .8 5 (1 )(c) of th e Wiscon sin State Statu tes to con sider em ploym en t,
prom otion , com pen sation , or perform an ce ev alu ation data of an y pu blic
em ployee ov er w h ich th e gov ern m en tal body h as ju risdiction or exercises
respon sibility (specifically, th e qu arterly rev iew of th e City Man ager).
P.ADJOURN
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Julie Calmes, Director of Finance
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Report of Bills
B a c k g r o u n dBackground
Th e item s below are bein g presen ted for approv al by th e O sh k osh Com m on Cou n cil.
Th ese item s h av e been properly au dited an d certified by th e City Com ptroller an d are
h erew ith su bm itted for you r allow an ce in th e am ou n t of $2 1 ,0 5 4 ,5 2 9 .3 4
Bills paid Septem ber 5 an d 1 2 , 2 0 2 5 $3 ,9 2 8 ,5 4 4 .9 8
Payroll paid Septem ber 1 2 , 2 0 2 5 $1 ,2 2 1 ,2 4 0 .0 1
R egu lar cycle payables paid
th rou gh ou t th e m on th of Au g u st $1 4 ,9 5 2 ,7 2 1 .2 7
R egu lar UMR payables paid
th rou gh ou t th e m on th of Au g u st $9 5 2 ,0 2 3 .0 8
A t t a c h m e n t sAttachments
09052025 Check run
August 2025 UMR
09122025 Check run
August 2025 Vouchers
CHECK NUMBER CHECK DATE VENDOR NAME AMOUNT
14344 09/05/2025 AIRGAS USA LLC 3,500.77
14345 09/05/2025 ALL TRAFFIC SOLUTIONS INC 3,000.00
14346 09/05/2025 BAYCOM INC 1,341.25
14347 09/05/2025 BROOKS TRACTOR INC 11,997.98
14348 09/05/2025 BROWN AND CALDWELL 3,191.43
14349 09/05/2025 CHEMTRADE CHEMICALS US LLC 4,561.37
14350 09/05/2025 CINTAS CORPORATION NO 2 597.32
14351 09/05/2025 COMMUNICATIONS ENGINEERING CO 785.50
14353 09/05/2025 DR HANSEN PLUMBING LLC 5,400.00
14354 09/05/2025 ENERGENECS INC 893.64
14355 09/05/2025 FOUNDATION BUSINESS SYSTEMS LLC 890.00
14356 09/05/2025 FULL SERVICE ORGANICS MANAGEMENT LLC 32,342.97
14357 09/05/2025 GARROW OIL CORP 44,746.92
14358 09/05/2025 GROUND EFFECTS OF WI INC 165.00
14359 09/05/2025 HAROLD CARPENTER AND COMPLETE OVERHEAD 624.00
14360 09/05/2025 HOLIDAY WHOLESALE 6,277.59
14361 09/05/2025 HOWARD ALLEN DAVIS 1,562.50
14363 09/05/2025 JACOBS ENGINEERING GROUP 2,772.50
14364 09/05/2025 J F AHERN CO 330.00
14365 09/05/2025 JFTCO INC 5,352.30
14367 09/05/2025 KEMIRA WATER SOLUTIONS INC 10,200.24
14368 09/05/2025 KONE INC 1,486.08
14369 09/05/2025 MACQUEEN EQUIPMENT GROUP 108.96
14370 09/05/2025 MICHELS ROAD AND STONE, INC 805.41
14371 09/05/2025 MILPORT ENTERPRISES INC 19,207.12
14372 09/05/2025 MSA PROFESSIONAL SERVICES INC 544.00
14373 09/05/2025 NORTHERN LAKE SERVICE INC 2,485.08
14374 09/05/2025 OSHKOSH CONVENTION AND VISITORS BUREAU INC 3,648.15
14375 09/05/2025 OTIS ELEVATOR COMPANY 11,109.00
14376 09/05/2025 PLYMOUTH LUBRICANTS 5,327.47
14377 09/05/2025 POESCHL PRINTING COMPANY INC 724.00
14378 09/05/2025 POMP'S TIRE SERVICES INC 2,881.88
14379 09/05/2025 PROFESSIONAL SVC INDUSTRIES 23,405.17
14380 09/05/2025 QUALITY TRUCK CARE CENTER INC 359,303.93
14381 09/05/2025 SEILER INSTRUMENT AND MFG CO INC 1,660.00
14382 09/05/2025 SERVICEMASTER BLDG MAINTENANCE 4,820.00
14383 09/05/2025 STORM COMPANIES INC 3,461.00
14384 09/05/2025 UNITED PARCEL SERVICE 93.54
14385 09/05/2025 WALLY SCHMID EXCAVATING INC 5,400.00
14386 09/05/2025 WI PUBLIC SERVICE CORP 16,962.08
14387 09/05/2025 WINDOW GENIE OF APPLETON AND OSHKOSH 1,100.00
14388 09/05/2025 WINNEBAGO COUNTY TREASURER 1,437.86
14389 09/05/2025 ZOLL MEDICAL CORPORATION 1,228.36
5006625 09/05/2025 HYDRO CORP 8,781.00
5006626 09/05/2025 JOHNSON CONTROLS US HOLDINGS LLC 2,115.11
5006627 09/05/2025 ADVANCE CONSTRUCTION INC 993,576.98
5006628 09/05/2025 ADVANTAGE PEST CONTROL 312.00
5006629 09/05/2025 ALEXANDER CHEMICAL CORPORATION 12,708.00
5006630 09/05/2025 MARK BIGGAR 16,086.03
5006631 09/05/2025 BOUND TREE MEDICAL LLC 671.80
5006632 09/05/2025 BRENNEN BUCK 66.23
5006633 09/05/2025 LEONARD CHAMPION 140.00
5006634 09/05/2025 COMMON SCHOOL FUND 473.00
5006635 09/05/2025 D AND K RENTALS 150.00
5006636 09/05/2025 DAY BY DAY SHELTER INC 19,549.79
5006637 09/05/2025 DAVID W STOKES 558.00
5006638 09/05/2025 GIZMO OSHKOSH LLC 13,447.87
5006639 09/05/2025 GUARANTY CLOSING AND TITLE SERVICES INC 5,000.00
5006640 09/05/2025 GUNDERSON CLEANERS INC 1,129.18
5006641 09/05/2025 HARMONY POWELL 50.00
5006642 09/05/2025 IMAGETREND INC 1,000.00
5006643 09/05/2025 INFOUSA MARKETING INC 741.00
5006644 09/05/2025 JACOB FANNIN 400.00
5006645 09/05/2025 JEROME M EATON 350.00
5006646 09/05/2025 JX ENTERPRISES INC 779.81
5006647 09/05/2025 A. KALMERTON WELDING SUPPLIES 261.77
5006648 09/05/2025 KEITH NORKOFSKI 115.00
5006649 09/05/2025 KIESLER POLICE SUPPLY INC 1,144.00
5006650 09/05/2025 LANGE ENTERPRISES 421.28
5006651 09/05/2025 LEGAL FILES SOFTWARE INC 10,453.00
5006652 09/05/2025 MONROE FABRICATION LLC 6,128.74
5006653 09/05/2025 NAPA AUTO PARTS 356.81
5006654 09/05/2025 ASHLEY R WILTZIUS 52.84
5006655 09/05/2025 DEB MUGERAUER 15.00
5006656 09/05/2025 DEMPSEY LAW FIRM LLP 1,008.00
5006657 09/05/2025 ENTRUST TITLE GROUP INC 83.51
5006658 09/05/2025 FIRST AMERICAN TITLE INSURANCE CO 74.47
5006659 09/05/2025 GUARANTY CLOSING & TITLE SERVICES 336.09
5006660 09/05/2025 HYDRAULIC ENGINEERING SERVICES INC 1,425.60
5006661 09/05/2025 JOYCE POKRANDT 30.00
5006662 09/05/2025 JULES ROBERTS-BETT 42.55
5006663 09/05/2025 MATTHEW C LENOX 93.63
5006664 09/05/2025 MICHAELS SALON & SUITES LLC 53.13
5006665 09/05/2025 P.H.H.G., LLC 731.34
5006666 09/05/2025 ROBERT OR CORRIE HEARN JR 46.72
5006667 09/05/2025 ROBERT POLLNOW 50.49
5006668 09/05/2025 SAMANTHA TEAL 66.96
5006669 09/05/2025 SOUTH PARK TIC GROUP 7.31
5006670 09/05/2025 SWANSON SWEET LLP 756.00
5006671 09/05/2025 TAMARA YBARRA 126.00
5006672 09/05/2025 TITAN PROPERTY MANAGEMENT LLC 86.00
5006673 09/05/2025 WALTER H DIES 59.94
5006674 09/05/2025 WINNEBAGO CO HISTORICAL SOCIETY 60.00
5006675 09/05/2025 OSHKOSH AREA HUMANE SOCIETY 366.00
5006676 09/05/2025 CITY OF OSHKOSH 442.00
5006677 09/05/2025 PALE BLUE DOT LLC 20,878.80
5006678 09/05/2025 NADINE M HUTMAKER 2,750.00
5006679 09/05/2025 REALTORS ASSOCIATION OF NORTHEAST WISCONSIN INC 325.00
5006680 09/05/2025 SCHMITT TITLE LLC 60.00
5006681 09/05/2025 T MOBILE 12,843.07
5006682 09/05/2025 ANN YORK 600.00
5006683 09/05/2025 THE WISCONSIN PARTNERSHIP FOR HOUSING DEV INC 249,500.00
5006684 09/05/2025 TODD MUEHRER 18.90
5006685 09/05/2025 TOTAL SECURITY AND SAFETY INC 6,510.00
5006686 09/05/2025 TRUCK COUNTRY OF WISCONSIN INC 291,849.30
5006687 09/05/2025 US BANK TRUST 575.00
2,296,622.42
CHECK NUMBER CHECK DATE CHECK TYPE VENDOR NUMBER VENDOR NAME AMOUNT
112681 08/04/2025 MANUAL 27018 UMR 1,569.67
112691 08/04/2025 MANUAL 27018 UMR 35,221.10
112701 08/04/2025 MANUAL 27018 UMR 27.60
112711 08/04/2025 MANUAL 27018 UMR 264.96
112721 08/04/2025 MANUAL 27018 UMR 134.64
112731 08/04/2025 MANUAL 27018 UMR 1,120.74
112741 08/04/2025 MANUAL 27018 UMR 97.18
112751 08/04/2025 MANUAL 27018 UMR 52.30
112761 08/11/2025 MANUAL 27018 UMR 88,063.09
112771 08/11/2025 MANUAL 27018 UMR 342.04
112781 08/11/2025 MANUAL 27018 UMR 118.68
112791 08/11/2025 MANUAL 27018 UMR 27.60
112801 08/11/2025 MANUAL 27018 UMR 86.25
112811 08/11/2025 MANUAL 27018 UMR 27.60
112821 08/11/2025 MANUAL 27018 UMR 55.20
112831 08/11/2025 MANUAL 27018 UMR 172.50
112841 08/11/2025 MANUAL 27018 UMR 102.60
112851 08/11/2025 MANUAL 27018 UMR 27.60
112861 08/11/2025 MANUAL 27018 UMR 215.01
112871 08/11/2025 MANUAL 27018 UMR 118.68
112881 08/11/2025 MANUAL 27018 UMR 17,954.20
112891 08/11/2025 MANUAL 27018 UMR 527.48
112901 08/18/2025 MANUAL 27018 UMR 86.25
112911 08/18/2025 MANUAL 27018 UMR 27.60
112921 08/18/2025 MANUAL 27018 UMR 306.90
112931 08/18/2025 MANUAL 27018 UMR 15.75
112941 08/18/2025 MANUAL 27018 UMR 77.40
112951 08/18/2025 MANUAL 27018 UMR 33.75
112961 08/18/2025 MANUAL 27018 UMR 15.75
112971 08/18/2025 MANUAL 27018 UMR 691.65
112981 08/18/2025 MANUAL 27018 UMR 237.60
112991 08/18/2025 MANUAL 27018 UMR 54.90
113001 08/18/2025 MANUAL 27018 UMR 15.75
113011 08/18/2025 MANUAL 27018 UMR 15.75
113021 08/18/2025 MANUAL 27018 UMR 56.25
113031 08/18/2025 MANUAL 27018 UMR 47.25
113041 08/18/2025 MANUAL 27018 UMR 100.35
113051 08/18/2025 MANUAL 27018 UMR 16.20
113061 08/18/2025 MANUAL 27018 UMR 2,884.00
113071 08/18/2025 MANUAL 27018 UMR 27.83
113081 08/18/2025 MANUAL 27018 UMR 521.26
113091 08/25/2025 MANUAL 27018 UMR 105,149.52
113101 08/25/2025 MANUAL 27018 UMR 40.00
113111 08/25/2025 MANUAL 27018 UMR 66.60
113121 08/25/2025 MANUAL 27018 UMR 33.75
113131 08/25/2025 MANUAL 27018 UMR 27.90
113141 08/25/2025 MANUAL 27018 UMR 126.00
113151 08/25/2025 MANUAL 27018 UMR 77.40
113161 08/25/2025 MANUAL 27018 UMR 15.75
113171 08/25/2025 MANUAL 27018 UMR 15.75
113181 08/25/2025 MANUAL 27018 UMR 33.75
113191 08/25/2025 MANUAL 27018 UMR 821.25
113201 08/25/2025 MANUAL 27018 UMR 56.25
113211 08/25/2025 MANUAL 27018 UMR 237.60
113221 08/25/2025 MANUAL 27018 UMR 66.15
113231 08/25/2025 MANUAL 27018 UMR 118.35
113241 08/25/2025 MANUAL 27018 UMR 294.30
113251 08/25/2025 MANUAL 27018 UMR 15.75
990804251 08/04/2025 MANUAL 27018 UMR 7,902.87
990811251 08/11/2025 MANUAL 27018 UMR 4,614.17
990818251 08/18/2025 MANUAL 27018 UMR 3,274.82
990825251 08/25/2025 MANUAL 27018 UMR 2,843.46
999080425 08/04/2025 MANUAL 27018 UMR 128,762.10
999081125 08/11/2025 MANUAL 27018 UMR 121,362.28
999081825 08/18/2025 MANUAL 27018 UMR 212,010.58
999082525 08/25/2025 MANUAL 27018 UMR 212,497.82
TOTAL 952,023.08$
CHECK NUMBER CHECK DATE VENDOR NAME AMOUNT
14390 09/10/2025 AIRGAS USA LLC 3,442.81
14391 09/10/2025 ALRO STEEL CORPORATION 889.09
14392 09/10/2025 AQUATIC INFORMATICS INC 2,311.98
14393 09/10/2025 AURORA HEALTH CARE 757.00
14394 09/10/2025 BADGER LAB & ENGINEERNG CO INC 9,238.00
14395 09/10/2025 BAKER & TAYLOR BOOKS 1,328.66
14396 09/10/2025 CARYN BEHLMAN 88.20
14397 09/10/2025 CENTRAL TEMP EQUIP SRVC INC 337.50
14398 09/10/2025 CHEMTRADE CHEMICALS US LLC 4,561.37
14399 09/10/2025 CINTAS CORPORATION NO 2 679.91
14400 09/10/2025 CONSTELLATION ENERGY SERVICES 1,379.48
14401 09/10/2025 CONVERGENT CLAIMS SERVICES, LLC 51.60
14402 09/10/2025 DFI SOLUTIONS IN PRINT INC 4,217.47
14403 09/10/2025 DORNER INC 527,658.74
14404 09/10/2025 EMMONS BUSINESS INTERIORS 818.85
14405 09/10/2025 ENERGY CONTROL AND DESIGN INC 2,467.74
14406 09/10/2025 ENTRANCE TECHNOLOGIES 1, LLC 220.00
14407 09/10/2025 ENVIROTECH EQUIPMENT 73.87
14408 09/10/2025 ENVISIONINK PRINTING SOLUTIONS INC 345.45
14409 09/10/2025 CENGAGE LEARNING INC 91.46
14410 09/10/2025 GANNETT WISCONSIN LOCALIQ 1,536.66
14411 09/10/2025 GFL ENVIRONMENTAL 773.98
14412 09/10/2025 GORDON FLESCH COMPANY INC 565.13
14413 09/10/2025 HACH COMPANY 10,893.86
14414 09/10/2025 JAMES RABE 1,580.10
14415 09/10/2025 JUSTIFACTS CVS INC 1,388.17
14417 09/10/2025 KWIK TRIP INC 583.65
14418 09/10/2025 LEAGUE OF WISCONSIN MUNICIPALITIES MUTUAL INS 18,270.82
14419 09/10/2025 LEE BEVERAGE 370.99
14420 09/10/2025 MANDI KATION 47.60
14421 09/10/2025 MATRIX CONSULTING GROUP LTD 3,233.00
14422 09/10/2025 MCC INC 3,850.98
14423 09/10/2025 MIDWEST TAPE LLC 6,645.29
14424 09/10/2025 MILPORT ENTERPRISES INC 7,526.98
14425 09/10/2025 NORTHERN LAKE SERVICE INC 400.16
14426 09/10/2025 OSHKOSH CITY CAB CO INC 93,205.50
14427 09/10/2025 OSHKOSH CONVENTION AND VISITORS BUREAU INC 18,278.53
14428 09/10/2025 PACKER CITY INTL TRUCKS INC 366.33
14429 09/10/2025 PINGRY-CASWELL INC 96.58
14430 09/10/2025 PLYMOUTH LUBRICANTS 3,962.42
14431 09/10/2025 POLYDYNE INC 30,525.00
14432 09/10/2025 PRIMADATA LLC 17,809.56
14433 09/10/2025 QUARLES AND BRADY LLP 10,260.00
14434 09/10/2025 RED SHOES INC 2,000.00
14435 09/10/2025 REINDERS INC 779.52
14436 09/10/2025 SECURIAN FINANCIAL GROUP INC 22,670.76
14437 09/10/2025 SPEEDY CLEAN DRAIN & SEWER 24,908.02
14438 09/10/2025 STAPLES 306.34
14439 09/10/2025 MCCLONE 49,108.00
14440 09/10/2025 UNITED PARCEL SERVICE 40.58
14441 09/10/2025 VINTON CONSTRUCTION INC 20,000.00
14442 09/10/2025 WI PUBLIC SERVICE CORP 88,081.35
14443 09/10/2025 WINNEBAGO AREA LITERACY COUNCIL 143.39
14444 09/10/2025 WINNEBAGO COUNTY TREASURER 72,650.61
14445 09/10/2025 WINNEBAGO CO SHERIFF DEPT 6,891.00
14446 09/10/2025 WINNEBAGO COUNTY TREASURER 228.75
14447 09/10/2025 WINNEBAGO COUNTY TREASURER 1,375.26
14448 09/10/2025 WOLTER INC 1,713.92
5006688 09/10/2025 KAMI ZUERCHER 249.40
5006689 09/12/2025 ACCURATE SUSPENSION WAREHOUSE 262.01
5006690 09/12/2025 ALEXANDER CHEMICAL CORPORATION 6,354.00
5006691 09/12/2025 ANIMAL HOSPITAL OF OSHKOSH 2,841.09
5006692 09/12/2025 ART CIY SIGNS LLC 62.35
5006693 09/12/2025 ASSOCIATED BANK OF OSHKOSH 525.00
5006694 09/12/2025 ASSURANCE TITLE SERVICES INC 7,500.00
5006695 09/12/2025 AUTOMOTIVE SUPPLY COMPANY INC 69.90
5006696 09/12/2025 BATTERIES PLUS LLC 1,780.00
5006697 09/12/2025 BERGSTROM CDJR OF OSHKOSH 12,288.11
5006698 09/12/2025 CARL BOWERS AND SONS CONSTRUCTION COMPANY INC 414,138.81
5006699 09/12/2025 CENTER POINT LARGE PRINT 449.46
5006700 09/12/2025 CHRIS HAEDT 46.20
5006701 09/12/2025 COMPLETE FIRE SOLUTIONS INC 300.00
5006702 09/12/2025 COPPER BOX LLC 3,500.00
5006703 09/12/2025 CRAIG A RAMTHUN 25.20
5006704 09/12/2025 CREATIVE SIGN COMPANY INC 500.00
5006705 09/12/2025 EXODUS LAWN CARE AND SNOW REMOVAL LLC 1,092.00
5006706 09/12/2025 FACE PAINTING BY ALI 150.00
5006707 09/12/2025 FARRELL EQUIPMENT AND SUPPLY 149.85
5006708 09/12/2025 FOX VALLEY IRON METAL AND AUTO SALVAGE INC 100.00
5006709 09/12/2025 GARTMAN MECHANICAL SERVICES 2,767.41
5006710 09/12/2025 GRAEF USA INC 3,398.84
5006711 09/12/2025 HENRY SCHEIN INC 2,768.61
5006712 09/12/2025 INGRAM LIBRARY SERVICES LLC 4,573.68
5006713 09/12/2025 JACKS MAINTENANCE SERVICE INC 125.00
5006714 09/12/2025 JACOB DEDERING 11.20
5006715 09/12/2025 JASON CROUT 77.00
5006716 09/12/2025 JEREMY KRUEGER 8.98
5006717 09/12/2025 JIM KOEPNICK PHOTOGRAPHY LLC 250.00
5006718 09/12/2025 JOE BONGERS 133.83
5006719 09/12/2025 A. KALMERTON WELDING SUPPLIES 155.68
5006720 09/12/2025 KENT ADHESIVE PRODUCTS COMPANY 352.60
5006721 09/12/2025 KITZ AND PFEIL INC 132.54
5006722 09/12/2025 KODI PARKER 129.50
5006723 09/12/2025 LA SURE'S INC 1,316.00
5006724 09/12/2025 LAWSON PRODUCTS, INC 171.62
5006725 09/12/2025 MATHESON TRI-GAS INC 1,612.50
5006726 09/12/2025 MORGAN DUNN 36.96
5006727 09/12/2025 NAPA AUTO PARTS 175.06
5006728 09/12/2025 ANCHORAGE PROPERTIES LP 13.53
5006729 09/12/2025 BZA PROPERTIES LLC 239.86
5006730 09/12/2025 FAITH FEHRMAN 200.00
5006731 09/12/2025 GUARANTY CLOSING & TITLE SERVICES INC 86.38
5006732 09/12/2025 JOHN A OR SUSAN M KREIBICH 99.60
5006733 09/12/2025 MARK J OR JUDITH M KALBUS 52.92
5006734 09/12/2025 PINE INVESTMENTS OF OSHKOSH LLP 24.18
5006735 09/12/2025 Quandt Plumbing LLC 30.00
5006736 09/12/2025 Quandt Plumbing LLC 30.00
5006737 09/12/2025 RONALD OR ERIKA VANLAARHOVEN 112.82
5006738 09/12/2025 SCHMITT TITLE LLC 126.04
5006739 09/12/2025 SPARK DEVELOPMENT CO 119.23
5006740 09/12/2025 STEPHANIE A OR PAUL A FILTER 46.72
5006741 09/12/2025 THEOBALD APPLETON RENTAL PROPERTY LL 36.20
5006742 09/12/2025 WATTERS PLUMBING 135.00
5006743 09/12/2025 WRS PROPERTY MANAGEMENT LLC 9.87
5006744 09/12/2025 OSHKOSH AREA SCHOOL DISTRICT 4,648.43
5006745 09/12/2025 CITY OF OSHKOSH 30.00
5006746 09/12/2025 CITY OF OSHKOSH 105.00
5006747 09/12/2025 PEPSI COLA GENERAL BOTTLNG INC 205.81
5006748 09/12/2025 RACHEL ANDERSON 58.80
5006749 09/12/2025 RADDATZ FARM LLC 300.00
5006750 09/12/2025 RED POWER DIESEL SERVICE INC 653.23
5006751 09/12/2025 RIDGELINE UTILITY CO LLC 2,055.00
5006752 09/12/2025 RIESTERER & SCHNELL INC 470.43
5006753 09/12/2025 RYAN BUSCHING 64.40
5006754 09/12/2025 SAIKI DESIGN INC.695.00
5006755 09/12/2025 SANDY TOLAND 74.76
5006756 09/12/2025 SCHMITT TITLE LLC 180.00
5006757 09/12/2025 SCOTT FOOTIT 374.49
5006758 09/12/2025 SHERWIN WILLIAMS CO 162.67
5006759 09/12/2025 TRUGREEN PROCESSING CENTER 855.68
5006760 09/12/2025 UNIQUE MANAGEMENT SERVICES 628.30
5006761 09/12/2025 UNITED MAILING SERVICES INC 3,043.07
5006762 09/12/2025 US BANK TRUST 1,725.00
5006763 09/12/2025 WISCONSIN TUBING LLC 650.03
5006764 09/12/2025 WINNEFOX LIBRARY SYSTEM 58,971.75
1,631,922.56
CHECK NUMBER CHECK DATE VENDOR NAME AMOUNT
14264 08/01/2025 ASSOCIATED BANK MERCHANT SERVICES 558.91
14362 08/01/2025 BANKCARD USA 465.62
14366 08/01/2025 DELTA DENTAL OF WISCONSIN INC 5,359.62
14416 08/06/2025 DELTA DENTAL OF WISCONSIN INC 12,411.80
14449 08/13/2025 DELTA DENTAL OF WISCONSIN INC 8,416.87
14450 08/20/2025 DELTA DENTAL OF WISCONSIN INC 8,404.50
14451 08/27/2025 DELTA DENTAL OF WISCONSIN INC 12,654.45
14452 08/14/2025 FOX VALLEY TECH COLLEGE 859,025.00
14453 08/11/2025 BANK ONE 132,601.88
14454 08/01/2025 MISSION SQUARE 79,238.56
14455 08/15/2025 MISSION SQUARE 72,037.64
14456 08/01/2025 CITY OF OSHKOSH 600.70
14457 08/14/2025 OSHKOSH AREA SCHOOL DISTRICT 9,492,215.49
14458 08/31/2025 SOFTERWARE INC 50.54
14459 08/05/2025 TASC 24,315.64
14460 08/06/2025 TASC 184.31
14461 08/19/2025 TASC 24,328.14
14462 08/26/2025 TASC 757.05
14463 08/14/2025 UMR 126,377.49
14464 08/01/2025 US TREASURY 427,923.51
14465 08/15/2025 US TREASURY 390,600.97
14466 08/29/2025 US TREASURY 405,257.08
14467 08/14/2025 WINNEBAGO COUNTY TREASURER 1,974,309.86
14468 08/12/2025 WI DEPT OF REVENUE 75,183.98
14469 08/18/2025 WI DEPT OF REVENUE 10,213.07
14470 08/27/2025 WI DEPT OF REVENUE 83,321.16
14471 08/27/2025 WI DEPT OF REVENUE 76,281.24
14472 08/26/2025 WI DEPT OF SAFETY AND PROFESSIONAL SERVICES 80.00
14473 08/29/2025 WI RETIREMENT SYSTEM 646,769.78
14474 08/14/2025 WI DEPT OF WORKFORCE DEVEL-UI 2,452.41
14475 08/31/2025 WI DEPT OF TRANSPORTATION 324.00
14,952,721.27
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Approve Common Council Meeting Minutes 09.09.25
S U B J E C T :S U B J E C T :Receipt & Filing of Claim Filed with the City's Insurance Company -- Kyle Corrigan
D A T E :D A T E :September 23, 2025
C l a i m I n f o r m a t i o nClaim I n f o r m a t i o n
Claim an t: Kyle Corrigan
Date of Loss: 7 /2 /2 0 2 5
Su m m ary of Claim : Alleged person al in form ation was disclosed in an in ciden t su m m ary.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Crystal Bathke, Elections Specialist
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-482 Disallowance of Claim -- Kyle Corrigan
A t t a c h m e n t sAttachments
Res 25-482
Statewide/Claim
9/23/2025 25-482 RESOLUTION
PURPOSE: DISALLOWANCE OF CLAIM
INITIATED BY : CITY CLERK
WHEREAS, the following claim has been referred to the City's insurance carrier, which has recommended
disallowance.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the proper City
officials are hereby authorized and directed to disallow the following claim against the City of Oshkosh:
Claimant - Kyle Corrigan
Date of Loss - 07.02.2025
Claim — Alleged personal information was disclosed in an incident summary.
BE IT FURTHER RESOLVED that the City Clerk is hereby directed to inform the claimant by certified mail of the
disallowance and the fact that the claimant has six months from the date of service to appeal.
BE IT FURTHER RESOLVED that the City Clerk is directed to send a copy of this resolution and notice of
disallowance to the appropriate insurance carrier for the City of Oshkosh.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Tim Heiman, Fire Chief
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-483 Renewal of Winnebago County and City of Oshkosh Inter-Agency Agreement for
Haz-Mat Response Services
B A C K G R O U N DBACKGROUND
Th e O sh k osh Fire Departm en t h as h istorically h ad an in ter-agen cy ag reem en t betw een
Win n ebago Cou n ty an d th e City of O sh k osh for Type-II h azardou s m aterial respon se serv ices.
A N A L Y S I SANALYSIS
Th is w ou ld be a ren ew al for 2 0 2 6 to con tin u e th e agreem en t to participate in th e Win n ebago
Cou n ty Haz-Mat Em erg en cy R espon se Plan . Th e O sh k osh Fire Departm en t will con tin u e to
prov ide in itial em ergen cy respon se to h azardou s su bstan ce releases to assist fire districts w ith in
th e Cou n ty wh en requ ested.
F I S C A L I M P A C TFISCAL I M P A C T
Th e O sh k osh Fire Departm en t w ill be com pen sated th rou gh th e Local Em ergen cy Plan n in g
Com m ittee (LEPC) bu dget for th e pu rpose of h azardou s m aterials equ ipm en t at th e rate of
$9 ,0 0 0 .0 0 per year. Th ese fu n ds will be deposited in accou n t 0 2 3 5 0 2 3 0 -4 2 4 0 -2 0 5 5 7 .
R E C O M M E N D A T I O NRECOMMENDATION
I recom m en d th at th e Com m on Cou n cil approv e con tin u in g th is agreem en t w ith Win n ebag o
Cou n ty so th at w e can con tin u e th is m u tu ally ben eficial relation sh ip.
A t t a c h m e n t sAttachments
Res 25-483
HAZMAT Contract 2026
09/23/2025 25-483 RESOLUTION
PURPOSE: APPROVE INTER-AGENCY AGREEMENT BETWEEN WINNEBAGO COUNTY AND CITY OF OSHKOSH FOR
TYPE II HAZARDOUS MATERIAL (HAZMAT) RESPONSE SERVICES FOR 2026
INITIATED BY : OSHKOSH FIRE DEPARTMENT
WHEREAS, the Oshkosh Fire Department provides hazardous material response services through contract
with the State of Wisconsin Department of Military Affairs, Division of Emergency Management; and
WHEREAS, the Oshkosh Fire Department has previously provided county wide hazardous material response
services through Agreement with Winnebago County; and
WHEREAS, Winnebago County has requested the Oshkosh Fire Department to continue to provide these
services within the County for calendar year 2026.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the attached
Agreement with Winnebago County for Hazardous Materials Response Services from January 1, 2026
through December 31, 2026 is hereby approved and the proper City officials are hereby authorized to
execute and deliver the agreement in substantially the same form as attached hereto, any changes in the
execution copy being deemed approved by their respective signatures, and said City officials are
authorized and directed to take those steps necessary to implement the terms and conditions of the
Agreement.
INTER-AGENCY AGREEMENT
BETWEEN WINNEBAGO COUNTY AND CITY OF OSHKOSH
FOR TYPE II HAZARDOUS MATERIAL (HAZMAT) RESPONSE SERVICES
January 1, 2026 – December 31, 2026
THIS AGREEMENT is entered into pursuant to the authority provided by Section 66.0301,
Wisconsin Statutes, as to inter-governmental cooperative agreements; pursuant to Section 323.60,
Wisconsin Statues, as to general Emergency Response requirements and pursuant to Section 323.15,
relating to the powers and authority of Emergency Management.
WHEREAS, Winnebago County, a municipal corporation, whose address is 112 Otter
Avenue, Oshkosh, Wisconsin 54901 (hereinafter referred to as “County”) and the City of Oshkosh,
a municipal corporation, whose address is 215 Church Avenue, Oshkosh, Wisconsin 54901,
(hereinafter referred to as “City”) desire to enter into an inter-governmental agreement regarding
TYPE II Hazardous Material (HAZMAT) Response Services; and
WHEREAS, County desires to provide fiscal resources as herein specified in this agreement
and in order to enhance the county-wide use of City’s HAZMAT Response Team by County; and
WHEREAS, City is able and willing to provide such services in accordance with its hazardous
material plan, upon the request of the Local Emergency Planning Committee (hereinafter referred to
as “LEPC”) or the Winnebago County Emergency Management Director, as its designee.
NOW, THEREFORE, in consideration of the above promises and the mutual covenants of the
parties hereinafter set forth, the receipt and sufficiency of which is acknowledged by each party for
itself, the COUNTY and CITY do agree as follows:
I. DEFINITIONS
1.01 HAZARDOUS SUBSTANCE:
A “hazardous substance” is as defined pursuant to Section 42 U.S.C.A. Sec. 960(14)
or those substances designated by the administrator of the U.S. Environmental
Protection Agency, pursuant to 42 U.S.C.A. Sec. 9602(a), as such Statutes and shall
include, but not shall be limited to, flammable liquids or substances.
1.02 SUBSTANCE RELEASE:
“Substance Release” is defined as the release or spill of a hazardous substance as
defined in Sec. 1.01 of this agreement.
1.03 SUBSTANCE RELEASE RESPONSE:
“Substance Release Response” is defined as those activities undertaken by and
authorized by the City’s HAZMAT Response Team throughout Winnebago County
at the request of the LEPC or Emergency Management Director or designees to
provide adequate emergency response to hazardous substance release.
1.04 CITY HAZMAT RESPONSE TEAM:
The Fire Chief or his designee shall supervise and direct operations of the City
Response Team.
II. PURPOSE OF AGREEMENT
2.01 It is the intended purpose of the parties to this agreement to implement a
HAZMAT Plan for County-Wide HAZMAT Emergency Response and to provide
HAZMAT Response Team services to fire districts throughout Winnebago County.
Such services shall be limited to an initial emergency response to hazardous
substance release.
III. EMERGENCY RESPONSE FUNDING
3.01 During the term of this agreement, County shall provide through its LEPC
Budget matching funds to the City for the purpose of purchasing HAZMAT
equipment. Said funding shall be contingent upon County receiving sufficient
funding from the State for that specific purpose. Funding by County to City pursuant
to this agreement shall be $9,000.00 per year.
IV. TERM
4.01 The term of this agreement shall commence on the 1st day of January, 2026
and shall terminate as of the end of the day on the 31st day of December, 2026.
V. FAILURE TO APPROPRIATE FUNDS
5.01 The failure of Winnebago County Board of Supervisors to appropriate
sufficient funds in any year covered by this agreement shall be cause for automatic
termination of this agreement.
VI. HOLD HARMLESS AND INDEMNIFICATION
6.01 City agrees to provide liability protection for its officers, employees and
agents while acting within scope of their employment. Subject to any limitations
contained in Sec. 893.80 and any similar statute, of the Wisconsin Statutes, City
further agrees to hold the County harmless from any and all liability, including
claims, demands, losses, costs, damages, and expenses of every kind and
description (including death), or damages to person or property arising out of or in
connection with our occurring during the course of this agreement where such
liability is founded upon or grows out of the acts or omission of any of the
officers, employees or agents of City while acting within the scope of their
employment.
6.02 County agrees to at all times during the term of this agreement, indemnify,
save harmless and defend the City, its boards, commissions, agencies, officers,
employees and representatives against any and all liability, loss, damages, costs or
expenses, whether personal injury or property damage, which the City, its officers,
employees, agencies, boards, commissions and representatives may sustain, incur,
be required to pay by reason of any negligent acts, errors or omissions of the
County, pursuant to this agreement, provided however, that the provisions of this
Section shall not apply to liabilities, losses, charges, costs of expenses caused by or
resulting from the acts or omissions of the City, its agencies, boards, commissions,
officers, employees or representatives.
6.03 City and County intend by this indemnification, that each party will be
responsible for the acts and omissions of its own officers, employees, agents,
contractors, subcontractor and invitees to the extent not caused by, aggravated by,
or enhanced by the other party’s officers, employees’ agents, contractors,
subcontractors, and invitees.
6.04 Further, it is the intention of the parties to this Agreement that each party
shall be entitled to rely upon the municipal limitations and the immunities
available under the Wisconsin law, including but not limited to section 345.05,
and 893.83 of the Wisconsin Statutes and that such damage limits, caps and
immunities shall be used to govern all disputes, contractual or otherwise, as they
apply to the parties, their agents, officers and employees.
VII. DISCRIMINATION
7.01 During the term of this agreement the parties mutually agree not to
discriminate against any person, whether a recipient of services (actual or potential),
an employee, or an applicant for employment on the basis of race, religion, sex,
handicap, national origin, age, cultural differences, sexual preference, marital status,
or physical appearance. Such equal opportunity shall include but not be limited to
the following: employment, upgrading, demotion, transfer, recruitment, advertising,
layoff, termination, training, rates of pay, or any other form of compensation.
VIII. ENTIRE AGREEMENT
8.01 The entire agreement of the parties is contained herein and this agreement
supersedes any and all oral agreements and negotiations between the parties relating
to the subject matter hereof.
IN WITNESS WHEREOF, the CITY and the COUNTY have executed this agreement on the
____day of _______________, 2025.
CITY OF OSHKOSH (“CITY”) WINNEBAGO COUNTY (“COUNTY”)
By: ___________________________ By: __________________________
Rebecca Grill, City Manager Gordon Hintz, County Executive
By: __________________________ By: __________________________
Cheryl Pionke, Interim City Clerk Julie Barthels, County Clerk
By: __________________________
Lynn A. Lorenson, City Attorney
By: __________________________
Tim Heiman, City Fire Chief
Drafted by: Mary Anne Mueller
Corporation Counsel for Winnebago County
Redrafted 09/15/2025
Amended Signature Lines 09/15/2025
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Tim Heiman, Fire Chief
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-484 Approve budget amendment to the 2025 Fire Department's operations budget for
fire equipment purchases
B A C K G R O U N DBACKGROUND
In recen t bu dget discu ssion s w ith th e Fin an ce departm en t an d th e City Man ager, we assessed
ou r 2 0 2 6 Capital Im prov em en t Project su bm ission s, wh ich in clu ded sev eral equ ipm en t
acqu isition s. G iv en th e an ticipated fiscal ch allen ges for 2 0 2 6 , alon g with th e fact th at
Am bu lan ce person n el costs are projected to be below bu dg et for 2 0 2 5 , a proposal was m ade
to see if som e of th ese capital requ ests cou ld be pu rch ased in 2 0 2 5 yet. Th e specific item s
iden tified in clu de drysu its an d th erm als, costin g $1 9 ,0 0 0 ; a fire h ose tester, costin g $1 5 ,0 0 0 ; an d
a SCBA extractor, costin g $3 2 ,0 0 0 .
F I S C A L I M P A C TFISCAL I M P A C T
Th e below bu dg et am en dm en t m ov es 2 0 2 5 bu dgeted tax lev y from th e Am bu lan ce special
rev en u e fu n d to th e G en eral Fu n d in order to in crease th e fire departm en t m ach in ery an d
equ ipm en t bu dg et. If approv ed, th e drysu its an d th erm als, fire h ose tester, an d SCBA extractor
cou ld be pu rch ased in 2 0 2 5 .
Please con tact m e or Director of Fin an ce Calm es if you h av e an y addition al qu estion s.
R E C O M M E N D A T I O NRECOMMENDATION
Staff recom m en ds th at Cou n cil approv e th e abov e bu dget am en dm en t.
A t t a c h m e n t sAttachments
Res 25-484
09/23/2025 25-484 RESOLUTION
PURPOSE: BUDGET AMENDMENT FOR 2025 FIRE OPERATIONS BUDGET TO APPROVE AN INCREASE IN
EXPENDITURES ($66,000.00)
INITIATED BY : OSHKOSH FIRE DEPARTMENT
WHEREAS, the Common Council has adopted the 2025 Operating Budget, which is on file in the Office of
the City Clerk and available for public inspection; and
WHEREAS, the Oshkosh Fire Department is requesting budget amendment moves from the 2025 budgeted
tax levy from the Ambulance special revenue fund to the General Fund in order to increase the Fire
Department machinery and equipment budget.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the 2025 Operating
Budget, on file in the City Clerk's Office, is hereby amended to decrease tax levy and regular wages in the
Ambulance fund and to increase the tax levy and machinery and equipment expense in the General Fund.
This expenditure increase is for the purpose of purchasing drysuits and thermals, fire hose tester, and SCBA
extractor.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :John Fitzpatrick, Assistant City Manager / Director of Admin Services
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-485 Approve Renewal of Employee Health and Dental Insurance for 2026
B A C K G R O U N DBACKGROUND
Th e City of O sh k osh m an ages a self-fu n ded h ealth in su ran ce prog ram as an em ployee ben efit,
w h ich in clu des a v ariety of com pon en ts su ch as a th ird-party adm in istrator (TPA), a stop loss
carrier, prov ider n etwork s, an d a ph arm acy ben efit m an ag er (PBM). Th e City also m an ages a
self-fu n ded den tal plan adm in istered th rou g h Delta Den tal, as well as Th ree Wav es Health
Clin ic an d Welln ess Cen ter, an em ployer-based clin ic establish ed in 2 0 1 5 in con ju n ction w ith
Win n ebago Cou n ty an d th e O sh k osh Area Sch ool District. Addition ally, th e City u tilizes
G allag h er In su ran ce, R isk Man agem en t, an d Con su ltin g as ou r ben efits con su ltan t.
A N A L Y S I SANALYSIS
After ev alu atin g cu rren t m edical plan cost tren ds, it w as determ in ed th at th e City will be
in cu rrin g a zero in crease (0 %) in projected costs in ou r h ealth in su ran ce program for 2 0 2 6 . We
did discu ss th e option of plan desig n ch an ges with ou r Health In su ran ce Focu s G rou p, an d th e
recom m en dation was m ade to k eep cu rren t plan design in order to con tin u e to recru it an d
retain em ployees wh ile k eepin g ou r bu dget respon sibilities in m in d. Th e City is cu rren tly ou t for
bids on th e stop loss in su ran ce an d w ill accept th e m ost adv an tageou s option .
Addition ally, staff projects a zero percen t (0 %) in crease for th e den tal program in 2 0 2 6 .
F I S C A L I M P A C TFISCAL I M P A C T
Staff is estim atin g an ov erall zero percen t (0 %) in crease for th e h ealth in su ran ce prog ram in
2 0 2 6 as w ell as a zero percen t (0 %) in crease for th e den tal prog ram in 2 0 2 6 , Th e City is also
cu rren tly ou t for bids on th e stop-loss in su ran ce an d plan s to accept th e m ost adv an tageou s
option for 2 0 2 6 .
Alth ou gh th e city em ployee focu s grou p on h ealth in su ran ce, staff, an d City Man ager G rill are
pleased with th e ou tcom e of th is year's process, all parties u n derstan d th at it will be n ecessary
to con tin u e to ev alu ate ou r plan for 2 0 2 7 in order to con sider w h at ch an g es m ay be n ecessary
in order to preserv e th e best ben efits possible for ou r staff at th e m ost cost-effectiv e lev el
possible for ou r taxpayers m ov in g forw ard.
R E C O M M E N D A T I O NRECOMMENDATION
Based on th e an alysis con du cted, staff recom m en ds n o m odification of plan design at th is
tim e, reten tion of: UMR as th e TPA for th e h ealth in su ran ce prog ram , Carem ark as th e PBM for
th e prescription dru g prog ram , Delta Den tal of Wiscon sin as th e TPA for th e den tal prog ram ,
an d Prem ise Health as th e adm in istrator of th e Th ree Wav es Health Clin ic & Welln ess Cen ter, as
w ell as n o in creased fu n din g for th e h ealth an d den tal in su ran ce program s respectiv ely.
Please let m e k n ow if you h av e an y qu estion s regardin g th is m atter an d th an k you as always
for you r assistan ce an d su pport.
A t t a c h m e n t sAttachments
Res 25-485
09/23/2025 25-485 RESOLUTION
PURPOSE: APPROVE RENEWAL OF EMPLOYEE HEALTH AND DENTAL INSURANCE FOR 2026
INITIATED BY : ADMINISTRATIVE SERVICES
WHEREAS, the City of Oshkosh evaluated health and dental insurance programs for 2026; and
WHEREAS, the City recommends renewing agreements with UMR as the third party administrator (TPA) for
the health benefits insurance plan and Caremark as the pharmacy benefit manager (PBM), continuing
participation in and expansion of the Three Waves Health Clinic and Wellness Center, procuring stop-loss
insurance, and maintaining the current health insurance plan design which will result in the City of Oshkosh
incurring a zero (0)% increase in projected costs for 2026, and will provide minimal disruption to
employee-provider relationships; and
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the proper City
officials are hereby authorized to enter into and take those steps necessary to renew agreements with UMR
as the TPA for the health insurance plan, Caremark as the PBM, Premise Health as administrator for the Three
Waves Health Clinic and Wellness Center, procure advantageous stop-loss insurance, and maintain current
plan design for the health insurance as well as enter into and take those steps necessary to renew the
agreement with Delta Dental of Wisconsin as third party administrator (TPA) for a self-funded dental
insurance plan in substantially the same form as the existing agreement and endorsements, any changes in
the execution copy being deemed approved by their signatures.
BE IT FURTHER RESOLVED that money for this purpose is hereby appropriated from:
Acct. No. XXX-XXXX-6306-XXXXX Employee Benefit Fund
XXX-XXXX-6308-XXXXX Employee Benefit Fund
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :John Fitzpatrick, Assistant City Manager / Director of Admin Services
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-486 Approve Labor Contract with International Association of Fire Fighters (IAFF) Local
316 for years 2024, 2025 & 2026
B A C K G R O U N DBACKGROUND
Th e City h as reach ed a ten tativ e ag reem en t with th e In tern ation al Association of Fire Figh ters
(IAFF) Local 3 1 6 . Th is agreem en t h as been approv ed by th e respectiv e m em bersh ip of th e
grou p for th e con tract years of 2 0 2 4 , 2 0 2 5 & 2 0 2 6 .
A N A L Y S I SANALYSIS
Th e m ajor elem en ts of th e agreem en t are a restru ctu red pay sch edu le begin n in g in 2 0 2 4
w h ich prov ides an av erag e wage in creases of 3 .5 0 % in 2 0 2 4 , 4 .2 5 % in 2 0 2 5 , an d 4 .2 5 % in 2 0 2 6 .
Also in clu ded in th is pack et is th e con ceptu al ten tativ e ag reem en t.
F I S C A L I M P A C TFISCAL I M P A C T
Th e estim ated im pact for th e projected in creases associated with th is ag reem en t is
approxim ately $3 7 5 ,3 0 0 in 2 0 2 4 , $3 9 1 ,2 5 0 in 2 0 2 5 an d $4 0 7 ,9 0 0 in 2 0 2 6 .
R E C O M M E N D A T I O NRECOMMENDATION
Based on th e an alysis con du cted, as well as th e discu ssion an d direction th at occu rred w ith
Cou n cil, staff recom m en ds approv al of th is labor agreem en t w ith th e In tern ation al Association
of Fire Figh ters (IAFF) Local 3 1 6 for th e years of 2 0 2 4 , 2 0 2 5 , an d 2 0 2 6 .
A t t a c h m e n t sAttachments
Res 25-486
IAFF Tentative Agreement
09/23/2025 25-486 RESOLUTION
PURPOSE: APPROVE LABOR CONTRACT WITH INTERNATIONAL ASSOCIATION OF FIRE FIGHTERS (IAFF) LOCAL
316 FOR YEARS 2024, 2025 & 2026
WHEREAS, the City of Oshkosh and IAFF Local 316 previously negotiated a Working Conditions
Agreement (labor contract) for calendar years 2024-2026; and
WHEREAS, the City of Oshkosh and IAFF Local 316 previously negotiated a Working Conditions
Agreement (labor contract) for calendar years 2024-2026; and
WHEREAS, IAFF Local 316 has ratified these changes and it is appropriate for the Common Council to
approve this agreement.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the attached
changes to the current labor contract of the International Association of Fire Fighters (IAFF) Local 316 are
approved and the proper City officials are authorized and directed to enter into an appropriate
agreement for these purposes, the execution copy being deemed approved by their respective
signatures, and said City officials are further authorized and directed to take those steps necessary to
implement the terms and conditions of the labor contract.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Dean Smith, Police Chief
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-487 Approve Budget Amendment to Police Special Funds
B A C K G R O U N DBACKGROUND
Th e pu rpose of th e Police Special Fu n ds is to prov ide separate accou n tin g an d an y reportin g
requ irem en ts for fu n ds from Federal an d State fu n din g , gran ts an d don ation s to be u tilized for
specific operation al n eeds. Th ese fu n ds are u tilized to su pport v ariou s departm en t projects,
fu n din g an ticipated an d u n an ticipated operation al costs th at are n ot cov ered by th e gen eral
police bu dget.
A N A L Y S I SANALYSIS
Th e departm en t h as iden tified th e n eed to u pgrade ou tdated equ ipm en t u sed in patrol
operation s. To fu n d th is u pg rade, th e departm en t in ten ds to u tilize fu n ds from th e Federal Asset
Forfeitu re fu n ds, w h ich are placed in th e Police Special Fu n ds accou n t.
F I S C A L I M P A C TFISCAL I M P A C T
Th ere will be n o fiscal im pact on th e O sh k osh Police Departm en t gen eral bu dg et.
R E C O M M E N D A T I O NRECOMMENDATION
Th e O sh k osh Police Departm en t recom m en ds th e Com m on Cou n cil approv e a bu dg et
am en dm en t to in crease th e Police Special Fu n ds expen ditu re accou n t 0 2 1 5 0 2 1 1 -6 5 5 0 -0 2 1 5 2
in th e am ou n t of $4 0 ,0 0 0 for pu rch ase of m in or equ ipm en t.
A t t a c h m e n t sAttachments
Res 25-487
09/23/2025 25-487 RESOLUTION
PURPOSE: APPROVE THE OSHKOSH POLICE SPECIAL FUNDS BUDGET AMENDMENT
INITIATED BY : OSHKOSH POLICE DEPARTMENT
WHEREAS, the Common Council has adopted the 2025 Operating Budget, which is on file in the Office of
the City Clerk and available for public inspection; and
WHEREAS, the Oshkosh Police Department has identified the need to upgrade outdated equipment used
in patrol operations; and
WHEREAS, an amendment within the 2025 Budget is necessary to allocate funds from the Police Special
Funds revenue generated from Federal Asset Forfeiture to fund the equipment upgrade.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that a budget amendment
is approved to increase the Police Special Funds expenditure account 02150211-6550-02152 in the amount
of $40,000.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Dean Smith, Police Chief
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-488 Approve Budget Amendment to Police Department Evidence Security Project
B A C K G R O U N DBACKGROUND
Th e O sh k osh Police Departm en t con du cts an n u al property an d ev iden ce in spection s an d
au dits th rou gh ou t th e year to m ain tain its accreditation from th e Com m ission on Accreditation
for Law En forcem en t Ag en cies an d th e Wiscon sin Law En forcem en t Accreditation G rou p.
Addition ally, an au dit of h ig h -risk property is m an dated w h en th ere are ch an g es in property
an d ev iden ce person n el. Access to th e departm en t's ev iden ce con trol cen ter is strictly lim ited
to desig n ated Property an d Ev iden ce Clerk s an d th e im m ediate su perv isor.
A N A L Y S I SANALYSIS
Du rin g recen t au dits alon g w ith accreditation recom m en dation s, th e departm en t staff h av e
iden tified opportu n ities for process en h an cem en ts an d secu rity im prov em en ts to en su re th e
in tegrity of th e ev iden ce fu n ction . A dig ital k ey-box h as been im plem en ted to en able au dit
track in g of k eyed-access location s an d lock ers an d addition al biom etric readers h av e been
in stalled for accessin g fu rth er ev iden ce con trol room s. To en h an ce ov ersig h t in less accessible
areas, th e departm en t is seek in g to in stall m ore secu rity cam eras in specific ev iden ce storag e
an d processin g u n its, particu larly wh ere h igh -risk item s are k ept. To facilitate th is expan sion , th e
acqu isition of a n etwork v ideo recorder (NVR ) serv er is n ecessary, as th e existin g City NVR s h av e
reach ed th eir capacity. Th is u pgrade w ill also su pport poten tial expan sion s in oth er city areas
as requ ired.
F I S C A L I M P A C TFISCAL I M P A C T
Am en d th e departm en t's bu dget, redu cin g Accou n t No. 0 1 0 0 0 2 1 1 -6 1 0 2 ("R eg u lar Pay") by
$5 2 ,0 0 0 an d in creasin g Accou n t No. 0 1 0 0 0 2 1 1 -6 5 5 0 ("Min or Equ ipm en t") by $2 9 ,0 0 0 an d
Accou n t No. 0 1 0 0 0 2 1 1 -7 2 0 2 ("Capital O u tlay - O ffice Equ ipm en t") by $2 3 ,0 0 0 .
R E C O M M E N D A T I O NRECOMMENDATION
Th e O sh k osh Police Departm en t recom m en ds th e Com m on Cou n cil approv e a bu dg et
tran sfer from th e departm en t's regu lar salary bu dg et to its operatin g m in or equ ipm en t bu dget
to im plem en t th is en h an cem en t.
A t t a c h m e n t sAttachments
Res 25-488
09/23/2025 25-488 RESOLUTION
PURPOSE: APPROVE BUDGET TRANSFER TO IMPLEMENT THE POLICE DEPARTMENT EVIDENCE SECURITY PROJECT
INITIATED BY : OSHKOSH POLICE DEPARTMENT
WHEREAS, the Common Council has adopted the 2025 Operating Budget, which is on file in the Office of
the City Clerk and available for public inspection; and
WHEREAS, the Oshkosh Police Department has identified the need to enhance its security systems for the
property and evidence control centers; and
WHEREAS, a budget transfer within the 2025 Budget is necessary to allocate funds from the department's
regular pay budget to its operating minor equipment budget to implement the security system.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that a budget transfer is
approved to reduce Account No. 01000211-6102 ("Regular Pay") by $52,000 and increase to Account No.
01000211-6550 ("Minor Equipment") by $29,000 and increase to Account No. 01000211-7202 ("Capital Outlay
- Office Equipment") by $23,000.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Lynn Lorenson, City Attorney
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-489 Approve Master Agreement with town sanitary districts (October 1, 2025 through
December 31, 2045)
B A C K G R O U N DBACKGROUND
Th e City of O sh k osh h as for m an y decades prov ided w astew ater treatm en t for adjoin in g town s
u n der th e term s of v ariou s san itary districts ag reem en ts. Th e city is cu rren tly prov idin g
treatm en t serv ices to 6 districts: Algom a San itary District, Black Wolf San itary District, an d 4
separate districts with in th e Town of O sh k osh : Islan d View San itary District, Su n set Poin t San itary
District, Edgewood Sh an g ri La San itary District an d th e Win n ebago Area San itary District
(WASD).
Prev iou s ag reem en ts for th e v ariou s districts did n ot all con tain th e sam e term s an d con dition s
an d all h ad reach ed th e en d of th e in itial term s an d were n eith er u p to date or bein g
n ecessarily follow ed in term s of actu al practices. Th e ag reem en ts as th ey w ere cu rren tly bein g
applied were also n ot recov erin g th e fu ll costs of serv ice for th e districts an d billin g for capital
im prov em en ts to th e san itary system s w as n ot con sisten tly don e for th e districts wh o ben efited
from th ose im prov em en ts resu ltin g in district cu stom ers payin g a lower cost for th e w astew ater
treatm en t system th an th eir proportion ate sh are of u sage of th at system .
Look in g toward n ew agreem en ts, th e city h ad iden tified th e prim ary objectiv e to m odern ize
an d stan dardize all san itary district ag reem en ts u n der on e sim pler, equ itable cu rren t
ag reem en t with an attach m en t for each district iden tifyin g bou n daries, con n ection poin ts an d
an y n ecessary in div idu alized prov ision s. In itial drafts of th e Master Ag reem en t were sen t to th e
districts in Ju n e of 2 0 2 1 . Th e parties h av e m et an d exch an g ed drafts, an d en gaged in
m ediation ov er th e cou rse of th e past sev eral years an d h av e reach ed an ag reem en t on th e
Master Agreem en t. At th is tim e, we are requ estin g th at th e Cou n cil approv e th e term s of th e
Master Agreem en t.
Approv al of th e term s of th e Master Ag reem en t does n ot fin alize th is tran saction . After th e
Master Agreem en t is approv ed, th e City w ill n eed to con tin u e to w ork with all Districts on
fin alizin g th e adden du m s to th e Master Agreem en t, wh ich con tain District specific term s
am on g oth er prov ision s. O n ce th e adden du m s are fin alized, th e fin al in div idu al ag reem en ts
for each District will be brou g h t to cou n cil for approv al. Howev er, approv al of th e form of th e
Master Agreem en t is a sig n ifican t step in th is process an d g iv es each party th e assu ran ce th at
w e are agreed u pon an d w ill im plem en t th e ov erall prov ision s accepted by all th e parties
du rin g m ediation an d th at it is appropriate to m ov e on to th e n ext step of fin alizin g th e
adden du m s
City staff is work in g diligen tly to prepare th e adden du m s for each district an d plan to brin g
th ose to cou n cil du rin g O ctober an d Nov em ber to allow for im plem en tation of th e con tractu al
rates wh en 4 th qu arter 2 0 2 5 billin g is prepared an d sen t ou t in Jan u ary of 2 0 2 6 .
A N A L Y S I SANALYSIS
Th e n ew ag reem en t prov ides u pdated term s an d term in ology an d prov ides a stan dard basis
for all san itary districts for billin g with an ag reed u pon m eth od for calcu lation of serv ice rates
th at assu res rates w ill be rev iew ed an d u pdated an n u ally an d assu res th at costs are spread
equ itably across all u tility u sers. Th e agreem en t clarifies cu rren t bou n daries an d h ow th ose
bou n daries are am en ded an d in clu des prov ision s specific to an n exation s an d detach m en ts in
th e fu tu re. Th e Ag reem en t with Algom a San itary District will in clu de th e tran sfer ov er th e
cou rse of th e ag reem en t of sev eral areas th at h ad prev iou sly been an n exed to th e city back
to direct city serv ice an d billin g . Th ose areas in clu de areas in Hav en wood an d com m ercial
properties an d th e Au rora Hospital alon g Hig h w ay 2 1 . Th e ag reem en t in clu des prov ision s for
testin g an d com plian ce with city ordin an ce an d perm it requ irem en ts w h ich were n ot
con sisten tly addressed or applied u n der prev iou s ag reem en ts. Prov ision s are also in clu ded to
assu re th at th ere is appropriate data collection an d sh arin g of n ecessary in form ation between
th e parties th rou g h requ irem en ts for telem etry system s, an n u al reportin g requ irem en ts an d
establish m en t of a tech n ical stan dards com m ittee m ade u p of th e person n el w h o operate th e
district system s an d th e city u tility wh o can rev iew issu es an d con cern s, sh are in form ation an d
create protocols for w ork in g togeth er to en h an ce th e w ork in g relation sh ips an d in form ation
sh arin g between th e districts an d th e city. Th e agreem en t also sets forth prov ision s for dealin g
w ith poten tial exceedan ces an d for dispu te resolu tion if th ere are fu tu re dispu tes betw een th e
parties.
Followin g is an ou tlin e of th e basic layou t an d syn opsis of prov ision s th at th e parties h av e
ag reed to.
O v erall Form at --
Agreem en t -- Master Ag reem en t com m on to all districts
Attach m en ts --
A. Adden du m A -- Maps sh owin g cu rren t district bou n daries an d poin ts of con n ection
B. Adden du m B -- Allocated Flow Capacity
1 . By district an d by con n ection poin t wh ere applicable
2 . By tim e -- h ou rly/daily/m on th ly
C. Adden du m C - Billin g
1 . Utility Based Meth od dev eloped by fin an cial adv isors, Eh lers for th e city an d Trilogy
represen tin g th e districts
D. Adden du m D -- District Specific Term s an d Con dition s
E. Adden du m E -- Prov ision s pertain in g th e Pu rch ase of Addition al Capacity
Articles of th e Agreem en t
I. Term -- Th e Agreem en t proposed an in itial term of 2 0 years. Wh ile th e 2 0 -year term is sh orter
th an th e prev iou s agreem en ts it is still a lon g-term ag reem en t. To address an y con cern s abou t
an oth er lon g-term ag reem en t, staff bu ilt in reopen er lan g u ag e th at will allow staff to address
sig n ifican t issu es or reg u latory ch an g es if th ey arise du rin g th e cou rse of th e agreem en t.
Th e 2 0 -year in itial term also allow ed th e city to n eg otiate th e tran sfer of sev eral areas of city
in corporated properties, wh ich in clu de areas n ear Hav en wood, Kirk wood, Wyldewood, an d
com m ercial areas alon g High way 2 1 , th at are with in city bou n daries bu t cu rren tly serv ed by
ASD, to direct serv ice by th e City of O sh k osh .
II. Acron ym s an d Defin ition s -- Defin ition of con tractu al term s.
III. District Bou n daries an d Serv ice Area - Th e bou n daries of th e in div idu al districts an d
con n ection poin ts for th e in div idu al districts will be specifically iden tified with in an Adden du m
to th e Agreem en t alon g with an y special prov ision s su ch as city or district cu stom ers serv ed by
th e oth er party du e to location . Th e city w ill on ly prov ide serv ice with in th e district bou n daries,
w h ich in clu des fu tu re addition al con n ection s w ith in district bou n daries an d w ith in establish ed
flow lim its.
District bou n daries m ay be am en ded th rou g h a rev iew an d approv al process th rou gh East
Cen tral Wiscon sin R egion al Plan n in g Com m ission (ECWR PC) an d th e Wiscon sin Departm en t of
Natu ral R esou rces (WDNR ) or by an n exation s/attach m en ts or detach m en ts du rin g th e con tract
period. R ecog n izin g th at an n exation s / attach m en ts w ill ch an ge bou n daries an d, in som e
cases, m ay m ak e it reason able to m ak e ch an g es to own ersh ip of u tility assets an d
serv ice/m ain ten an ce area respon sibilities, prov ision s are in clu ded for acqu isition of th e oth er
parties' assets an d respon sibilities in som e cases.
For m ost districts, th ere are rev ision s to th e cu rren t m aps th at are n eeded in order to reflect th e
parties' cu rren t bou n daries an d in ten ded serv ice areas an d staff is work in g with th e districts
an d ECWR PC for th is pu rpose.
Th ere are also prov ision s settin g ou t th e respon sibilities for cu stom ers th at are w ith in on e party's
ju risdiction bu t du e to location or oth er factors cu rren tly serv ed by an oth er party. In th e case of
ASD, th e m aps w ill reflect th e tran sfer of th ose areas cu rren tly w ith in th e city an d serv ed by th e
district to city serv ice ov er th e cou rse of th e 2 0 -year agreem en t.
IV. Serv ices to be Prov ided -- Article IV of th e Agreem en t sets forth th e basic serv ices th e city
w ill prov ide to th e districts, in clu din g wastewater tran sportation , wastewater treatm en t, an d
in clu des referen ce to Adden du m B wh ich establish es th e specific capacity allocation s for each
District.
Note: Capacity Allocation h as been a sig n ifican t issu e for th e parties to ov ercom e particu larly
in relation to h igh er v olu m es expected in con n ection with storm ev en ts. Th e WWTP h as an
an n u al av erage daily flow capacity of 2 0 MG D (m illion g allon s per day). We k n ow th e plan t
can con tin u e to process w astew ater in h ig h er flow en v iron m en ts. Howev er, th e am ou n t of flow
th at can be processed can be affected by a n u m ber of factors, in clu din g th e ability to bypass
secon dary treatm en t an d blen d an d th e addition of tertiary or oth er processes ov er tim e. In
addition , th e parties n eed to be aw are th at ev en if th e plan t m ay h an dle h igh er flow s, th e city
in terceptor sewers m ay be lim ited. With th e assistan ce of th e m ediators, th e parties h av e
ag reed to th e an n u al av erage of 2 0 MG D, as well as m axim u m m on th ly, w eek ly, daily an d
h ou rly flows wh ich are reflected in th e defin ition section of th e fin al m aster agreem en t an d will
be reflected in th e district specific adden du m . Th e parties also recog n ized th at th ese am ou n ts
m ay ch an g e ov er tim e du e to v ariou s reg u lation s, orders or operation adju stm en ts an d th e
Agreem en t prov ides th at th ese am ou n ts w ill au tom atically adju st proportion ately sh ou ld th e
am ou n ts ch an ge.
Sh ou ld a party exceed its desig n ated lim it th e Ag reem en t prov ides th at at 8 0 % th e parties
w ou ld m eet an d discu ss option s to address flow; at 9 0 % districts m u st prov ide in form ation
sh owin g a plan for addressin g flow an d an y n oted deficien cies in th eir system an d at 9 5 % of
th eir allocated flow districts w ill n ot be allowed an y fu tu re con n ection s u n til th ey sh ow th at th ey
h av e addressed issu es an d addition al con n ection s w ill n ot cau se th em to exceed flow or th ey
pu rch ase addition al flow. A form u la for th e pu rch ase of addition al flow is in corporated in to
th e fin al agreem en t as Adden du m E.
V. District Com plian ce w ith Wastewater R eg u lation s -- Historically, district w aste h as been
requ ired to m eet th e ch aracteristics of dom estic stren gth w astew ater as it en tered th e city
system , th at is w aste th at is typical of residen tial u ses. Howev er, h istorically, little testin g h ad
been don e to v erify district com plian ce with regu lation s gov ern in g th e stren gth of wastewater.
Th e districts, in n eg otiatin g th eir rates for treatm en t u n der th e n ew ag reem en t, posited th at th e
w aste th ey in trodu ce in to th e system is lower in BO D (Biological O xyg en Dem an d is a m easu re
of th e am ou n t of oxygen n ecessary/con su m ed-by bacteria to decom pose w aste), TSS (Total
Su spen ded Solids), ph osph oru s an d am m on ia (NH3 ) th an typical city w aste stream s. Based on
th is assertion , th e districts n egotiated a low er treatm en t rate based on th e portion of th e rate
calcu lation th at relies on th ose param eters, h ow ev er th e districts were also con cern ed th at on e
or m ore of th e districts m ay exceed th is lev el at tim es. R ath er th an raise th e lev el for all districts,
th e districts requ ested th at th e rates be set at th e dom estic lim it for th ese 4 typical dom estic
stren g th waste con stitu en ts, bu t th at th ey be allow ed to exceed th ose at th e con n ection poin t.
Th e parties ag reed to recom m en d th at th e rates applicable to th e districts rem ain calcu lated
at th e cu rren t lev els for th ese 4 w aste con stitu en ts. Th ere m u st be testin g at th e con n ection
poin t v erifyin g th at th e districts m eet th ese lev els or th ey m u st pay for an y excess loadin gs of
th ese con stitu en ts at a rate to be calcu lated w ith th e an n u al rate sch edu le applicable to th e
districts. Districts m u st also adopt, com ply with an d en force w ith in th e district all city ordin an ces
an d adm in istrativ e codes, State an d Federal R eg u lation s an d appropriately test an d m on itor
an y n on -residen tial stren g th disch argers with in th eir bou n daries. Th e parties recog n ized th at if
th ere is a u ser in th e district th at separately pays pretreatm en t th at th ose costs wou ld be
su btracted from an y exceedan ce of th e district. In itial testin g m ay be a sin g le 7 -day test an d
eith er party m ay requ est addition al testin g , th e city w ou ld pay ½ of th e cost for addition al
testin g if su ch testin g were requ ested by th e city.
VI. Sam plin g of District Wastew ater -- Sam plin g w ill be don e in accordan ce w ith m eth ods an d
fees for city's in du strial u ser program . City staff an ticipates sam plin g an d testin g in th e sam e
m an n er as th ose en tities u n der th e city's in du strial u ser pretreatm en t program in itially wh ich
m ay becom e less frequ en t for districts w h en a baselin e is establish ed an d u p to date
in form ation is prov ided an n u ally by th e districts as to th eir cu stom er base. Th e agreem en t
fu rth er prov ides th at if h ig h stren gth w aste is detected, th e parties w ill work togeth er to h av e
addition al testin g perform ed to iden tify th e issu e an d determ in e wh at action s m ay be
n ecessary to com ply with th e con tract an d ordin an ce requ irem en ts. Excessiv e loadin g s of
u n u su al or con cen trated deleteriou s m aterials are proh ibited; th e ag reem en t prov ides th at if
th ere are su ch wastes th e district will eith er n eed to prov ide pretreatm en t or pay th e city's
addition al costs for su ch treatm en t. In flow an d In filtration (I&I) -- Districts are requ ired to tak e
reason able efforts to prev en t I&I w ith in th e system .
In spection of th e District Collection System -- th e ag reem en t an ticipates th e parties work in g
togeth er if an issu e is iden tified, bu t preserv es th e city's righ ts as th e perm it h older to in spect
records an d th e district system if n ecessary, focu sin g on en su rin g operation al efficien cy an d
safegu ardin g pu blic h ealth .
VII. R ates an d Fees / Billin g -- Th e existin g agreem en ts applied a v ariety of calcu lation s for
rates for each district resu ltin g in disparity between city an d district cu stom ers as well as
disparity in h ow th e v ariou s districts w ere bein g billed. Th e proposed rate stru ctu re prov ides a
m eth od for billin g for u sag e an d reim bu rsem en t of capital expen ses th at th e City in cu rs on
assets u sed by th e districts in clu din g th e in terest on debt to fin an ce th ose capital in v estm en ts
th at is applicable to all districts an d does n ot requ ire separate billin g of capital costs on a
project-by-project basis. R ates are proposed to be u pdated an n u ally an d prov ided to th e
districts for rev iew an d com m en t at least 3 0 days prior to adoption .
Th e rem ain der of th e Agreem en t con tain s "Stan dard Prov ision s" cov erin g :
VIII. R ecords -- records to be k ept an d rig h t of parties to exam in e
IX . Au dits -- parties will cooperate in au dits
X . Defau lt -- 9 0 day n otice of defau lt with opportu n ity to cu re
X I. Tech n ical Com m ittee -- to m eet to facilitate discu ssion s on day-to-day issu es an d tech n ical
con cern s pertain in g to th e operation of th e system an d rev iew proposed u pdates to th e
w astew ater ordin an ces
X II. Dispu te R esolu tion -- prov ision s for discu ssion an d m ediation , fin al dispu te resolu tion
th rou gh cou rt action
X III. R eopen ers, Am en dm en ts an d Exten sion of th e Agreem en t -- for su bstan tial ch an g es in
operation s or rate m odel; for ch an ges in applicable laws or sig n ifican t or u n foreseen
circu m stan ces; agreem en t w ill au tom atically exten d in 5 -year in crem en ts u n less n otice of
ren egotiation is g iv en by on e of th e parties; City m ay n ot term in ate prior to en d of a term
except in case of defau lt/breach of th e agreem en t th en m u st g iv e on e-year n otice to allow
parties to plan for separation of system s or th e City m ay seek an altern ate order th rou gh circu it
cou rt. Term in ation of th e agreem en t w ill be by a two year n otice.
X IV. Wh ole Ag reem en t
X V. Liability -- city n ot respon sible to districts for losses du e to break dow n s or failu re of th e
system ; each party respon sible for its own action s/in action s; gov ern m en tal im m u n ities w ith in
statu tes apply to action s
X VI. Headin g s -- for con v en ien ce on ly, actu al lan gu age of prov ision con trols in terpretation
X VII. Cou n terparts of Agreem en t -- m u ltiple copies of th e ag reem en t m ay be sign ed to allow
each party to h av e an orig in al on file
X VIII. Perform an ce Stan dards -- du ty of parties to act in good faith
X IX . Not con stru ed again st an y Party
X X . No Waiv er -- tem porary failu res or decision s n ot to en force a portion of th e ag reem en t
sh all n ot be h eld ag ain st a party later determ in in g to en force th e prov ision
X X I. Sev erability -- if an y section of th e ag reem en t sh ou ld be determ in ed to be
u n en forceable, it does n ot in v alidate th e en tire ag reem en t.
X X II. G ov ern in g Law / Ven u e -- Wiscon sin law
X X III. Notices -- con tact in form ation
X X IV. Au th ority to Sig n
F I S C A L I M P A C TFISCAL I M P A C T
Th e n ew ag reem en t will allow th e city to recou p th e costs of prov idin g serv ice to san itary
districts in a con sisten t an d equ itable m an n er th at is reflectiv e of th e portion of w astew ater
serv ices an d in frastru ctu re u sed by th e districts.
R E C O M M E N D A T I O NRECOMMENDATION
Staff recom m en ds approv al of th e Master Agreem en t.
A t t a c h m e n t sAttachments
Res 25-489
Master Agreement Sanitary Districts
09/23/2025 25-489 RESOLUTION
PURPOSE: APPROVE MASTER AGREEMENT WITH TOWN SANITARY DISTRICTS (OCTOBER 1, 2025 THROUGH
DECEMBER 31, 2045)
INITIATED BY : CITY ADMINISTRATION
WHEREAS, the City of Oshkosh has for many decades provided wastewater treatment for adjoining towns
under the terms of various sanitary districts agreements; and
WHEREAS, the City is currently providing treatment services to 6 districts: Algoma Sanitary District, Black
Wolf Sanitary District, and 4 separate districts within the Town of Oshkosh: Island View Sanitary District, Sunset
Point Sanitary District, Edgewood Shangri La Sanitary District and the Winnebago Area Sanitary District; and
WHEREAS, previous agreements for the various districts did not all contain the same terms and conditions
and all had reached the end of the initial terms; and
WHEREAS, the city and districts met and have agreed to a new master agreement that modernizes and
standardizes the basic provisions applicable to all districts in an equitable current agreement with
individualized attachments identifying boundaries, connection points and any necessary individualized
provisions for each district.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the attached Master
Agreement is hereby approved and that the proper city officials are hereby authorized and directed to
work with the districts to take those steps necessary to complete an individualized addendum for each
sanitary district for future approval of an agreement consistent with this Master Agreement with each district
seeking to enter into an agreement for the transportation to and treatment of wastewater by the City of
Oshkosh Wastewater Treatment Plant.
Page 1 of 36
Oshkosh Sanitary Districts Master Agreement
This Oshkosh Sanitary Districts Master Agreement (“Agreement”) is made between the
City of Oshkosh, a Wisconsin Municipality with its principal offices located at 215 Church
Avenue, Oshkosh, Winnebago County, Wisconsin 54902-1130 (“City”) and
________________ Sanitary District, a body politic organized and existing pursuant to
Chapter 60, Subchapter IX Town Sanitary Districts, §60.70 et. seq. Wis. Stats., with its
principal offices located at ______________________, Oshkosh, Winnebago County,
Wisconsin ____________ (“the District”).
Whereas, City and the District (collectively referred to herein as “the Parties”) have
previously entered into agreements for the provision of sanitary sewer and wastewater
treatment service (“Services”) by the City to the District; and
Whereas, the Parties wish to enter into an updated master agreement with common
provisions applicable to all districts served by the City of Oshkosh;
Whereas, specific provisions applicable to each individual district shall be incorporated
in addendums to each master agreement, with the terms of the master agreement
remaining uniform between the districts; and
Whereas, the City is not obligated to provide extraterritorial service to the District except
through a specific agreement for such services; and
Whereas, the City and the District entered into previous agreements for the
transportation and treatment of the District wastewater and recognize that the District is
currently dependent upon the City for service; and
Whereas, the City and District each desire to enter into this Agreement to continue their
long-term relationship; and
Whereas, in return for the City providing the Services, the District agrees that the District
will not promote competition for development or for movement or expansion of existing
commercial and industrial concerns located in the City that would be in violation of an
existing or amended Cooperative Plan/Agreement between the City and a respective
Town and/or Sanitary District; and
Page 2 of 36
Whereas, the Parties intend the foregoing provisions are contractual in nature and not to
be construed as mere recitals to this Agreement.
Now, therefore, the Parties by their duly authorized representatives, agree as follows:
I. Term of Agreement.
This Agreement shall commence for the billing period beginning October 1, 2025,
or alternatively for the next quarterly billing period following the latest date set
forth in the signature blocks below, and shall continue through December 31, 2045,
and shall continue thereafter, subject to the provisions of Article XIII.
II. Acronyms and Definitions.
A. Allocated Capacity. The flow capacity allocated to the District in
Addendum B.
Classes of Flow Capacity: Maximum Hour Flow – the greatest total
volume of wastewater during any consecutive 60-minute period expressed
in terms of gallons per hour.
Maximum Day Flow – the greatest total volume of wastewater during any
consecutive 24-hour period expressed in terms of millions of gallons per
day.
Maximum Week Flow – the greatest total volume of wastewater during any
consecutive 7-day period expressed in terms of millions of gallons per day .
Maximum Month Flow – the greatest total volume of wastewater during
any consecutive 30-day period expressed in terms of millions of gallons per
day.
Annual Average Daily Flow – the total volume of wastewater over one
calendar year divided by 365 expressed in terms of millions of gallons per
day.
Page 3 of 36
B. CMAR. Compliance Maintenance Annual Report that is required by the
WPDES General Permit for City and Satellite Sewage Collection Systems.
C. CMOM. Capacity, Management, Operation and Maintenance program
that is required by the WPDES General Permit for City and Satellite
Sewage Collection Systems.
D. Connection Point. The point at which the District’s Collection System
discharges to the City’s Collection System.
E. Collection System. The individual and combination of infrastructure
assets constructed, installed and used for the transmission of sanitary
wastewater. These assets include, but are not limited to gravity pipes,
manholes, force mains, valves, pump/lift stations with all their
components, and associated ancillary assets required to monitor, control
and evaluate flow.
F. Data Logger. An electronic device that automatically monitors and
records environmental parameters over time, allowing conditions to be
measured, documented, analyzed, and validated.
G. Designated Management Agency. An entity designated in an areawide
water quality management plan having responsibility for implementing
specific plan recommendations (“DMA”) reviewed and recommended by
East Central Wisconsin Regional Planning Commission (“ECWRPC”) and
approved by the Wisconsin Department of Natural Resources (“WDNR”).
H. District Wastewater Concentration. For purposes of calculating
wastewater charges, the following definitions shall apply: Wastewater
having organic concentrations of Biochemical Oxygen Demand (BOD5)
with an annual average of 250 milligrams per liter (mg/L), Total
Suspended Solids (TSS) with an annual average of 250 milligrams per liter
(mg/L), Phosphorous (P) with an annual average of 10 milligrams per liter
(mg/L), and Ammonia-Nitrogen (NH3-N) with an annual average of 25
milligrams per liter (mg/L).
I. EPA. United States Environmental Protection Agency.
Page 4 of 36
J. Infiltration. Water that enters a Wastewater System from the ground,
including, but not limited to, such sources as defective pipes, pipe joints,
connections, or manholes.
K. Inflow. Water that enters a Wastewater System through inappropriate
connections including, but not limited to, sump pumps, roof leaders, cellar
drains, and yard drains.
L. Rate of Return. The formula for calculating the Rate of Return is the total
annual principal and interest payments for the City’s sewer utility debt in
the test year plus an additional 10% of the annual principal and interest
payments less the City’s annual depreciation expense for the City’s
Wastewater System. The dollar amount is then divided by the net book
value of the City’s Wastewater System to arrive at a percentage Rate of
Return calculation.
M. Residential Equivalent Connection. The Residential Equivalent
Connection or “REC” is the formula for calculating the annual discharge
of an unmetered domestic residential unit. A Residential Equivalent
Connection or “REC “shall be defined as 100 gallons per person per day of
average daily flow with Category A domestic strength wastewater
concentrations as defined in the City of Oshkosh Municipal Code, Ch. 24.
A residential unit shall be defined as 3 people per unit.
N. Sewer Service Area. The area presently served or anticipated to be served
by a sewage collection system (“SSA”) as reviewed and recommended by
East Central Wisconsin Regional Planning Commission (“ECWRPC”) and
approved by the Wisconsin Department of Natural Resources (“WDNR”).
O. Technical Standards Committee. A committee made up of representatives
from the City and the Districts created to discuss matters of a technical
nature as described in Article XI.
P. Wastewater System. The combination of physical, chemical and biological
components used to collect, pump, analyze, measure and treat raw
wastewater and dispose of treated wastewater and biosolids in accordance
with Federal and State laws, regulations and permit requirements. The
Wastewater System includes, but is not limited to, the Collection System
and the Wastewater Treatment Facility.
Page 5 of 36
Q. Wastewater Treatment Facility. A plant in which a combination of
physical, chemical and biological processes are used to treat wastewater
and remove pollutants. The Wastewater Treatment Facility for the City is
currently located at 233 N. Campbell Road, Oshkosh, WI.
R. WDNR. Wisconsin Department of Natural Resources.
S. WPDES. Wisconsin Pollution Discharge Elimination System.
III. District Boundaries and Service Area.
A. Establishment of Boundaries.
The boundaries of the District are established in Addendum A, which is
incorporated into this Agreement and made a part hereof (“District
Boundaries”).
These boundaries will be modified by Amendment to reflect Sewer Service
Area (“SSA”) amendments and Designated Management Agency (“DMA”)
amendments approved by the Wisconsin Department of Natural Resources
(“WDNR”) which are within the boundaries of the District or the defined
protected town areas set forth in existing or amended Cooperative
Plans/Agreements between the City and a respective Town and/or Sanitary
District. The City agrees not to unreasonably withhold, delay, or condition
its approval of boundary modifications within the District, or defined
protected town areas as defined in a Cooperative Plan, which include
development anticipated to occur within the Allocated Capacity of the
District as defined within Addendum B to this Agreement. City disapproval
under this paragraph will be based upon a reasonable determination of the
lack of sufficient contracted capacity for flow, load, or strength, the lack of
sufficient downstream capacity in the City’s Collection System, or other
substantial engineering consideration related to a District’s proposed
construction or extension.
The boundaries will be similarly amended for annexation and attachment of
City service areas under Sections E and F below to reflect sewer service
amendments approved by the WDNR which are within the boundaries of
the City or the defined City growth areas set forth in existing or amended
Page 6 of 36
Cooperative Plans/Agreements between the City and a respective Town
and/or Sanitary District. The District agrees not to unreasonably withhold,
delay, or condition its approval of boundary modifications within the City
or City growth areas as defined in a Cooperative Plan.
B. Service Outside of the District Boundary.
The City shall provide Services to the District only within the District
Boundaries authorized by this Agreement.
Except as provided in paragraph A, the City has no obligation to provide
Services to any properties not currently located within the District
Boundaries and all rights are reserved by the City to decline to provide
Services to any properties outside of the District Boundaries as established
in Addendum A regardless of any proposed or future changes to the
boundaries of the District.
C. Connection Point(s).
The Connection Point(s) between the District’s Collection System and the
City’s Collection System are established in Addendum A. Changes in the
Connection Point(s) required for any reason, may be agreed upon by the
representatives for the Parties by written Memorandum of Understanding
and new Addendums may be attached to the Agreement indicating the
changes in Connection Points and date of change. In the case of the City
the representative shall be the Director of Public Works, and in the case of
the District the representative shall be the District President. A change in
the Connection Point(s) shall not require formal amendment of the
Agreement between the Parties.
D. District Mapping and Connections within the District.
The District shall provide to the City maps of current District facilities and
connections within the District which shall be updated annually to include
any changes to the location of facilities or connections and any additional
connections to the system. The maps shall clearly depict how each property
is metered.
The District may permit additional connections to the District’s Collection
System, subject to Section VII(H), provided that such connections are
within the District and SSA/DMA boundaries and that the District does not
Page 7 of 36
exceed its Allocated Capacity described in Addendum B, which is
incorporated into this Agreement and made a part hereof. The District shall
submit to the City’s Public Works Director annually, during the month of
December, a report showing the total current number of connections to the
District’s Collection System. The report shall contain the addresses of the
premises served by those connections, the type of land use associated with
each connection to the District’s Collection System, and clearly indicate any
new connections made to the District’s Collection System occurring during
the previous calendar year.
E. Currently Existing Atypical Sewer System Connections.
The Parties acknowledge that there are various atypical sewer connections
within both the City and various districts at the time of entry into this
Agreement. The Parties agree that the currently existing atypical sewer
connections, shall generally be treated as follows:
1. The Parties agree that those properties that are located within the
District but discharge sewage to the City’s Collection System at a
point other than a metered Connection Point may continue to
discharge sewage directly to the City’s Collection System, provided
that the District timely complies with the requirements of Article VII
pertaining to Flow Measurement.
2. Those City properties that have been annexed or attached to the City
but are still connected to the District’s Collection System shall
continue to remain connected to the District’s Collection System,
except as these areas may be brought into the City as provided in
Paragraph F below or as may be otherwise agreed upon by the
Parties. For example, in the case of parcels located within the City
currently served by the Town of Algoma Sanitary District No. 1,
service by the City may begin immediately upon execution of this
Agreement for certain of these parcels, while City service to certain
other parcels will occur no earlier than 20 years following execution
of this Agreement.
3. The quantity of flow from a user connection shall be determined in
accordance with Article VII of this Agreement pertaining to Flow
Measurement.
Page 8 of 36
F. Annexations/Attachments/Detachments.
In accordance with Section 60.79 of the Wisconsin Statutes, the annexation
of any parcel within the District detaches the parcel from the District. If at
any point an annexation or attachment causes a portion of the District’s
Collection System to be bordered by City properties on each side, then the
City may acquire the infrastructure assets of the District’s Collection System
located within the annexed area as follows:
1. If the sanitary flow through the annexed area connects directly to the
City’s Collection System without passing through any other portion
of the District’s Collection System and without passing through a
District meter, then the City shall acquire all the assets of the
District’s Collection System located within the annexed area,
including but not limited to pipes, pumps, valves, and manholes.
2. If the sanitary flow through the annexed area cannot connect directly
to the City’s Collection System without passing through any other
portions of the District’s Collection System or without passing
through a District meter, then the District shall continue to own and
maintain the infrastructure assets located in the annexed area until
the District meter is relocated and/or the Collection System is able to
directly connect to City facilities under paragraph 1 above.
3. If the sanitary flow can connect directly to the City’s Collection
System or if a majority of the patrons already receiving sewer service
within a definable area are City patrons, the City may take over
ownership and maintenance responsibilities for the portion of the
system within the defined area. At that time, the City shall acquire
and maintain all infrastructure assets of the District’s Collection
System located within the defined area including, but not limited to,
pipes, pumps, valves, and manholes.
When the City acquires a portion or all of the District’s Collection System,
the following shall apply regarding the infrastructure assets formerly
owned by the District:
Page 9 of 36
1. If the assets were financed by a private developer or in any other
manner without direct cost to the District, the acquired assets shall
be transferred to the City without cost to the City.
2. If the assets were a utility financed purchase by District through the
issuance of bonds or other debt and said indebtedness remains
unpaid, the City shall pay to the District the proportionate share of
any remaining indebtedness that is attributable to the purchase of
the assets. The City’s payment shall be made either in one sum, or
in annual installments of the amount necessary to pay the
proportionate share of the principal and interest when due. The
District shall apply the moneys received from the City strictly to the
payment of the principal and interest due.
3. If the assets were purchased by the District without incurring debt,
then the City shall pay to the District the depreciated value, if any,
of the assets as identified in the accounts of the District or as
reasonably calculated in relation to the anticipated remaining useful
life of the assets.
4. The Parties recognize that while the above parameters will generally
provide a reasonable means to calculate the value of assets, that there
may be circumstances in individual cases that require adjustment to
these calculations and the Parties agree to work together in good
faith in such cases to reasonably calculate the value of the assets to
be acquired. In the case of a dispute, the Parties agree that they may
seek the assistance of an independent outside person to assist with
the valuation of the assets or mediator. If the Parties are unable to
reach agreement, the City may take over the assets and either Party
may petition the Wisconsin Public Service Commission to seek
resolution of the matter in relation to compensation.
Should a detachment occur, the same process and analysis shall apply to
allow the District to acquire the infrastructure assets of the City’s Collection
System located within the detached area.
The Parties agree that they will execute any documents reasonably
necessary to facilitate the above transactions including easements, bills of
sale, deeds, release of easements, or similar documents.
Page 10 of 36
G. Parties’ Assets.
Notwithstanding anything to the contrary, the City continues to solely own,
operate, maintain and replace its Collection System and Wastewater
Treatment Facility, and shall solely bear the cost of any repair or
replacement for its Collection System and Wastewater Treatment Facility.
The District continues to solely own, operate, maintain and replace its
Collection System, and shall solely bear any cost of repair or replacement
for its Collection System and any related facilities.
H. District Specific Terms.
This Agreement is a standard master agreement between the City and each
of the sanitary districts it serves. The Agreement establishes foundational
terms and conditions that are applicable to all districts. The District may
have unique requirements and circumstances regarding service area, asset
ownership, or transfer, and as a result, Addendum D is hereby incorporated
into this Agreement to delineate District specific terms and conditions.
IV. Services to be Provided.
A. Wastewater Transportation.
The City shall receive wastewater generated within the District Boundaries
at Connection Points as provided for in Addendum A. The City shall be
responsible for the transportation of the wastewater from the Connection
Point(s) through the City’s Collection System to the City’s Wastewater
Treatment Facility and shall be responsible for obtaining all permits
necessary for operation, maintenance and replacement of its Collection
System. The District shall be responsible for the transportation of the
wastewater through the District’s Collection System to the Connection
Point(s) and shall be responsible for obtaining all permits necessary for
operation, maintenance and replacement of its Collection System.
B. Wastewater Treatment.
The City shall provide treatment of the wastewater from the District at the
City’s Wastewater Treatment Facility. The City shall own, operate and
maintain the Wastewater Treatment Facility and shall be responsible for
obtaining all permits necessary for operation of the Facility and complying
with all reporting requirements for the Facility.
Page 11 of 36
C. Capacity Allocation.
The City shall allocate capacity in its Collection System and its Wastewater
Treatment Facility as provided for in Addendum B, which is incorporated
into this Agreement and made a part hereof. Each District may also request
to purchase additional capacity according to the formula provided in
Addendum E. City approval under this paragraph shall not be
unreasonably withheld, conditioned, or delayed.
The District acknowledges that the capacity allocated to it in Addendum B
is calculated as determined as a percentage of the total treatment capacity
of the Wastewater Treatment Facility. If, for any reason, there are changes
to the total treatment capacity of the Wastewater Treatment Facility,
including a change in state or federal regulatory requirements, the District’s
capacity in Addendum B shall be adjusted accordingly. Specifically, the
District shall maintain their percentage allocation, but the District’s
percentage allocation shall now be applied to the new adjusted total
treatment capacity of the Wastewater Treatment Facility.
Both Parties agree that if any changes occur to the total treatment capacity
of the Wastewater Treatment Facility, the City shall provide the District
with notice of the revised capacity which shall be determined either by the
limits stated in the City’s current WPDES permit or through an engineering
study, submitted to and approved by the WDNR if required.
The District acknowledges that although its overall capacity is a percentage
of the total treatment capacity of the Wastewater Treatment Facility, the
District’s capacity may be further constrained at specific Connection Points
due to the limitations of the Collection System (including the size of the
existing pipes and infrastructure).
V. District’s Compliance with Wastewater Regulations.
A. District’s Compliance with City’s Wastewater Service Regulations.
1. Waste Characteristics.
Characteristics of waste delivered to the City’s Collection System at each
connection point must meet the requirements of Chapter 24 of the City
of Oshkosh Municipal Code.
Page 12 of 36
District wastewater strength may be calculated based on 7 days of
consecutive 24-hour flow proportional composite sampling performed
annually by a third-party laboratory. The District shall be responsible
for paying for the annual testing.
Alternatively, at the option of either Party, the District wastewater
strength may also be calculated by taking an annual rolling average,
which will be calculated based on 7 days of consecutive 24-hour flow
proportional composite sampling performed quarterly by a third-party
laboratory. Results of the testing will be aggregated with the data
collected quarterly over the past twelve months, to calculate an annual
average. This annual average will be used to determine District
wastewater strength in relation to the definition of Category A set forth
in this Agreement. In the event a District desires to use an annual rolling
average to calculate wastewater strength, the District shall be
responsible for paying for the quarterly testing. In the event the City
desires to use an annual rolling average to calculate wastewater
strength, the District and City shall equally be responsible for paying for
the quarterly testing.
2. Applicability of City Ordinance and Administrative Rules
The City’s provision of Services is subject to the District’s compliance
with and enforcement of all applicable City ordinances and
administrative rules pertaining to protection of the City’s Wastewater
System and the prevention of cross connections with any other utility
systems. All discharges from the District’s Collection System into the
City’s Wastewater System shall be subject to Chapter 24 of the City of
Oshkosh Municipal Code and the District’s Board of Commissioners
shall adopt and enforce regulations regarding the use of the District’s
Collection System that includes the same language as Sections 24-4, 24-
5, 24-6, 24-6.1 through 24-6.4, 24-6.6 and 24-6.7 of the City of Oshkosh
Municipal Code, except (1) replacing the word “City” or words “City of
Oshkosh” with the name of the Sanitary District, except in the case
where the sentence refers to the City’s Wastewater Treatment Plant
(Facility) or the City’s Industrial Wastewater Discharge Handbook; (2)
replacing the terms “Control Authority” and “Authority” with the term
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“District’s Board of Commissioners;” and, (3) replacing the term “Utility
Operations Manager” with the term “District’s President”. The City
reserves its legislative right to amend its ordinances and regulations as
it deems prudent or necessary.
Unless expressly required by state or federal laws or regulations, or
conditions of the City’s WPDES permit, if an amendment to the City’s
ordinances would conflict with the terms and conditions of this
Agreement the City cannot unilaterally amend its ordinances or
administrative rules without first submitting the proposed amendment
to the Technical Standards Committee (‘TSC”) for its review and
recommendation. However, if the City notifies the TSC of an
amendment and the TSC does not provide its recommendation within
30 days of the City’s notification, the City may take action without the
TSC’s recommendation.
The City agrees that it will not amend its ordinances with the effect of
invalidating this Agreement, or unjustly targeting the District. Any
amendment to the City’s ordinances are to be made in good-faith with
the objective of achieving equitable and comprehensive system-wide
regulation.
B. Sanitary District Ordinance Applying City Ordinance
The District must provide by ordinance that the City’s sewer use ordinance
as amended from time to time applies within their jurisdictions, including
that all customers within their jurisdictions who require pretreatment of
sewage are subject to the provisions of the City’s sewer use ordinance
relating to pretreatment.
The District shall periodically, and specifically upon request of the City,
sample and provide all sampling and test results for all customers within
its jurisdiction who are or may be subject to the provisions of the City’s
sewer use ordinance relating to pretreatment or as necessary to comply
with the District’s or City’s WPDES permit(s). The District shall work with
the City to sample and test within their District’s own system as discussed
in Article VI of this Agreement, to assure compliance with the pretreatment
requirements.
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Notwithstanding the above, this paragraph shall not limit the Parties’
rights or responsibilities for testing under state and federal law.
C. District’s Compliance with State and Federal Regulation.
The District shall comply with all State of Wisconsin and Federal laws,
regulations and orders concerning wastewater systems. Specifically, the
District shall comply with the State of Wisconsin’s General Permit under
the WPDES for Satellite Sewage Collection Systems (WI-0047341-06-0 or as
may be updated from time to time). The District shall provide the City a
copy of the District’s Capacity, Management, Operation and Agreement
(CMOM) and the most recent Compliance Maintenance Annual Report
(CMAR) within 30 days of the effective date of this Agreement, and any
updates to the CMOM and CMAR within 30 days after they are completed.
The District shall also provide the City with any notices of violation,
administrative orders, consent orders, consent decrees or any written
enforcement action taken by the WDNR or the EPA within 10 business days
of receipt by the District. Notwithstanding the preceding, the submission
of a District’s CMOM or CMAR does not grant the City any right to
unilaterally amend a CMOM or a CMAR. District security plans will be
redacted if they are included as part of a District’s CMOM or CMAR.
VI. Sampling of and Access to District Wastewater.
A. Sampling of District Wastewater.
The City shall cause periodic sampling and analyses to be conducted, at
least annually, of District wastewater. Initial samples will be collected at
the connection points. Samples will be collected and analyzed in the same
manner that samples are collected and analyzed for the City’s industrial
user program. Reports generated from the sampling and analysis shall be
provided by the City to the District in a timely manner. If a sample shows
high strength waste, or any other condition present in violation of Chapter
24 of the City of Oshkosh Municipal Code, the Parties shall work together
to have additional testing completed which may be at points other than the
connection point. The District shall pay the City for the sampling and
analysis at the same cost and rate as the City’s industrial user program.
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B. Inspection of District’s Collection System.
The District shall conduct periodic inspections of its Collection System to
ensure that users of the Collection System are in compliance with all
applicable regulations and take appropriate action to correct or cause the
correction of any deficiencies in the District’s Collection System. In
addition, the District agrees to allow the City, upon a minimum of 14
calendar days’ notice, to inspect the District’s Collection System and review
any written or electronic records relating to the physical and video
inspection of the collection system, and condition assessments of the
District’s wastewater pump stations. The District agrees to provide access
to the District’s Collection System and records along with a District
employee to facilitate the City’s inspection and review.
Inspections of the District’s Collection System by the City will focus on
ensuring operational efficiency and safeguarding public health. The City
will only request inspection when a compelling need is identified, such as
abnormal/excessive flow, deleterious material in flow (i.e. gravel), or other
evidence of system failure. In those instances, the City will promptly
inform the District of the identified issues and work collaboratively with
the District to resolve them.
C. Excessive Loads.
The District agrees that it will make reasonable efforts to control the
collection of wastewater containing any unusual or unusually concentrated
presence of deleterious materials and substances or materials and
substances that are now, or may in the future be, regulated under Chapter
24 of the City of Oshkosh Municipal Code, the terms of the WPDES permit
for the City’s Wastewater System, or EPA regulations. To the extent that
such wastes are collected by the District, the District shall either provide
pretreatment to remove such materials prior to introduction into the City’s
Wastewater System or shall pay the City in accordance with Article VII.
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D. Inflow and Infiltration.
The District agrees that it will make reasonable efforts consistent with best
practices in the wastewater sector to limit Inflow and Infiltration into the
District’s Collection System and to take action, which is within its authority,
to ensure that Inflow and Infiltration will not enter the District’s Collection
System. To the extent that the District does not limit Inflow and Infiltration
and the District exceeds its Allocated Capacity, the provisions of Article VII
shall apply.
VII. Rates and Fees / Billing.
A. Rates and Fees.
The District shall pay to the City wastewater charges as determined by the
Common Council, which may include a meter charge, fixed charge, volume
charge or such other fees and charges as may be determined by the
Common Council. It is the intent of this Agreement that the City shall be
fully compensated for the provision of Services to the District. The City
shall provide the District with a copy of the analysis at least 30 calendar
days prior to consideration by the Common Council to allow the District to
review and comment upon the proposed rates.
The rate study will be updated each year by entering the previous year’s
actual expenses, flows and loadings, and fixed asset values, along with
calculating of the rate of return according to the defined formula.
The rate study shall be based on the loading levels of the District
Wastewater Concentration, as defined in this Agreement. The rate study
shall calculate a rate, per pound, for treatment of BOD5, TSS, P, and NH3-
N exceeding the District Wastewater Concentration levels.
If the District exceeds the District Wastewater Concentration at any
connection point, the District shall be charged for that additional
exceedance per pound. In calculating the exceedance charge, the District
shall receive a credit for any payment the City receives directly from any
non-domestic sewage customers participating in the pretreatment
program as further detailed below.
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The City reserves its legislative discretion to modify its own rate structure
in the future. Rates will be established through a regular review of the cost
of service analysis performed in accordance with industry practices.
Generally, rates shall be calculated using a utility-based method with a
current Rate of Return. The current rate structure is set forth in Addendum
C. New rates shall automatically be included within this Agreement upon
approval of the Council and notification to the District.
The District may seek review by the Public Service Commission of
Wisconsin (“PSC”) under Wis. Stat. § 66.0821(5) for a determination of
whether the rates, rules and practices are unreasonable or unjustly
discriminatory. The District may only challenge the City’s rates, rules and
practices before the PSC if the Agreement is silent on such rates, rules and
practices.
If at any time the District has a non-domestic sewage customer (a customer
who is or may be subject to the provisions of the City’s sewer use ordinance
relating to pretreatment or as necessary to comply with the District’s or
City’s WPDES permits) within its boundaries, the District agrees that the
District shall pay a charge per pound over the pollutant concentrations
specified in Chapter 24 of the City of Oshkosh Municipal Code on the
wastewater discharged from the non-domestic sewage customer into the
District’s collection system. The charge shall be the same as the charge
assessed to the non-domestic sewage customers within the City.
The charge shall be invoiced to the District directly, unless the District
requests the City invoice the non-domestic sewage customer directly. In
the event of direct billing to the non-domestic sewage customer, the District
shall be responsible for any charges that are unpaid by the non-domestic
sewage customer.
Nothing in this provision waives, alters, or otherwise modifies the
requirement that the District wastewater flow shall not contain pollutant
concentrations exceeding those specified in Chapter 24 of the City of
Oshkosh Municipal Code at the Connection Point between the District and
the City. In that event, the provisions of Section VII(I) shall apply.
B. Billing and Flow Measurement.
The City shall bill the District for Services based on the quantity of flow
entering the City’s Collection System at the Connection Point. If there is
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more than one Connection Point, the quantity of flow shall be the sum of
quantity of flows from all Connection Points.
The quantity of flow for the District shall be determined by the City from
the following sources, which are listed in the order of priority/use for billing
purposes:
1. Wastewater Flow Meters/Integrated Telemetry System
2. Wastewater Flow Meters/Data Loggers
3. Temporary Wastewater Flow Meters
4. Residential Equivalent Connection
5. Water Flow Meters
If it is determined that any meter is inaccurate or inoperable, the City shall
estimate the quantity of flow using a method designed to reasonably
calculate the flow for the period including but not limited to extrapolation
from temporary flow meters, an average of the previous 6-months of flow
for which the meter was deemed to accurately measure flow, or average of
other similar user’s flow. For further information regarding the installation
and maintenance requirements of the above meters, see Article VII.C-E.
In the event there is residential wastewater flow entering the City’s or a
District’s Collection System at a Connection Point that is not metered by a
wastewater flow meter, that unmetered flow shall be estimated by taking
the flow per the Residential Equivalent Connection and multiplying it by
the number of unmetered units flowing through the Connection Point. For
non-residential flow that is unmetered, the Parties shall meet and agree
upon a metering system that shall be installed, including wastewater flow
meters or water flow meters, as appropriate.
C. Wastewater Flow Meters/Integrated Telemetry System
In order to provide more effective flow data for future analysis and
planning of system improvements, the District agrees to install flow meters
integrated with telemetry systems capable of real-time data transmission to
the City at all wastewater flow metering sites as defined below.
The District shall maintain, repair and replace the wastewater flow meters
and the telemetry systems at all Connection Points where wastewater flow
meters are currently installed and shall install wastewater flow meters
integrated with telemetry systems at any future proposed Connection
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Points unless the Parties representatives under Article III-C. agree that
installation is impractical, cost prohibitive, or otherwise unnecessary. The
City shall review and approve of all proposed wastewater flow meters and
telemetry systems.
The District shall be responsible for all costs associated with the wastewater
flow meters and telemetry systems, their installation, operation, readings,
and maintenance. All existing wastewater flow meters shall have the
integrated telemetry systems installed within two years of the date of this
Agreement.
The District shall cause all wastewater flow meters within the District to be
calibrated by the meter’s manufacturer, the manufacturer’s authorized
representative or other company approved by the City within 90 calendar
days of the date of this Agreement, and annually thereafter. A certificate of
calibration shall be sent to the City within 14 calendar days of the meter’s
calibration. Any meter which cannot be calibrated within the
manufacturer’s specified tolerances shall be repaired or replaced by the
District within 90 calendar days of the District receiving notice of the
inability to calibrate the meter. Repaired meters, replaced meters, and any
additional new meters installed by the District or its contractors, shall be
subject to written approval by the City’s Director of Public Works. The
District shall submit specifications for the replacement and/or new meters,
along with plans for installation for the Director of Public Work’s approval.
In the event a District has or installs a flow meter, but the Parties’
representatives under Article III-C. agree that installation of the integrated
telemetry system specifically would be impractical, the District may install
a Data Logger instead. The City shall provide the District with the specific
Data Logger the District shall install and the District shall be responsible for
all costs associated with the Data Logger, including its installation,
readings, and maintenance.
D. Temporary Wastewater Flow Meters.
Either Party may, during the term of this Agreement, install temporary
wastewater flow meters and data loggers within the Collection System to
verify flow data or obtain additional information relative to waste
characteristics or flow entering a Party’s system from the other Party’s
system. Temporary installations shall generally be installed at or near
Connection Points, as necessary to verify or replace equipment that may be
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malfunctioning, or in connection sampling and analysis under Article VI.
above
Unless otherwise agreed in writing by the Parties, whichever Party is
initiating the temporary installation shall be responsible for the installation,
readings, and maintenance of the temporary installation. Each Party shall
cooperate with and upon request, shall provide to the other Party any
necessary authorizations and permits for temporary installations within
each Party’s respective facilities. The Parties shall promptly share any data
or testing results obtained from temporary installations.
E. Non-Residential Water Flow Meters.
In the event a water meter is installed on the water source of a non-
residential property in the District that does not pass through a wastewater
meter for billing purposes, this section shall apply.
For sewer flow to be billed by a water meter read, the District and the City
shall provide water meter readings to the other Party by the close of
business on the 10th day of the following month for billing on a monthly or
quarterly basis as may be mutually agreed upon between the City and the
District. For purposes of this paragraph the City’s Finance Director and the
District President or their authorized representative are authorized to agree
to changes in the timing of billing which agreement shall be reduced to
writing and attached to Addendum A to this Agreement.
The District shall be responsible for all costs associated with the water
meters, their installation, readings, and maintenance. The City will not
install, inspect, test or participate in the installation, reading or maintenance
of water meters without a separate agreement to provide payment for such
services.
The District shall cause all water meters within the District to be calibrated
or tested by the meter’s manufacturer, the manufacturer’s authorized
representative or other company approved by the City at least once every
10 years or replaced every 20 years per a schedule approved by the
Wisconsin Public Service Commission (WPSC). Further, within 90 days of
the date of this Agreement, the District shall ensure that all existing District
water meters are compliant with the terms of this agreement.
Any meter which cannot be calibrated within the manufacturer’s specified
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tolerances shall be repaired or replaced by the District within 90 calendar
days of the District receiving notice of the inability to calibrate the meter.
Repaired meters, replaced meters, and any additional new meters installed
by the District or its contractors, shall be subject to the requirements and
standards of the WPSC. The Districts shall annually submit documentation
relating to the calibration and/or replacement of water meters, along with
the engineering design plans for the installation of any new infrastructure,
which shall be provided within 14 days.
F. Adjustments to Flow for District’s Service of City Parcels.
The Parties acknowledge that due to past annexations and other events, the
District may currently provide sanitary sewer and/or wastewater treatment
service to parcels that are located within the City. Until such time as these
parcels are serviced directly by the City as provided in Article III, the
District shall continue to provide sanitary sewer service to the City parcels
In the event that flow from City properties is combined with District flow
prior to being measured by a wastewater flow meter, the flow attributable
to the City properties, as measured by REC for residential properties, or
water meter readings or otherwise by separate agreement of the Parties for
non-residential properties, shall be deducted from the District’s total flow
to obtain a billable flow for the District. Each Party agrees to serve all
customers in its territory in the same manner. Billing shall be as provided
in Article VII or as may be separately agreed by the Parties and
incorporated into Addendum D.
G. Time of Billing and Payment of Invoices.
The City shall issue bills quarterly to the District for the Services being
provided pursuant to this Agreement. The District shall pay the City
directly within 45 days of the date of the invoice. Late payments are subject
to the then-existing late payment charges imposed by the City on other
wastewater customers. The District shall be responsible to directly invoice
its customers for wastewater services, and the District bears the risk of
collection from any District customer. Failure of or delay by any District
customer to pay the District shall not relieve the District of its obligation to
pay City for the Services.
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H. Remedies for Exceeding Allocated Capacity
The District, in Addendum B, has been allocated flow capacities. The
Parties agree to the following tiered system to progressively enforce
compliance with allocated capacity and encourage proactive planning.
1. 80% of Allocated Capacity. Whenever the District has actually
utilized 80% or more of any class of flow capacity allocation under
this Agreement, the City shall promptly notify the District in writing.
At such time, the District shall have the option of engaging with the
City in a joint planning project, at the cost of the District, to
determine whether and under what circumstances there is any
reasonable possibility that the Wastewater discharged by the District
will exceed the District’s flow capacity allocation, and if so what
actions can reasonably be taken by the District to eliminate any such
reasonable possibility. The principal burden of formulating the plan
shall be on the District, but the City shall fully cooperate with and
assist in the formulation of the plan. In the event that the District and
City agree upon a plan which will eliminate any such reasonable
possibility of exceeding the District’s allocated flow capacity (e.g. the
elimination of excess Infiltration and Inflow, or the construction of
an appropriately-sized equalization basin, or construction of an
interceptor, or the purchase of additional allocated flow capacity),
and the District satisfactorily implements such plan, the City shall
waive any restrictions imposed under the following subsections
unless and until the metered discharge data subsequently
demonstrates that the plan is not working as anticipated or that there
are unanticipated problems.
2. 90% of Allocated Capacity. Whenever the District has actually
utilized 90% or more of any class of flow capacity allocation under
this Agreement the City shall promptly notify the District in writing.
From and after that time, additional Sewer Extensions tributary to
the particular facility in which the District has the flow capacity
allocation in question shall not be permitted until such time as the
District has satisfactorily demonstrated to the City that full use of
any proposed Sewer Extension will not exceed the District’s
allocated flow capacity. Upon reasonable written notice, at any time
after the District has discharged Wastewater to the Sewer Service
Facilities at a level at or above 90% of such District’s allocated flow
capacity, the District shall survey or test its Collection Facilities for
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excess Infiltration and Inflow, and the District shall submit its
findings and a plan to address excess flow or any noted deficiencies
in the District systems to the City for approval, which shall be
granted unless there is a valid engineering rationale otherwise.
Upon failure of the District to provide the testing results and a plan
to address excess flow, or receive approval of the same from the City,
the City may provide notice to the District of the City’s intention to
survey or test the collection facilities of the District for excess
Infiltration and Inflow or other issues and the District shall grant
access to the City to complete such review and testing. The District
shall pay the City the cost of any such survey or testing within 60
days of written notice of such cost.
3. 95% of Allocated Capacity. Whenever the District has actually
utilized 95% or more of any class of flow capacity allocation under
this Agreement (or of any associated flow limitation set out in this
Agreement or in any associated exhibit), the City shall promptly
notify the discharging the District in writing. From and after that
time, no additional Sewer Extensions tributary to the facility in
which the District has the flow capacity allocation in question shall
be permitted by the City and no additional customer connections
tributary to the particular facility in which the District has the flow
capacity allocation in question shall be permitted by the District,
until such time as the District has satisfactorily demonstrated to the
City that full use of any proposed customer connection or Sewer
Extension will not exceed the District’s allocated flow capacity,
including without limitation consideration of future connections of
sewered properties that are currently vacant or underutilized. The
City shall expeditiously consider any proposed demonstration by a
Party that additional customer connections will not exceed the
District’s allocated flow capacity allocation.
4. Exceeding Allocated Capacity. Whenever the District has actually
exceeded flow capacity allocation under this Agreement, the City
shall notify the District in writing. From and after that time, no
additional Sewer Extensions or customer connections tributary to
the particular facility in which the District has the flow capacity
allocation in question shall be allowed under any circumstances until
such time as (1) modifications have been made to the District’s
sewerage system and/or operations, and the results of such
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modifications have been in effect for a reasonable period of time to
demonstrate satisfactorily that any reasonable possibility of
exceeding the District’s flow capacity allocation in the future has
been eliminated, or (2) until such time as the District has acquired
sufficient additional allocated flow capacity to accomplish the same
result.
Notwithstanding the tiered structure above, in the event a District’s
exceedance of its allocated flow capacity results in damage to, impairment
of, or interference with the City’s Wastewater System, the District shall be
liable to the City for any expense, loss, or damage occasioned by reason of
such exceedance which the City suffers as a result thereof. The City may
charge the District its proportionate share for any fine, penalty, or forfeiture
incurred by the City, and may also charge the District for any cost incurred
by the City (including, without limitation, for employees, equipment, or
materials) as a result of such excessive discharge. For any costs claimed,
the City shall provide an itemized invoice to the District and will provide
information identifying that flow from the District(s) caused or contributed
to said damage and/or penalty. The amounts recoverable by the City, if
any, are net of grants, reimbursements or insurance proceeds actually
recovered by the City.
The proportion of costs allocated to charges for exceeding flow is the share
of costs that could be allocated to any District for damages that occur due
to a District or the City exceeding its Allocated Capacity when the damage
occurred and contributed to causing the damage. This cost would only
apply to a District that was exceeding its Allocated Capacity when the
damage occurred. The portion of cost allocated to each Party corresponds
to each Party’s proportion of the total volume of wastewater flow entering
the wastewater facility(ies) sustaining the damage at the time the damage
occurred.
I. Charges for Exceeding Pollutant Loadings.
The District wastewater flow shall not contain pollutant concentrations
exceeding those specified in Chapter 24 of the City of Oshkosh Municipal
Code. If the District’s wastewater flow exceeds the pollutant concentration
specified in Chapter 24 of the City of Oshkosh Municipal Code, WPDES
regulations, or EPA regulations, the District shall be charged the resulting
cost increase for the City to provide necessary treatment or other measures
to remove the materials or substances or reduce concentrations to prevent
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damage to the City’s Wastewater System and maintain pollutant limits in
compliance with the City’s WPDES permit. The District acknowledges and
agrees that the City may assess against the District the civil penalties as
provided in Chapter 24 of the City of Oshkosh’s Municipal Code for
violation of that chapter where the District’s wastewater flow exceeds the
stated pollutant concentrations. In the case of a monthly or other long-term
average discharge limit, penalties shall accrue for each day during the
period of the violation. In addition to these civil penalties, the District shall
be liable to the City for any expense, loss, or damage occasioned by reason
of the District’s wastewater flow which exceeds the pollutant
concentrations specified in Chapter 24 of the City of Oshkosh Municipal
Code, including, without limitation, any fines to which the City may be
subject as a result for violation of its WPDES permit.
VIII. Records.
Each Party shall keep accurate books, records, and accounts of rate calculations
and cases, fees, costs, disbursements, utilities maps, plans and as built
drawings, inspections, state reports, and all other matters affecting the
substance of this Agreement. Upon reasonable notice, any Party or its agent
shall be entitled to examine and inspect the books, records and reports of any
other Party for the purpose of verifying charges or credits; verifying
inspections and condition of facilities or otherwise exercising or protecting any
rights or responsibilities under this Agreement in relation to that Party’s utility
system; except that access to private third-party utility accounts shall be limited
to non-identified information without a showing of necessity by the requesting
Party or order of a court of competent jurisdiction.
IX. Audits.
A. Cooperation.
The Parties agree to cooperate in connection with any internal or
governmental investigation or administrative, regulatory, or judicial
proceeding (or governmental audit, with respect to matters relating to this
Agreement). Such cooperation may include, but shall not be limited to,
responding to requests for documents and/or other records, and making
employees available to the other Party (or their respective insurers,
attorneys or auditors) upon reasonable notice for: (i) interviews, factual
investigations, depositions, and providing declarations or affidavits that
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provide truthful information in connection with any litigation or audit; (ii)
appearing at the request of the other Party to give testimony without
requiring service of a subpoena or other legal process; (iii) volunteering all
pertinent information related to any litigation or audit; and (iv) providing
information and legal representations to auditors in a form and within a
timeframe requested.
B. Expenses.
The Party requesting cooperation shall reimburse the other Party for
reasonable direct expenses incurred in connection with providing
documents and records required under this paragraph and may require
such expenses to be documented by receipts or other appropriate
documentation. Reasonable direct expenses include costs such as copying,
postage and similar costs and witness fees; but do not include wages,
salaries, benefits, and other employee compensation.
C. Third-Party Proceedings.
Notwithstanding the above, in the case of a third-party proceeding in which
the Parties are both named as defendants the Parties may or may not elect
to enter into a mutually acceptable joint defense agreement.
X. Default.
In the event that one Party commits a material breach of its obligations under
this agreement, the other Party shall provide written Notice of Default to the
Party which is deemed to have committed the material breach. The Notice of
Default shall specify the Article(s) and Paragraph(s) of this Agreement that is
alleged to have been breached, and an explanation of the breach. Unless
emergency conditions exist, the Party receiving the Notice shall have 90
calendar days to cure the breach after receipt of the Notice. If the material
breach is not cured within 90 calendar days, the Parties agree that Dispute
Resolution under Article XII shall be initiated. If a breach is not capable of
being cured within 90 days for causes or reasons beyond the breaching Party’s
control, the Party may remain in breach for an additional 90 days so long as it
has commenced and is taking reasonable actions to cure such breach as
promptly as practicable.
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XI. Technical Standards Committee.
A. Creation of TSC.
The Parties acknowledge the value of ongoing communications for the
purpose of consistently exchanging information about the Wastewater
System, the Wastewater Treatment Facility, and the Collection System, as
well as the administration of this Agreement (together, the “System”).
Therefore, the Parties do hereby establish a committee identified as the
Technical Standard Committee (“TSC”). The purpose of the TSC is to
facilitate the exchange of information, and (a) to exchange reports and
updates regarding the System; (b) to report on System improvements that
are anticipated, in progress, or completed; (c) to report on Wisconsin DNR-
required facilities plans or Regional Service Area Plan amendments that are
anticipated, in progress, or completed; (d) to report on inflow/infiltration
and clearwater issues; (e) to exchange and analyze data from water flow
meters/dataloggers, sampling, and other operating sources ; (f) discuss
reasonable protocols and access to collection systems for inspection,
maintenance, testing or other matters; (g) to preview proposed System
rates, fees, and billing budgets and initiatives ; (h) to facilitate dispute
resolution before invoking the formal dispute resolution options set forth
Article XII and (i) to establish and to maintain procedures and protocols for
compliance with this Agreement. The Parties further acknowledge that to
accomplish the preceding purposes it will be necessary to freely and
consistently exchange information in a spirit of cooperation and
transparency.
B. Composition of the TSC.
The TSC will consist of engineering or technical representatives from the
City and each District.
C. TSC Meetings.
The TSC will meet as needed, but at least twice per year. The City’s Director
of Public Works, or his or her designee, will prepare and circulate the
meeting agenda based on the items submitted by any Party. Except as
required by law, the Parties do not contemplate their sessions to constitute
a “meeting” under the Chapter 19 of the Wisconsin Statutes.
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XII. Dispute Resolution.
A. Pre-formal Action.
Prior to the initiation of any formal action between the Parties, including
but not limited to litigation, the Parties agree to meet and confer with regard
to any disputes under this Agreement. This requirement may be initiated
by either Party by written request delivered to the other Party as provided
in Article XXIII. The Parties shall meet and confer within 30 calendar days
of the Party receiving the request from the initiating Party.
B. Mediation/Arbitration.
As a condition precedent to the initiation of litigation the Parties shall
engage in formal mediation conducted by a mutually-selected mediator
experienced in the topic at issue. The costs of the mediator shall be shared
equally. If the Parties are unable to agree on the mediator, the selection shall
be made from a panel list submitted by the State of Wisconsin Department
of Administration – Municipal Boundary Review by a process of alternate
striking from the panel list.
C. Formal Action.
In the event the Parties are unable to resolve their dispute, either Party may
file an action with a court of competent jurisdiction.
XIII. Reopeners, Amendments and Extensions of the Agreement
A. Amendments/ Reopening of the Agreement.
The Parties recognize that wastewater collection and treatment are a highly
regulated industry and that capacity and legal requirements may change
over the term of the Agreement potentially necessitating reopening of the
Agreement. During the term of this Agreement, either Party may request
that a section of the Agreement be reopened or amended. The Parties agree
that if the request relates to the following, the Parties shall meet and confer
on the request and that the Agreement shall be amended as may be agreed
upon to adequately address the following conditions:
1. Substantial or material changes in the method for calculating rates
for wastewater treatment and services
Page 29 of 36
2. A change in law or permit requirements substantially and materially
altering operations under the terms of this Agreement which cannot
be adequately addressed within the rate model.
3. A substantial and continuing failure of the District to comply with
loading, capacity and flow allocations, as set forth in this Agreement.
4. When significant and/or unforeseen events or circumstances arise
substantially and materially affecting operations of either the District
or City system which cannot be adequately addressed within the rate
model.
Upon failure to reach an agreed upon amendment in relation to the above
conditions, the Parties agree to engage a mediator to assist in resolution of
the necessary amendment.
This Agreement may be otherwise amended by the Parties from time to
time to address additional issues not within the above categories.
However, except as otherwise provided in this Agreement, no amendment,
variation or waiver of any term of this Agreement shall be enforceable by
any Party unless it is in writing and signed by both Parties.
B. Extension of the Agreement.
This Agreement shall automatically extend in 5-year increments unless
notice of the City’s or District’s desire to renegotiate the agreement shall be
provided in writing to the other Party no later than 1 year prior to the
original termination date or 1 year prior to the termination date of the
extension.
C. Early Termination.
The District may terminate this Agreement prior to the original termination
date or the termination date of any extension with two years prior notice to
the City. The City may not terminate this Agreement prior to the original
termination date or the termination date of any extension except in the case
of material breach/default or failure of dispute resolution, then may only
terminate by providing the District two years notice, or as a result of a court
order.
D. No Reimbursement.
Upon termination of this Agreement for any reason, any and all fees,
charges, and other payments made by the District to the City shall be non-
refundable whether made under this Agreement or any other agreement
Page 30 of 36
between the Parties relating to the provision of wastewater transmission or
treatment services, whether those fees, charges, or other payments were
made for capital investment or for operations and maintenance of the City’s
Wastewater System, or for any other reason related the provision of
Services including, but not limited to the cost of permits or plan/document
review.
XIV. Whole Agreement.
This Agreement including any written and duly executed amendments thereto
contains the entire understanding of the Parties with respect to the subject
matter hereof. There are no restrictions, promises, warranties, covenants, or
understandings other than those expressly set forth in this Agreement and
Amendments executed as provided in this Agreement. This Agreement
supersedes all prior negotiations, agreements, and undertakings between the
Parties with respect to the subject matter hereof.
XV. Liability.
The City shall not be responsible or liable to the District for any loss caused by
any breakdown or failure of the Collection Systems, Wastewater Treatment
Facility or any appurtenant or ancillary assets contemplated by this
Agreement.
LIABILITY AND HOLD HARMLESS: Subject to any limitations contained in
Secs. 893.80, 893.83, 345.05, and any similar statute, of the Wisconsin Statutes,
each party (the indemnifying party) agrees to hold the other party, its officers,
officials, employees and agents harmless from any and all liability,
including claims, demands, losses, costs, damages, and expenses of every
kind and description (including death), or damages to person or property
arising out of the terms of this Agreement where such liability is founded upon
or grows out of the acts or omission of any of the Indemnifying Party’s
officers, employees or agents while acting within the scope of their
employment.
It is the intention of the parties to this Agreement that each party shall be
solely responsible for its own actions and activities and the actions and
activities of its own officers, employees and agents while acting within the
scope of their employment.
Further, it is the intention of the parties to this Agreement that each party shall
be entitled to rely upon the municipal limitations and immunities available
Page 31 of 36
under Wisconsin law, including but not limited to section 345.05, 893.80 and
893.83 of the Wisconsin Statutes and that such damage limits, caps and
immunities shall be used to govern all disputes, contractual or otherwise, as
they apply to the parties, their agents, officers and employees.
XVI. Headings.
Headings contained in this Agreement are for convenience of reference only
and are not intended to define, limit, or describe the scope or intent of any
provision of this agreement.
XVII. Counterparts of Agreement.
This Agreement may be executed in several counterparts, each of which shall
be deemed an original, but such counterparts shall together constitute but one
in the same Agreement. Facsimile and electronic signatures shall be deemed
original signatures for all purposes of this Agreement.
XVIII. Performance Standard.
This Agreement requires the Parties to act or to refrain from acting on a number
of matters. The Parties hereby acknowledge that this Agreement imposes on
them a duty of good faith and fair dealing. In addition, whenever consent or
approval is required by a Party, the consent or approval shall not be
unreasonably withheld, conditioned, or delayed.
In addition, each Party agrees to provide information to assist the other in
obtaining the necessary permits from the Wisconsin Department of Natural
Resources, or any other governmental authority, for the receipt and provision
of wastewater conveyance and treatment service in accordance with this
Agreement.
XIX. Not Construed Against Any Party.
This Agreement is the product of negotiation between the Parties hereto and
no term, covenant, or provision herein or the failure to include a term, covenant
or provision shall be construed against any Party hereto solely on the basis that
one Party or the other drafted this Agreement or any term, covenant, or
condition contained herein. The captions appearing in this Agreement are
inserted solely for convenience but shall never be considered or given any
effect in construing this Agreement if any questions of intent should arise. All
terms and words used in this Agreement, whether singular or plural and
regardless of the gender thereof, shall be deemed to include any other number
and any other gender as the context may require. Unless otherwise explicitly
Page 32 of 36
provided in this Agreement, any reference to laws, ordinances, rules, or
regulations shall include such laws, ordinances, rules, or regulations as they
may be amended or modified from time to time hereafter.
XX. No Waiver.
Failure of any Party to insist upon the strict performance of terms and
provisions of this Agreement, or any of them, shall not constitute or be
construed as a waiver or relinquishment of that Party’s right to thereafter
enforce such term or provision, and that term of the provisions shall continue
in full force and effect.
XXI. Severability.
If any term, covenant, condition or provision of this Agreement shall be
determined to be invalid or unenforceable by a court of competent jurisdiction,
the remainder of this agreement shall not be affected thereby. The Parties, in
good faith, shall meet and confer and will substitute a valid and enforceable
provision as similar as possible to the provision at issue. The remainder of the
Agreement shall be valid and enforceable to the fullest extent permitted by law.
XXII. Governing Law / Venue.
The laws of the State of Wisconsin shall govern the interpretation, construction
and provisions relating to service under this Agreement. Winnebago County
shall be the venue for all disputes arising under this Agreement.
All references to statutes, regulations and ordinances shall include any future
renumberings, recodifications or amendments upon passage and publication
in compliance with law.
XXIII. Notices.
All communications or notices required or permitted by this Agreement shall
be in writing and shall be deemed to have been given: (i) upon delivery to an
officer or the person entitled to such notice, if hand delivered, or (ii) two
business days following deposit in the United States Mail, postage prepaid, or
with a nationally recognized overnight commercial carrier that will certify as
to the date and time of delivery, air bill prepaid, (iii) upon transmission if by
facsimile or (iv) upon transmission by email. Any such communication or
notice shall be addressed as follows, unless and until any such Party notifies
the other in accordance with this section of any change of address:
Page 33 of 36
If to the City: City of Oshkosh
Department of Public Works
215 Church Avenue
Post Office Box 1130
Oshkosh, WI, 54903-1130
Attn: Director of Public Works
With a copy to: City of Oshkosh
City Attorney’s Office
215 Church Avenue
Post Office Box 1130
Oshkosh, WI, 54903-1130
Attn: City Attorney
If to the District: ____________________
____________________
____________________
With a copy to: Dempsey Law Firm, LLP
10 Forest Avenue, Suite 200
Fond du Lac, WI 54935
XXIV. Authority.
The persons signing this Agreement warrant that they have the authority to
sign as, or on behalf of, the Party for whom they are signing.
IN WITNESS WHEREOF, the designated and authorized representatives of the City of
Oshkosh and the District, by virtue of directions of their respective governing bodies,
have executed this Agreement on the dates indicated below. This Agreement becomes
effective as of the latest date of the signatures below.
Page 34 of 36
Dated this __________ day of ___________________________, 2025 for the City of
Oshkosh, Wisconsin.
CITY OF OSHKOSH, WISCONSIN
__________________________________________
Rebecca Grill, City Manager
__________________________________________
Cheryl Pionke, Interim City Clerk
Approved
Lynn A. Lorenson, City Attorney
Page 35 of 36
Dated this __________ day of ___________________________, 2025 for the
_______________Sanitary District.
SANITARY DISTRICT
__________________________________________
District President
__________________________________________
District Secretary
Page 36 of 36
Addendum A – District Boundaries & Connection Points (Subject to Ongoing Discussion)
Addendum B – Contractual Flow and Pollutant Loading
Addendum C – Current Rate Structure
Addendum D – District Specific Terms and Conditions
Addendum E – Purchase of Additional Capacity
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kimberly Gierach, Planning Services Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-490 Approve General Development Plan and Specific Implementation plan for a
building entrance landing and ramp at 608 Jefferson Street (Victory Baptist Church) and
adjacent property located at the northeast corner of Jefferson Street and East Parkway
Avenue (Plan Commission recommends approval)
B A C K G R O U N DBACKGROUND
Th e su bject area in clu ded in th is requ est con sists of two parcels totalin g 0 .2 7 acres, w ith
fron tag e on Jefferson Street an d East Park way Av en u e. Th e property located at 6 0 8 Jefferson
Street is h om e to Victory Baptist Ch u rch an d th e property located at th e n orth east corn er of
Jefferson Street an d East Park way Av en u e (parcel 9 0 4 0 1 8 8 0 0 0 0 ) is a v acan t property th at is
also own ed by Victory Baptist Ch u rch . Th e su rrou n din g area con sists of residen tial u ses to th e
n orth , east, an d sou th , an d com m ercial u ses to th e w est.
A N A L Y S I SANALYSIS
Th e applican t is proposin g to con stru ct a n ew elev ated en tran ce to th e bu ildin g . Accordin g to
th e applican t, th e proposed en tran ce will be design ed to m eet accessibility stan dards an d w ill
in clu de both a staircase an d ADA-com plian t ram p to facilitate safe an d con v en ien t en try for
all in div idu als. Staff is su pportiv e of Base Stan dard Modification s (BSM) to allow th e
ram p/lan din g to exten d w ith in th e fron t an d street side setback s.
F I S C A L I M P A C TFISCAL I M P A C T
Approv al of th is project w ou ld n ot resu lt in an in crease in th e assessed property v alu e as th e
property is exem pt. Th e applican t is an ticipatin g spen din g approxim ately $5 0 th ou san d on th e
proposed project.
R E C O M M E N D A T I O NRECOMMENDATION
Th e Plan Com m ission recom m en ded approv al of th e requ ested G en eral Dev elopm en t Plan
an d Specific Im plem en tation Plan on Septem ber 1 6 , 2 0 2 5 . Please see th e attach ed staff report
for m ore in form ation .
A t t a c h m e n t sAttachments
Res 25-490
GDP SIP - 608 Jefferson St
09/23/2024 25-490 RESOLUTION
PURPOSE: APPROVE GENERAL DEVELOPMENT PLAN AND SPECIFIC IMPLEMENTATION PLAN FOR A BUILDING
ENTRANCE LANDING AND RAMP AT 608 JEFFERSON STREET (VICTORY BAPTIST CHURCH) AND ADJACENT
PROPERTY AT THE NORTHEAST CORNER OF JEFFERSON STREET AND EAST PARKWAY AVENUE
INITIATED BY : CHRIS BAUKNECHT
PLAN COMMISSION RECOMMENDATION: Approved
WHEREAS, the Plan Commission finds that the General Development Plan and Specific Implementation
Plan for a building entrance landing and ramp at 608 Jefferson Street, is consistent with the criteria
established in Section 30-387 of the Oshkosh Zoning Ordinance.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that a General
Development Plan and Specific Implementation Plan for a building entrance landing and ramp at 608
Jefferson Street, per the attached, is hereby approved, with the following findings:
The proposed Planned Development project is consistent with the overall purpose and intent of this
Chapter as the proposed landing/ramp will provide safe access to the building.
1.
The proposed Planned Development project would maintain the desired relationships between land
uses, land use densities and intensities, and land use impacts in the environs of the subject site as the
use of the site and building area will remain unchanged.
2.
The proposed Planned Development project will positively contribute to and not detract from the
physical appearance and functional arrangement of development in the area as the applicant is
providing additional landscaping along the landing/ramp and building to enhance the appearance of
the site.
3.
The proposed Planned Development project will produce significant benefits in terms of environmental
design and significant alternative approaches to addressing development performance that relate to
and more than compensate for any requested exceptions/base standard modifications variation of
any standard or regulation of this Chapter.
4.
BE IT FURTHER RESOLVED by the Common Council of the City of Oshkosh that the following are conditions of
approval for General Development Plan and Specific Implementation Plan for a building entrance landing
and ramp at 608 Jefferson Street:
Certified Survey Map (CSM) to combine the subject properties shall be approved and recorded at the
Winnebago County Register of Deeds prior to building permit issuance.
1.
Base Standard Modification (BSM) to allow reduced street side setback (Jefferson Street) to 7’ 11”.2.
BSM to allow reduced front setback (East Parkway Avenue) to 14’ 4”.3.
Final landscaping plan shall be reviewed and approved by the Department of Community
Development.
4.
ITEM: GENERAL DEVELOPMENT PLAN AND SPECIFIC IMPLEMENTATION
PLAN FOR A BUILDING ENTRANCE LANDING AND RAMP AT 608
JEFFERSON STREET (VICTORY BAPTIST CHURCH) AND ADJACENT
PROPERTY LOCATED AT THE NORTHEAST CORNER OF JEFFERSON
STREET AND EAST PARKWAY AVENUE
Plan Commission Meeting of September 16, 2025
Applicant: Chris Bauknecht
Owner: Victory Baptist Church
Action Requested: The petitioner requests General Development Plan and Specific
Implementation Plan approval for a building entrance landing and ramp.
Applicable Ordinance: Planned Development: Section 30-387 of the Zoning Ordinance.
Background Information Property Location and Type: The subject area included in this request
consists of two parcels totaling 0.27 acres, with frontage on Jefferson Street and East Parkway
Avenue. The property located at 608 Jefferson Street is home to Victory Baptist Church and the
property located at the northeast corner of Jefferson Street and East Parkway Avenue (parcel
90401880000) is a vacant property that is also owned by Victory Baptist Church. The surrounding
area consists of residential uses to the north, east, and south, and commercial uses to the west.
Existing Land Use Zoning
Church & Vacant lot I-PD
Adjacent Land Use and Zoning
Existing Uses Zoning
North Residential TR-10 PD
South Vacant TR-10 PD
East Residential TR-10 PD
West Commercial UMU
Recognized Neighborhood Organizations
Historic Fourth Ward
Comprehensive Plan Land Use Recommendation Land Use
2040 Land Use Recommendation Light Density Residential
The applicant is proposing to construct a new elevated entrance to the building. According to the
applicant, the proposed entrance will be designed to meet accessibility standards and will include
both a staircase and ADA-compliant ramp to facilitate safe and convenient entry for all
individuals.
Site Design - The proposed ramp/landing will be accessed from the Jefferson Street sidewalk,
with the ramp extending into the vacant property at the corner of Jefferson Street and East
Parkway Avenue. The two subject properties will need to be combined into one property through
a certified survey map (CSM) to allow the ramp as proposed.
As proposed, the landing/ramp will have a 7’11 ¾” street side setback (Jefferson Street), where a
25’ street side setback is required in the I District. It will have a 14’ 4” front setback (East Parkway
Avenue), where a 30’ front setback is required. The site plan shows the ramp and bordering
landscaping to be outside of the 20’ X 20’ corner vision clearance triangle.
Initial plans for the entrance ramp were brought to a Plan Commission workshop on May 16,
2023, with Plan Commission voicing support for the proposed plan with reduced front setback
from Jefferson Street. The plan has since been modified and includes extension of the ramp
further to the south (toward East Parkway Avenue). Staff is supportive of the requested Base
Standard Modifications (BSM) for reduced front and street side setback as the proposed
landing/ramp is intended to provide safe and accessible entrance to the church and is needed due
to the elevated building entrance at 7’ 8”. The applicant is proposing landscape plantings
bordering the landing/ramp to compensate for the BSM requests.
2024 Google Streetview of existing entrance
Storm Water Management/Utilities - The Department of Public Works has reviewed the plan
and did not note any concerns, but noted that the new construction is immediately adjacent to
the public right-of-way and therefore may need a right-of-way permit.
Landscaping - Additional landscaping is not required by code as no new building or paved areas
are being added to the site. The applicant is proposing a combination of deciduous and evergreen
shrubs, totaling 131 landscaping points, along the landing/ramp and front of the building. The
new landscaping will serve to offset the setback reductions and enhance the appearance of the
site.
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 this Chapter as the proposed landing/ramp will provide safe access to the
building.
(c) The proposed Planned Development project would maintain the desired relationships
between land uses, land use densities and intensities, and land use impacts in the environs
of the subject site as the use of the site and building area will remain unchanged.
(h) The proposed Planned Development project will positively contribute to and not
detract from the physical appearance and functional arrangement of development in the
area as the applicant is providing additional landscaping along the landing/ramp and
building to enhance the appearance of the site.
(i) The proposed Planned Development project will produce significant benefits in terms
of environmental design and significant alternative approaches to addressing
development performance that relate to and more than compensate for any requested
exceptions/base standard modifications variation of any standard or regulation of this
Chapter.
Recommendation and Conditions: Staff recommends approval of the General Development Plan
and Specific Implementation Plan with the findings listed above and with the proposed following
conditions:
1. Certified Survey Map (CSM) to combine the subject properties shall be approved and
recorded at the Winnebago County Register of Deeds prior to building permit issuance.
2. Base Standard Modification (BSM) to allow reduced street side setback (Jefferson Street) to
7’ 11”.
3. BSM to allow reduced front setback (East Parkway Avenue) to 14’ 4”.
4. Final landscaping plan shall be reviewed and approved by the Department of Community
Development.
The Plan Commission recommended approval of the requested General Development Plan and
Specific Implementation Plan on September 16, 2025. For a comprehensive record of the
proceedings, the official minutes can be obtained by contacting Planning Services.
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Prepared by: City of Oshkosh, WI
Printing Date: 8/25/2025
1 in = 80 ft
1 in = 0.02 mi¯608 JEFFERSON STNOTICE 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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Printing Date: 8/25/2025
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1 in = 0.02 mi¯608 JEFFERSON STZONING & 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
Page 11
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kimberly Gierach, Planning Services Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-491 Approve Specific Implementation Plan for a drive-through car wash at 1700 South
Koeller Street (Plan Commission recommends approval)
B A C K G R O U N DBACKGROUND
Th e su bject site con sists of a 1 .6 5 -acre lot at th e sou th east corn er of Sou th Koeller Street an d
O sborn Av en u e, an d con tain s a form er restau ran t bu ildin g (Applebee's) an d associated
park in g area. Th e site is zon ed Su bu rban Mixed-Use District with a Plan n ed Dev elopm en t
O v erlay (SMU-PD). Th e su rrou n din g area con sists prim arily of com m ercial u ses.
O n April 2 2 , 2 0 2 5 , Com m on Cou n cil approv ed a G en eral Dev elopm en t Plan (G DP) for a driv e-
th rou gh car w ash at th e su bject site with a con dition th at all Base Stan dard Modification s (BSM)
w ill be addressed as part of th e Specific Im plem en tation Plan .
A N A L Y S I SANALYSIS
Th e applican t is proposin g an approxim ately 5 ,2 7 0 sq. ft. driv e-th rou g h car wash , wh ich w ill
also in clu de 2 0 v acu u m station s with in th e park in g lot. In th e fu tu re, th e ow n er in ten ds to u tilize
th e eastern area of th e site for a sm all com m ercial bu sin ess. Staff is su pportiv e of BSMs for
in creased park in g, redu ced setback , lan dscapin g placem en t, a driv e-th rou gh w in dow
between th e bu ildin g an d pu blic rig h t-of-w ay, an d redu ced Class I m aterials.
F I S C A L I M P A C TFISCAL I M P A C T
Approv al of th is m ay resu lt in an in crease in th e assessed property v alu e for th e site. Th e
applican t is an ticipatin g spen din g approxim ately $2 .9 m illion on th e proposed project.
R E C O M M E N D A T I O NRECOMMENDATION
Th e Plan Com m ission recom m en ded approv al of th e requ ested Specific Im plem en tation Plan
on Septem ber 1 6 , 2 0 2 5 . Please see th e attach ed staff report for m ore in form ation .
A t t a c h m e n t sAttachments
Res 25-491
1700 S Koeller St
9/23/2025 25-491 RESOLUTION
PURPOSE: APPROVE SPECIFIC IMPLEMENTATION PLAN FOR A DRIVE-THROUGH CAR WASH AT 1700 SOUTH
KOELLER STREET
INITIATED BY : PETER SCHWABE INC
PLAN COMMISSION RECOMMENDATION: Approved
WHEREAS, the Plan Commission finds that the Specific Implementation Plan for a drive-through car wash
at 1700 South Koeller Street, is consistent with the criteria established in Section 30-387 of the Oshkosh Zoning
Ordinance.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that a Specific
Implementation Plan for a drive-through car wash at 1700 South Koeller Street, per the attached, is hereby
approved, with the following findings:
The proposed Planned Development project is consistent with the overall purpose and intent of the
Zoning Ordinance as the proposed drive-through car wash use of the site will not have a negative
impact on the public because it is a permitted use in the SMU District and is compatible with
neighboring commercial uses.
1.
The proposed Planned Development project is consistent with the City’s Comprehensive Plan as the
proposed drive-through car wash is consistent with the 2040 Comprehensive Land Use Plan
recommendation of Interstate Commercial.
2.
The proposed Planned Development project would maintain the desired relationships between land
uses, land use densities and intensities, and land use impacts because the commercial use of the
property is consistent with neighboring commercial uses.
3.
The proposed Planned Development project will produce significant benefits in terms of environmental
design and significant alternative approaches to addressing development performance that relate to
and more than compensate for any requested exceptions/base standard modifications variation of
any standard or regulation of this Chapter. The applicant has exceeded the paved area landscaping
requirement by 61% and has exceeded the street frontage landscaping point requirement along
Osborne Avenue by 28% to compensate for increased parking, slightly reduced pavement setback,
and reduced Class I materials on the west and north facades. The applicant has also provided
increased landscaping along the South Koeller Street side of the drive-through lane to offset the BSM
request for a drive-through window between the principal building and street right-of-way.
4.
BE IT FURTHER RESOLVED by the Common Council of the City of Oshkosh that the following are conditions of
approval for a drive-through car wash at 1700 South Koeller Street:
Base Standard Modification (BSM) to allow increased number of parking spaces to 50.1.
BSM to allow reduced side yard (east) setback for existing pavement to 4.67 ft.2.
BSM to allow street frontage landscaping with the drip line, at maturity, located further than ten feet
from the public right-of-way.
3.
BSM to allow reduced Class I materials on the west (South Koeller Street) façade to 43%4.
BSM to allow reduced Class I materials on the north (Osborn Avenue) façade to 7%.5.
BSM to allow a drive-through window located between the principal building and the street
right-of-way.
6.
Final landscaping, lighting, and signage plans shall be reviewed and approved by the Department of
Community Development.
7.
ITEM: Specific Implementation Plan for a Drive-through Car Wash at 1700
South Koeller Street
Plan Commission Meeting of September 16, 2025
Applicant: Peter Schwabe Inc
Property Owner: MP Development 18, LLC
Action Requested: The applicant requests approval of a Specific Implementation Plan
(SIP) for a drive-through car wash development.
Applicable Ordinance: Planned Development, Section 30-387 of the Zoning Ordinance.
The subject site consists of a 1.65-acre vacant lot at the southeast corner of South Koeller
Street and Osborn Avenue, and contains a former restaurant building (Applebee’s) and
associated parking area. The site is zoned Suburban Mixed Use District with a Planned
Development Overlay (SMU-PD). The surrounding area consists primarily of
commercial uses.
On April 22, 2025, Common Council approved a General Development Plan (GDP) for a
drive-through car wash at the subject site with a condition that all Base Standard
Modifications (BSM) will be addressed as part of the Specific Implementation Plan.
On September 2, 2025, Plan Commission approved a Specific Implementation Plan (SIP)
for a drive-through car wash, which included BSMs for increased parking, reduced
setback, landscaping placement, and reduced Class I materials. Following the Plan
Commission approval, the applicant had further discussions with City staff where it
was determined that an additional BSM is needed for a drive-through window on the
street side (South Koeller Street) of the building. The SIP request was subsequently
removed from the September 9 Common Council agenda and the applicant has
resubmitted the SIP request to include the additional BSM for the drive-through
window placement.
Existing Land Use Zoning
Vacant Commercial SMU-PD
Existing Uses Zoning
North Commercial SMU-PD
South Commercial SMU-PD
East Commercial SMU-PD
West HWY-41 SMU
Comprehensive Plan Land Use Recommendation Land Use
2040 Comprehensive Land Use Recommendation Interstate Commercial
The applicant is proposing an approximately 5,270 sq. ft. drive-through car wash, which
will also include 20 vacuum stations within the parking lot. The proposed use is
considered drive-through and in-vehicle sales or service under the zoning ordinance. In
the future, the owner intends to utilize the eastern area of the site for a small
commercial business.
Site Design/Access - The proposed site will utilize two existing driveway accesses on
Osborn Avenue and will remove the existing driveway access on South Koeller Street.
The plan includes 20 vacuum stations to the east of the building as well as 30 parking
spaces, for a total of 50 parking spaces where code allows a maximum of 25 parking
spaces. The applicant intends to leave the existing, eastern-most parking row in its
current footprint. A BSM is needed to allow the increased parking. Staff does not have
concerns with allowing the excess parking to remain as it is abutting a commercial
property and will likely be redeveloped for a commercial use in the future.
The proposed plan meets all setback requirements, with the exception of the existing
pavement along the east property line, which extends slightly into the five-foot setback.
Staff is supportive of a BSM to allow this setback reduction (0.33 ft.). The applicant is
exceeding the paved area landscape point requirement and existing trees are being
maintained, to the east of the pavement, to compensate for the slight setback reduction.
Required Provided
Parking Spaces Minimum: 18
Maximum: 25 50 (including 20 vacuum stations)
Impervious Surface Maximum: 70% of
lot 69% of lot
Minimum Provided
Front Setback (north) 25 ft. 26 ft.
Street Side Setback
(west) 25 ft. 27 ft. +/-
Side Setback (east)
25 ft. building
5 ft. pavement
150 ft. +/- building
4.67 ft. pavement
Rear Setback (south)
25 ft. building
5 ft. pavement
59.3 ft. building
10 ft. +/- pavement
Site Plan
The proposed plan is within the maximum impervious surface ratio of 70% of the lot,
for the SMU district. The plan includes a refuse enclosure within the eastern parking
area, which will be constructed of six-foot tall composite wood material to meet refuse
screening requirements.
The zoning ordinance states that drive-through windows shall not be located between
the principal building and the street right-of-way. The proposed plan shows a drive-
through customer service window on the west façade, facing South Koeller Street. The
applicant is requesting a BSM to allow the window in this location. According to the
applicant, positioning the building in the current configuration allows for abandonment
of the existing South Koeller Street entrance. The South Koeller Street entrance would
need to remain open if the building was positioned without the drive-through window
facing the road.
Staff is supportive of the BSM request as the proposed drive-through window location
allows for proper circulation through the site, with access only from Osborn Avenue.
The proposed site layout is also appropriate as it allows for the vacuum stations to be
placed to the east of the building, outside of the front yard areas.
To offset the requested BSM, the applicant is proposing additional shrubs of varying
heights, slightly exceeding the street frontage landscape point requirement, between the
drive-through lane and South Koeller Street. The additional landscaping will further
buffer the pick-up window from the public right-of-way.
Signage - The proposed site plan includes a ground sign located to the northwest of the
building, which is placed at the 25’ front and street side setbacks. The applicant has
provided a standard sign package for Tommy’s Express Car Wash sites which includes
a pylon sign or monument sign. Both of these sign options are within the maximum
area of one square foot per linear foot of street frontage and maximum height of 35’ for
pylon signs and 15’ for monument signs; also, within the maximum area of 100 sq. ft.
for electronic message boards.
Wall signage is limited to one square foot of signage per linear foot of building frontage
in the SMU District, or 50 sq. ft., whichever is greater. The proposed building elevations
include wall signage on all facades which appear to be within the maximum wall sign
area for the SMU District. Final signage plans will be reviewed under a separate
building permit.
Landscaping – The applicant has provided a landscaping plan with the point
calculations for the required landscaping categories.
Building Foundation - A minimum of 40 landscaping points per 100 linear feet of
building foundation is required for the car wash building. The landscape plan is
meeting this requirement.
Paved Area - A minimum of 50 landscaping points per ten parking stalls or 10,000 sq. ft.
of paved area is required. The code further specifies 30% of all points will be devoted to
tall trees and 40% will be devoted to shrubs. The proposed plan is meeting both of these
requirements and the applicant has provided a tree at all parking row ends, per paved
area landscaping requirements.
Street Frontage - Code requires 100 landscaping points per 100 feet of right-of-way.
Street frontage landscaping shall be placed so that at maturity, the plant’s drip line is
located within ten feet of the public right-of-way. Code further specifies that 50% of the
required points shall be devoted to medium trees. The landscape plan meets the point
requirement along both Osborn Avenue and South Koeller Street. However, the street
frontage points along South Koeller Street are located further than ten feet from the
public right-of-way. A BSM is needed to place these plantings further than ten feet from
the public right-of-way; the Department of Public Works has requested that no
plantings be placed along the public right-of-way to avoid conflicts with existing City
utility easements. The proposed alternative planting location on the west side of the
drive-through lane meets the intent of the street-frontage landscaping requirement as it
is placed between the public right-of-way at the development.
Yards - Code requires 20 landscaping points per 1,000 sq. ft. of gross floor area. The
proposed plan is meeting this requirement.
Storm Water Management/Utilities - The Department of Public Works has reviewed
the plans and noted that final submitted plans are required to be in full compliance with
the requirements of the City of Oshkosh Municipal Code Chapter 14 for storm water
management.
Site Lighting - The applicant has submitted a photometric plan for the proposed
development. The plan utilizes 20 ft. tall light poles and meets the minimum lighting
requirement of 0.4 fc for all parking and drive areas. Lighting levels do not exceed the
maximum of 1.0 fc at the public right-of-way and 0.5 fc at the property lines, with the
exception of lighting at the west property line of up to 0.9 fc. This will need to be
reduced to 0.5 fc and will be addressed during Site Plan Review.
Building Facades - The applicant has provided building elevations for the car wash
building. The elevations include a combination of prefinished metal panel, Nichiha fiber
cement panel, brick, and storefront glazing. Commercial building design standards
require facades to consist of at least 50% Class I materials. The applicant is meeting this
requirement on the east (side) elevation, but is requesting BSMs to allow reduced Class
I materials to 43% on the west (South Koeller Street) and 7% on the north (Osborn
Avenue) façades. The rear (south) elevation is exempt for the Class I material
requirement.
Staff is supportive of the reduced Class I material requirement on the west (South
Koeller Street) façade, it is only slightly deficient of the Class I material requirement and
also utilizes Nichiha fiber cement siding. Although Nichiha fiber cement is considered a
Class III material, staff feels that it is a high quality, durable material, which is
comparable with other Class I materials. The combination of Class I materials
(brick/glazing) and Nichiha fiber cement comprises 56% of this façade.
Staff is also supportive of the Class I material reduction on the north (Osborn Avenue)
facade. The applicant is exceeding the street frontage landscaping point requirement, as
well as the medium tree requirement, along the Osborn Avenue frontage to compensate
for the Class I material reduction.
Findings: In its review and recommendation to the Common Council on an application
for a Planned Development district, staff recommends the Plan Commission consider
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 drive-through
car wash use of the site will not have a negative impact on the public because
it is a permitted use in the SMU District and is compatible with neighboring
commercial uses.
(b) The proposed Planned Development project is consistent with the City’s
Comprehensive Plan as the proposed drive-through car wash is consistent
with the 2040 Comprehensive Land Use Plan recommendation of Interstate
Commercial.
(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 commercial use of the property is consistent with
neighboring commercial uses.
(i) The proposed Planned Development project will produce significant benefits
in terms of environmental design and significant alternative approaches to
addressing development performance that relate to and more than
compensate for any requested exceptions/base standard modifications
variation of any standard or regulation of this Chapter . The applicant has
exceeded the paved area landscaping requirement by 61% and has exceeded
the street frontage landscaping point requirement along Osborne Avenue by
28% to compensate for increased parking, slightly reduced pavement setback,
and reduced Class I materials on the west and north facades. The applicant
has also provided increased landscaping along the South Koeller Street side
of the drive-through lane to offset the BSM request for a drive-through
window between the principal building and street right-of-way.
Recommendation/Conditions: Staff recommends approval of the Specific
Implementation Plan with the findings listed above and the proposed following
conditions:
1. Base Standard Modification (BSM) to allow increased number of parking spaces
to 50.
2. BSM to allow reduced side yard (east) setback for existing pavement to 4.67 ft.
3. BSM to allow street frontage landscaping with the drip line, at maturity, located
further than ten feet from the public right-of-way.
4. BSM to allow reduced Class I materials on the west (South Koeller Street) façade
to 43%
5. BSM to allow reduced Class I materials on the north (Osborn Avenue) façade to
7%.
6. BSM to allow a drive-through window located between the principal building
and the street right-of-way.
7. Final landscaping, lighting, and signage plans shall be reviewed and approved
by the Department of Community Development.
The Plan Commission recommended approval of the requested Specific
Implementation Plan on September 2025. For a comprehensive record of the
proceedings, the official minutes can be obtained by contacting Planning Services.
Page 10
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Page 11
Page 12
Tommy’s Express Car Wash
1700 Koeller St
Oshkosh, WI
BUILDING DESCRIPTION
The proposed car wash building will include a 130-foot-long tunnel design, with a
building footprint square footage of approximately 5,270 square feet. Site access to the
property will be from Osborn Ave. A Tunnel entry at the North end of the property and
tunnel exit at the South end of the property. The car wash building will house standard
wash bay and drying areas, mechanical support spaces, storage areas, employee,
customer service, and support areas including restroom facilities and employee-only
work areas.
Exterior materials of the car wash will consist of many prefinished metal materials
including metal panels of Tommy Car Wash's signature Cardinal Red color on featured
tower elements that flank the North and South ends of the building, prefinished
aluminum composite panels in a complementing Red color over the tunnel entry and
exit with Ebony panels at the bases, and prefinished aluminum Metallic Silver parapet
fascia and cornice features. Additional complimentary exterior materials to contrast the
prefinished metals include fiber cement textured panels in Gray color at offsetting facade
locations opposite corners of the metal panel tower features and split face CMU
wainscot around the base of the building in Ash color. Lastly, the tunnel design is
highlighted with a high percentage of storefront glazing, as well as an arching glass roof
design, to provide the signature appearance of the car wash structure skinned over a
structural steel frame.
Note that the owner’s intension is to eventually utilize the adjoining area to the east of
the car wash for a small commercial business that would be in keeping with land use
and zoning requirements. It is understood such would require additional approvals and
a CSM. Note also that the owner has worked with the appropriate authorities to confirm
that the “vision easement” previously shown on the survey is no longer in force, and hence it
has been removed from the plan documents.
This SIP submittal has not been materially modified from the approved GDP.
Page 13
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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
Page 16
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-492 Approve Block Party - Jen Sullivan to utilize 12th Avenue for their neighborhood
block party, October 25, 2025
A t t a c h m e n t sAttachments
Res 25-492
Sullivan Block Party attachment
09/23/2025 25-492 RESOLUTION
PURPOSE: APPROVE BLOCK PARTY - JEN SULLIVAN TO UTILIZE 12TH AVENUE FOR THEIR NEIGHBORHOOD BLOCK
PARTY, OCTOBER 25, 2025
INITIATED BY : CITY ADMINISTRATION
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted to
Jen Sullivan to utilize 12th Avenue between Rugby Street and Georgia Street on Saturday, October 25, 2025,
from 9:00 a.m. to 4:00 p.m. to hold their neighborhood block party in accordance with the municipal code
and the attached application, with the following exceptions/conditions:
A.
B.
C.
BE IT FURTHER RESOLVED that as a condition of approval, the Event Organizer shall pay the City’s actual costs
for extraordinary services. Approval of this request shall not be interpreted as approval to conduct the block
party during any period of emergency order or declaration prohibiting such an event. Approval of this block
party shall not be interpreted to supersede any emergency order or declaration applicable to such block
parties and all block parties shall remain subject to all applicable ordinances, orders, declarations and
requirements for public gatherings.
Cost Estimates for Extraordinary Services
None
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-493 Approve Special Event - Downtown Oshkosh Business Improvement District (BID) to
utilize City streets, parking lots and Opera House Square for the Downtown Oshkosh Holiday
Parade & Tree Lighting, December 4, 2025
A t t a c h m e n t sAttachments
Res 25-493
09/23/2025 25-493 RESOLUTION
PURPOSE: APPROVE SPECIAL EVENT - DOWNTOWN OSHKOSH BUSINESS IMPROVEMENT DISTRICT (BID) TO UTILIZE
CITY STREETS, PARKING LOTS AND OPERA HOUSE SQUARE FOR THE DOWNTOWN OSHKOSH HOLIDAY PARADE &
TREE LIGHTING, DECEMBER 4, 2025
INITIATED BY : CITY ADMINISTRATION
the Vietnam Veterans of America Chapter 437 is requesting, per Section VII (C)(d)(iii), that the Council waive
all costs for the application and extraordinary services provided by the City for the event; and
WHEREAS, the Common Council has considered the list of criteria listed in the Municipal Code pertaining
to a request for a waiver of fees, including but not limited to:
1) benefit to the quality of life to the City as a whole;
2) tradition of the event in the City; and
3) culture and/or historical significance of the Special Event.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted to
Downtown BID (Jessica Lomena) to utilize City streets, parking lots and Opera House Square to hold the
Downtown Oshkosh Holiday Parade on Thursday, December 4, 2025, from 3:00 p.m. - 10 p.m. (actual
parade start time 6:30 p.m.), in accordance with the municipal code and the attached application, with
the following exceptions/conditions:
A. A waiver of the cost of Special Events application and extraordinary services fees per Section VII(D)
considerations of the Municipal Code
B. An exception to the provisions of section 6-6 of the Oshkosh Municipal Code is granted to allow horses in
the City during this event, reasonable set up and clean up and during transport to and from the event.
Horses shall not be stabled in, or otherwise remain in, the City except as provided in this paragraph.
BE IT FURTHER RESOLVED that per section VII(C)(1)(d)(ii) of the Municipal Code, the City is waiving the
costs for extraordinary services listed below. Approval of this request shall not be interpreted as approval to
conduct the event during any period of emergency order or declaration prohibiting such an
event. Approval of this event shall not be interpreted to supersede any emergency order or declaration
applicable to such an event and all events shall remain subject to all applicable ordinances, orders,
declarations and requirements for public gatherings.
Cost Estimates for Special Events Extraordinary Services
Police
Staffing $4,894.40 (preliminary estimate includes 17.5 CSO hrs., 45 Officer hrs., and 7 Sgt. Supervisor hrs.)
Equipment/Vehicles $159.12 (preliminary estimate includes use of vehicles)
Supplies/Materials $33.00 (preliminary estimate includes dedicated use of supplies)
Public Works
Staffing $1072.12 (preliminary estimate includes 28 hrs. street personnel)
Equipment/Vehicles $890.68 (preliminary estimate includes dedicated use of equipment and vehicles)
Supplies/Materials $495 (preliminary estimate includes dedicated use of supplies)
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-494 Approve Special Event - Corner Bar & Grill to host their 5th Anniversary Celebration
in the 2090 W. 9th Avenue parking lot, October 4, 2025
A t t a c h m e n t sAttachments
Res 25-494
Corner Bar & Grill Attachment
09/23/25 25-494 RESOLUTION
PURPOSE: APPROVE SPECIAL EVENT - CORNER BAR & GRILL TO HOST THEIR 5TH ANNIVERSARY CELEBRATION IN
THE 2090 W 9TH AVENUE PARKING LOT, OCTOBER 4, 2025
INITIATED BY : CITY ADMINISTRATION
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted
to Corner Bar & Grill (Anthony Mirek) to host their 5th Anniversary Celebration in the 2090 W. 9th Avenue
parking lot on Saturday, October 4, 2025, from 3:00 p.m. to 10:30 p.m., in accordance with the municipal
code and the attached application, with the following exceptions/conditions:
A.
B.
C.
BE IT FURTHER RESOLVED that as a condition of approval, the Event Organizer shall pay the City’s actual costs
for extraordinary services. Approval of this request shall not be interpreted as approval to conduct the
event during any period of emergency order or declaration prohibiting such an event. Approval of this
event shall not be interpreted to supersede any emergency order or declaration applicable to such an
event and all events shall remain subject to all applicable ordinances, orders, declarations and
requirements for public gatherings.
Cost Estimates for Extraordinary Services
None
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-495 Approve Special Event - VenuWorks of Oshkosh, LLC to host the Broadway Rock of
Ages concert at their facility (1212 N. Main St.), October 18, 2025
A t t a c h m e n t sAttachments
Res 25-495
Broadway Rock of Ages Attachment
09/23/2025 25-495 RESOLUTION
PURPOSE: APPROVE SPECIAL EVENT - OSHKOSH ARENA - VENUWORKS OF OSHKOSH, LLC TO HOLD THE
BROADWAY ROCK OF AGES CONCERT AT THEIR FACILITY (1212 S MAIN ST), OCTOBER 18, 2025
INITIATED BY : CITY ADMINISTRATION
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted to
VenuWorks of Oshkosh, LLC (Andy Linton) to hold the Broadway Rock of Ages concert at the Oshkosh Arena,
Saturday, October 28, 2025, from 6:30 p.m. to 10:30 p.m. in accordance with the municipal code and the
attached application, with the following exception/conditions:
A.
B.
C.
BE IT FURTHER RESOLVED that as a condition of approval, the Event Organizer shall pay the City's actual costs
for extraordinary services. Approval of this request shall not be interpreted as approval to conduct the
event during any period of emergency order or declaration prohibiting such an event. Approval of this
event shall not be interpreted to supersede any emergency order or declaration applicable to such ane
event and all events shall remain subject to all applicable ordinances, orders, declarations and
requirements for public gatherings.
Cost Estimates for Extraordinary Services
Police
Staffing $733.01 (preliminary estimate includes 9 officer hrs.)
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-496 Approve Special Event - VenuWorks of Oshkosh, LLC to host the Kansas w/Blue
Oyster Cult concert, November 8, 2025
A t t a c h m e n t sAttachments
Res 25-496
Kansas w/Blue Oyster Cult Attachment
09/23/2025 25-496 RESOLUTION
PURPOSE: APPROVE SPECIAL EVENT - VENUWORKS OF OSHKOSH, LLC TO HOLD THE KANSAS W/BLUE OYSTER
CULT CONCERT AT THEIR FACILITY (1212 S MAIN STREET), NOVEMBER 8, 2025
INITIATED BY : CITY ADMINISTRATION
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted to
VenuWorks of Oshkosh, LLC (Andy Linton) to hold the Kansas w/Blue Oyster Cult concert at the Oshkosh
Arena, Saturday, November 8, 2025, from 7:00 p.m. to 10:00 p.m. in accordance with the municipal code
and the attached application, with the following exceptions/conditions:
A.
B.
C.
BE IT FURTHER RESOLVED that as a condition of approval, the Event Organizer shall pay the City’s actual costs
or extraordinary services. Approval of this request shall not be interpreted as approval to conduct the event
during any period of emergency order or declaration prohibiting such an event. Approval of this event shall
not be interpreted to supersede any emergency order or declaration applicable to such an event and all
events shall remain subject to all applicable ordinances, orders, declarations and requirements for public
gatherings.
Cost Estimates for Extraordinary Services
Police
Staffing $773.01 (preliminary estimate includes 9 officer hrs.)
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-497 Approve Special Event - VenuWorks of Oshkosh, LLC to host the Crazy Train - The
Ozzy Experience concert, December 3, 2025
A t t a c h m e n t sAttachments
Res 25-497
Crazy Train - The Ozzy Experience Attachment
09/23/2025 25-497 RESOLUTION
PURPOSE: APPROVE SPECIAL EVENT - VENUWORKS OF OSHKOSH, LLC TO HOLD CRAZY TRAIN -THE OZZY
EXPERIENCE CONCERT AT THEIR FACILITY (1212 S MAIN STREET), DECEMBER 3, 2025
INITIATED BY : CITY ADMINISTRATION
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted to
VenuWorks of Oshkosh, LLC (Andy Linton) to hold Crazy Train - The Ozzy Experience concert at the Oshkosh
Arena on Wednesday, December 3, 2025, from 7:30 p.m. to 10:30 p.m. in accordance wit the municipal
code and the attached application, with the following exceptions/conditions:
A.
B.
C.
BE IT FURTHER RESOLVED that as a condition of approval, the Event Organizer shall pay the City’s actual costs
for extraordinary services. Approval of this request shall not be interpreted as approval to conduct the event
during any period of emergency order or declaration prohibiting such an event. Approval of this event shall
not be interpreted to supersede any emergency order or declaration applicable to such an event and all
events shall remain subject to all applicable ordinances, orders, declarations and requirements for public
gatherings.
Cost Estimates for Extraordinary Services
Police
Staffing $773.01 (preliminary estimate includes 9 officer hrs.)
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kathy Snell, Special Events Coordinator
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-498 Approve Special Event - VenuWorks of Oshkosh, LLC to host the Harlem
Globetrotters, December 31, 2025
A t t a c h m e n t sAttachments
Res 25-498
Harlem Globetrotters Attachment
09/23/2025 25-498 RESOLUTION
PURPOSE: APPROVE SPECIAL EVENT - VENUWORKS OF OSHKOSH, LLC TO HOST THE HARLEM GLOBETROTTERS
EVENT AT THEIR FACILITY (1212 N MAIN STREET), DECEMBER 31, 2025
INITIATED BY : CITY ADMINISTRATION
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that approval is granted to
the VenuWorks of Oshkosh, LLC (Andy Linton) to host the Harlem Globetrotters event at the Oshkosh Arena
on Wednesday, December 31, 2025, from 2:00 p.m. to 6:00 p.m. in accordance with the municipal code
and the attached application, with the following exceptions/conditions:
A.
B.
C.
BE IT FURTHER RESOLVED that as a condition of approval, the Event Organizer shall pay the City’s actual costs
for extraordinary services. Approval of this request shall not be interpreted as approval to conduct the event
during any period of emergency order or declaration prohibiting such an event. Approval of this event shall
not be interpreted to supersede any emergency order or declaration applicable to such an event and all
events shall remain subject to all applicable ordinances, orders, declarations and requirements for public
gatherings.
Cost Estimates for Extraordinary Services
Police
Staffing $687.12 (preliminary estimate includes 8 officer hrs.)
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Cheryl Pionke, Interim City Clerk
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-499 Approve agent change for R-Store Nos. 4520, 4521, 4522, 4523
Class A Combination
Agent: Regina Nievinski
Addresses: R-Store #4520 (305 Ohio St); R-Store #4521 (708 W Murdock Ave); R-Store #4522
(1623 Bowen St); and R-Store #4523 (208 Bowen St)
A t t a c h m e n t sAttachments
Res 25-499
Rstore#4522
Rstore#4521
Rstore#4520
Rstore#4523
09/23/2025 25-499 RESOLUTION
PURPOSE: APPROVE AGENT CHANGE FOR GPM SOUTHEAST, LLC (RSTORE#4522,1623 Bowen St, Oshkosh, WI
54901) (RSTORE#4523, 208 Bowen St, Oshkosh, WI 54901) (RSTORE#4520 305 Ohio St, Oshkosh, WI 54902)
(RSTORE#4521 708 W MurdockAve, Oshkosh, WI 54901) (Current License, Combination "Class A")
INITIATED BY : CITY CLERK
WHEREAS, an application and all required documentation for an agent change have been submitted,
fees deposited, and all reviews and inspections required by city ordinance have been completed.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh hereby finds all reviews
and inspections required by city ordinance have been completed for the applicant, and no violations or
other issues have been noted that would prevent the agent change at this time.
AGENT CHANGE (Sept 23, 2025–June 30, 2026)
GPM Southeast, LLC
RSTORE#4522, 1623 Bowen St, Oshkosh, WI 54901
RSTORE#4523, 208 Bowen St, Oshkosh, WI 54901
RSTORE#4520, 305 Ohio St, Oshkosh, WI 54902
RSTORE#4521, 708 W Murdock Ave, Oshkosh, WI 54901
Agent: Regina Nievinski
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Cheryl Pionke, Interim City Clerk
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-500 Approve conditional surrender of Combination "Class B" Beer/liquor License and
issuance of Combination "Class B" Beer/liquor License (Kim Wagnernese/ Evergreen Hospitality
LLC, 3105 S Washburn St, Oshkosh to Mitul Patel AJJ Oshkosh Hospitality LLC, 3105 S Washburn
St, Oshkosh)
A t t a c h m e n t sAttachments
Res 25-500
Surrender and Cobblestone Suites
09/23/2025 25-500 RESOLUTION
PURPOSE: APPROVE CONDITIONAL SURRENDER OF COMBINATION "CLASS B" BEER/LIQUOR LICENSE AND
ISSUANCE OF COMBINATION "CLASS B" BEER/LIQUOR LICENSE (Kim Wagnernese/ Evergreen Hospitality LLC
3105 S Washburn St Oshkosh to Mitul Patel AJJ Oshkosh Hospitality LLC 3105 S Washburn St Oshkosh)
INITIATED BY : CITY CLERK
WHEREAS, , an appropriate form has been submitted conditionally surrendering a combination "Class B"
license, currently held by Kim Wagernese / Evergreen Hospitality LLC to Cobblestone Suites Oshkosh,
MitulPatel, Agent to be located at the same location, 3105 S Washburn St in the City of Oshkosh; and
WHEREAS, Cobblestone Suites Oshkosh, Mitul Patel, Agent (the “applicant”), has submitted an application
and all required documentation for issuance of a "Class B" license and paid the appropriate fees.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the conditional
surrender of the "Class B" license from Kim Wagernese / Evergreen Hospitality, LLC is hereby accepted, and
the following license be granted
BE IT FURTHER RESOLVED by the Common Council of the City of Oshkosh that the Council hereby finds all
reviews and inspections required by city ordinance and noted below have been completed for the
issuance of this license to the applicant, and no violations or other issues have been noted that would
prevent the issuance of the liquor license at this time.
Review Complete
Review and approval of the Licensee by the Oshkosh Police Department X
Inspection and approval by the Winnebago County Health Department X
Inspection and approval by the Oshkosh Fire Department X
Review and approval by the Department of Community Development for
location and zoning compliance
Not applicable for
surrender
BE IT FURTHER RESOLVED that the following license be granted
Combincation "ClassB" Beer/Liquor License
NEW LICENSE HOLDER: AJJ OSHKOSH HOSPITALITY LLC /COBBLESTONE SUITES OSHKOSH
AGENT: Mitul Patel, 1151 W Macarthur Ave, Eau Claire, WI
LOCATION OF PREMISES: 3105 S Washburn St, Oshkosh
LICENSE YEAR: September 23, 2025 – June 30, 2026.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kimberly Gierach, Planning Services Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Ord 25-501 Approve 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 select 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 between Oregon Street and
Nebraska Street (Plan Commission recommends approval)
B A C K G R O U N DBACKGROUND
Th e su bject area con sists of fou r v acan t lots an d on e lot w ith an existin g sin gle-fam ily h om e
alon g West 8 th Av en u e an d fiv e v acan t lots alon g West 9 th Av en u e. Th e affected parcels are:
9 0 3 0 1 0 1 0 0 0 0 , 9 0 3 0 1 0 4 0 0 0 0 , 9 0 3 0 1 0 5 0 0 0 0 , 9 0 3 0 1 0 6 0 0 0 0 , 9 0 3 0 1 0 7 0 0 0 0 , 9 0 3 0 1 1 0 0 0 0 0 ,
9 0 3 0 1 1 1 0 0 0 0 , 9 0 3 0 1 1 2 0 0 0 0 , 9 0 3 0 1 1 3 0 0 0 0 an d 9 0 3 0 1 1 5 0 0 0 0
All properties are zon ed Two Flat R esiden tial-1 0 District (TR -1 0 ), with th e exception of th e
w estern -m ost lot alon g West 8 th Av en u e (parcel 9 0 3 0 1 0 1 0 0 0 0 ), wh ich is zon ed Cen tral Mixed
Used District (CMU). Th e su rrou n din g area con sists of residen tial u ses an d a ch u rch to th e sou th ,
residen tial u ses to th e east, park in g lots to th e n orth , an d m ixed com m ercial u ses to th e w est
alon g O regon Street. Th e 2 0 4 0 Com preh en siv e Lan d Use Plan recom m en ds Cen ter City u ses for
th e su bject area.
A n eig h borh ood m eetin g was h eld on Au g u st 1 3 th , 2 0 2 5 . Neigh bors in atten dan ce were
gen erally su pportiv e of th e proposed town h om e dev elopm en t on th e su bject properties. A
Plan Com m ission work sh op w as h eld on Febru ary 1 9 th , 2 0 2 5 , w ith Plan Com m ission v oicin g
su pport for th e proposed dev elopm en t.
A N A L Y S I SANALYSIS
Th e applican t is requ estin g a zon e ch an ge to Two Flat R esiden tial-1 0 District with a Plan n ed
Dev elopm en t O v erlay (TR -1 0 -PD) for all ten of th e su bject properties alon g West 8 th Av en u e
an d West 9 th Av en u e. Th e proposed zon e ch an ge is in ten ded to accom m odate a proposed
tow n h om e dev elopm en t, w h ich will in clu de tw o, ten -u n it bu ildin g s an d two, two-u n it bu ildin gs.
Th e Plan n ed Dev elopm en t O v erlay is n eeded to allow th e ten -u n it bu ildin gs as th e TR -1 0 District
on ly allow s sin g le fam ily an d tw o-fam ily u ses. Th e zon e ch an g e from CMU to TR -1 0 -PD for th e
w estern -m ost su bject property alon g West 8 th Av en u e w ill prov ide con sisten t zon in g w ith th e
oth er n in e su bject properties in clu ded in th e proposed dev elopm en t. A Certified Su rv ey Map
(CSM) w ill be requ ired for th e lot com bin ation s n eeded for th e ten -u n it bu ildin g s.
Staff is su pportiv e of th e proposed zon e ch an g e to TR -1 0 -PD as it w ill serv e to accom m odate
fu tu re residen tial dev elopm en t of th e su bject properties. Alth ou g h th e proposed TR -1 0 -PD
zon in g is n ot con sisten t w ith th e 2 0 4 0 Com preh en siv e Lan d Use Plan desig n ation of Cen ter City,
th e zon in g of th e su bject properties w ill rem ain con sisten t w ith th e cu rren t TR -1 0 zon in g of th e
existin g n eigh borin g residen tial properties on th e 1 0 0 block s of West 8 th Av en u e an d West 9 th
Av en u e.
R E C O M M E N D A T I O NRECOMMENDATION
Th e Plan Com m ission recom m en ded approv al of th e requ ested zon e ch an g e on Septem ber 2 ,
2 0 2 5 . Please see th e attach ed staff report for m ore in form ation .
A t t a c h m e n t sAttachments
Ord 25-501
REZONE -100 Blks W 8th Ave & W 9th Ave
9/23/2025 25-501 ORDINANCE
SECOND READING
9/9/2025 25-477 ORDINANCE
FIRST READING
PURPOSE: APPROVE 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 SELECT 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 BETWEEN OREGON STREET AND NEBRASKA STREET
(PARCELS 90301010000, 90301040000, 90301050000, 90301060000, 90301070000, 90301100000, 90301110000,
90301120000, 90301130000 AND 90301150000)
INITIATED BY : JIBRIL ODOGBA
PLAN COMMISSION RECOMMENDATION: Approved
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING THE OFFICIAL ZONING MAP OF THE CITY OF
OSHKOSH, AS ADOPTED BY SECTION 30-32 OF THE OSHKOSH MUNICIPAL CODE.
The Common Council of the City of Oshkosh does ordain as follows:
SECTION 1. That the Official Zoning Map of the City of Oshkosh, as adopted by Section 30-32 of the
Oshkosh Municipal Code, is hereby amended to change the zoning district for parcels 90301010000,
90301040000, 90301050000, 90301060000, 90301070000, 90301100000, 90301110000, 90301120000, 90301130000
AND 90301150000 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). The subject properties are more
particularly described as follows:
90301010000
LOT THREE (3), BLOCK NINE (9), IN THE PLAT OF THE ORIGINAL THIRD WARD, IN THE THIRD WARD, IN SECTION 24,
T18N, R16E, CITY OF OSHKOSH, WINNEBAGO COUNTY, wisconsin, per leach’s map of 1894.
90301040000
LOT SIX (6), BLOCK NINE (9), ACCORDING TO THE RECORDED PLAt OF THE ORIGINAL THIRD WARD, IN THE CITY
OF OSHKOSH, WINNEBAGO COUNTY, WISCONSIN.
90301050000
LOT SEVEN (7) OF BLOCK NINE (9), ACCORDING TO THE RECORDED PLAT OF THE ORIGINAL THIRD WARD,
FORMERLY NINTH WARD, NOW IN THE THIRD WARD, IN THE CITY OF OSHKOSH, WINNEBAGO COUNTY,
WISCONSIN.
90301060000
LOT EIGHT (8) OF BLOCK NINE (9) IN THE PLAY OF THE ORIGINAL THIRD WARD, IN THE NINTH WARD, CITY OF
OSHKOSH, WINNEBAGO COUNTY, WISCONSIN, PER LEACH’S MAP OF 1894 AND NOW IN THE THIRD WARD OF
SAID CITY.
90301070000
LOT NINE (9), BLOCK NINE (9), ACCORDING TO THE RECORDED PLAT OF THE ORIGINAL THIRD WARD, IN THE
NINTH WARD, CITY OF OSHKOSH, WINNEBAGO COUNTY, WISCONSIN, PER LEACH’S MA OF 1894 AND NOW IN
THE THIRD WARD OF SAID CITY.
90301100000
LOT THIRTEEN (13) OF BLOCK NINE (9), IN THE PLAT OF THE ORIGINAL THIRD WARD IN THE NINTH WARD, CITY OF
OSHKOSH, WINNEBAGO COUNTY, WISCONSIN, PER LEACH’S MAP OF 1894, AND NOW IN THE THIRD WARD OF
SAID CITY.
90301110000
LOT FOURTEEN (14) OF BLOCK NINE (9) IN ORGINAL THIRD WARD, IN THE NINTH WARD, CITY OF OSHKOSH,
WINNEBAGO COUNTY, WISCONSIN, PER LEACH’S MAP OF 1894, AND NOW IN THE THIRD WARD OF SAID CITY.
90301120000
LOT FIFTEEN (15) OF BLOCK NINE (9), PLAT OF ORIGINAL THIRD WARD, 3RD WARD, CITY OF OSHKOSH,
WINNEBAGO COUNTY, WISCONSIN.
90301130000
LOT SIXTEEN (16) OF BLOCK NINE (9) IN THE PLAT OF THE ORIGINAL THIRD WARD, IN THE NINTH WARD, CITY OF
OSHKOSH, WINNEBAGO COUNTY, WISCONSIN, PER LEACH’S MAP OF 1894, AND NOW IN THE THIRD WARD OF
SAID CITY.
90301150000
LOT EIGHTEEN (18) OF BLOCK NINE (9) IN THE PLAT OF THE ORIGINAL THIRD WARD, IN THE NINTH WARD, CITY OF
OSHKOSH, WINNEBAGO COUNTY, WISCONSIN, PER LEACH’S MAP OF 1894 AND NOW IN THE THIRD WARD OF
SAID CITY, EXCEPTING THEREFROM THE EAST TWO AND ONE-HALF (2 1/2) FEET, FRONT AND REAR, THEROF.
SECTION 2. This Ordinance shall be in full force and effect from and after its passage and publication.
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh enacted Ordinance
#25-501 APPROVE 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 SELECT 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 BETWEEN OREGON STREET AND NEBRASKA STREET
(PARCELS 90301010000, 90301040000, 90301050000, 90301060000, 90301070000, 90301100000, 90301110000,
90301120000, 90301130000 and 90301150000) (A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING
THE OFFICIAL ZONING MAP OF THE CITY OF OSHKOSH, AS ADOPTED BY SECTION 30-32 OF THE OSHKOSH
MUNICIPAL CODE) on September 23, 2025. This ordinance changes the zoning of parcels 90301010000,
90301040000, 90301050000, 90301060000, 90301070000, 90301100000, 90301110000, 90301120000, 90301130000
and 90301150000) from Two Flat Residential-10 District (TR-10) and Central Mixed-Use District (CMU) to Two
Flat Residential-10 with a Planned Development Overlay (TR-10-PD). The full text of the Ordinance may be
obtained at the Office of the City Clerk, 215 Church Avenue and on the City's website at
www.oshkoshwi.gov. Clerk's phone: (920) 236-5011.
ITEM: 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)
Plan Commission Meeting of September 2, 2025
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
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.
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.
The Plan Commission recommended approval of the requested zone change on
September 2, 2025. For a comprehensive record of the proceedings, the official minutes
can be obtained by contacting Planning Services.
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
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
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
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
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.
W 8TH AVE.
W 9TH AVE.
NE
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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
'
-
4
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21
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1
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18
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22
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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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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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35
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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
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5
"
22
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"
61' - 0"
23
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"
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
W 9TH AVE
OR
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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
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 ft
1 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
NEBRASKA
ST
NE
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KA
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W 8TH AV
W 7TH AV
N
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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
NEBR
ASKA ST
W 9TH AV
OREGON ST CMU
CMU-PD
CMU-PD
I
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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 ft
1 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
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kimberly Gierach, Planning Services Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Ord 25-502 Approve zone change from Heavy Industrial District (HI) to Heavy Industrial District
with a Planned Development Overlay (HI-PD) at 2751 Universal Street (Plan Commission
recommends approval)
B A C K G R O U N DBACKGROUND
Th e su bject site con sists of a fiv e-acre parcel located in th e Sou th west In du strial Park , on
Un iv ersal Street, ju st n orth of West Sou th Park Av en u e (parcel 9 1 3 2 9 1 2 0 2 0 0 ). Th e site is h om e to
Millwork Distribu tors, wh o m an u factu re an d sell fin ish ed wood an d com posite m aterials. Th e site
also con sists of sem i loadin g/u n loadin g areas an d an associated park in g lot. Th e site an d
su rrou n din g area are zon ed Heav y In du strial District (HI) with a m ixtu re of differin g in du strial
lan d u ses. Th e 2 0 4 0 Com preh en siv e Lan d Use Plan recom m en ds In du strial for th e su bject area.
A N A L Y S I SANALYSIS
Th e applican t is proposin g to rezon e th e su bject site to Heav y In du strial District w ith a Plan n ed
Dev elopm en t O v erlay (HI-PD) from Heav y In du strial (HI). Th e requ ested Plan n ed Dev elopm en t
O v erlay design ation is in ten ded to allow for flexibility in th e zon in g ordin an ce to accom m odate
expan sion of th e existin g facility at th e property. Th e applican t h as su bm itted plan s to con stru ct
a 2 3 ,0 6 7 sq. ft. bu ildin g expan sion , attach ed to th e west side of th e existin g bu ildin g, an d in stall
n ew pav em en t to accom m odate m ore park in g stalls. Staff is su pportiv e of th e proposed
rezon e as it will assist with accom plish in g a bu ildin g expan sion an d th e n eed for m ore
em ployee park in g, both related to th e in creased im perv iou s su rface ratio.
R E C O M M E N D A T I O NRECOMMENDATION
Th e Plan Com m ission recom m en ded approv al of th e requ ested zon e ch an g e on Septem ber 2 ,
2 0 2 5 . Please see th e attach ed staff report for m ore in form ation .
A t t a c h m e n t sAttachments
Ord 25-502
Zone Change - 2751 Universal St
9/23/2025 25-502 ORDINANCE
SECOND READING
9/9/2025 25-478 ORDINANCE
FIRST READING
PURPOSE: APPROVE ZONE CHANGE FROM HEAVY INDUSTRIAL DISTRICT (HI) TO HEAVY INDUSTRIAL DISTRICT
WITH A PLANNED DEVELOPMENT OVERLAY (HI-PD) AT 2751 UNIVERSAL STREET (PARCEL 91329120200)
INITIATED BY : KELLER INC.
PLAN COMMISSION RECOMMENDATION: Approved
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING THE OFFICIAL ZONING MAP OF THE CITY OF
OSHKOSH, AS ADOPTED BY SECTION 30-32 OF THE OSHKOSH MUNICIPAL CODE.
The Common Council of the City of Oshkosh does ordain as follows:
SECTION 1. That the Official Zoning Map of the City of Oshkosh, as adopted by Section 30-32 of the
Oshkosh Municipal Code, is hereby amended to change the zoning district for property located at 2751
Universal Street, parcel 91329120200, from Heavy Industrial District (HI) to Heavy Industrial District with a
Planned Development Overlay (HI-PD). The subject property is more particularly described as follows:
PARCEL 1:
THAT PART OF THE NORTH EAST ¼ OF THE SOUTH WEST ¼ OF SECTION THIRTY-THREE (33) TOWNSHIP EIGHTEEN
(18) NORTH OF RANGE SIXTEEN (16) EAST, IN THE THIRTEENTH WARD, CITY OF OSHKOSH, WINNEBAGO COUNTY,
WISCONSIN, DESCRIBED AS FOLLOWS, VIZ: COMMENCING AT THE CENTER OF SAID SECTION 33; THENCE SOUTH
00°41’15” WEST, 304.13 FEET; THENCE NORTH 89°18’45” WEST, 66.00 FEET, TO THE WEST LINE OF UNIVERSAL
STREET; THENCE SOUTH 00°41’15” WEST, ALONG THE WEST LINE OF UNIVERSAL STREET, 470.37 FEET, THENCE
NORTH 89°09’27” WEST, 600.00 FEET, THE PLACE OF BEGINNING THENCE SOUTH 00°15’00” WEST, 350.00 FEET;
THENCE NORTH 89°09’27” WEST, 30.63 FEET; THENCE NORTH 00°15’00” EAST, 350.00 FEET; THENCE SOUTH
89°09’27” EAST, 30.63 FEET, TO THE PLACE OF BEGINNING.
and
THAT PART OF THE NORTH EAST ¼ OF THE SOUTH WEST ¼ OF SECTION THIRTY-THREE (33) TOWNSHIP EIGHTEEN
(18) NORTH OF RANGE SIXTEEN (16) EAST, IN THE THIRTEENTH WARD, CITY OF OSHKOSH, WINNEBAGO COUNTY,
WISCONSIN, DESCRIBED AS FOLLOWS, VIZ: COMMENCING AT THE CENTER OF SAID SECTION 33; THENCE SOUTH
0°41’15” WEST, 304.13 FEET; THENCE NORTH 89°18’45” WEST, 66.00 FEET, TO THE WEST RIGHT-OF-WAY LINE OF
UNIVERSAL STREET; THENCE SOUTH 0°41’15” WEST, 470.37 FEET, ALONG THE SAID WEST LINE, TO THE PLACE OF
BEGINNING; THENCE CONTINUING SOUTH 0°41’15” WEST, 241.14 FEET, ALONG THE SAID WEST LINE THENCE
SOUTHERLY, 109.80 FEET, ALONG THE SAID WEST LINE AND THE ARC OF A CURVE TO THE LEFT HAVING A RADIUS
OF 488.76 FEET AND A CHORD WHICH BEARS SOUTH 5°44’56” EAST, 109.57 FEET; THENCE NORTH 89°9’27” WEST,
609.64 FEET; THENCE NORTH 0°15’0” EAST, 350.00 FEET; THENCE SOUTH 89°9’27” EAST, 600.00 FEET, TO THE PLACE
OF BEGINNING.
SECTION 2. This Ordinance shall be in full force and effect from and after its passage and publication.
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh enacted Ordinance
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh enacted Ordinance
#25-502 APPROVE ZONE CHANGE FROM HEAVY INDUSTRIAL DISTRICT (HI) TO HEAVY INDUSTRIAL DISTRICT WITH
A PLANNED DEVELOPMENT OVERLAY (HI-PD) AT 2751 UNIVERSAL STREET (PARCEL 91329120200) (A GENERAL
ORDINANCE OF THE CITY OF OSHKOSH AMENDING THE OFFICIAL ZONING MAP OF THE CITY OF OSHKOSH, AS
ADOPTED BY SECTION 30-32 OF THE OSHKOSH MUNICIPAL CODE) on September 23, 2025. This ordinance
changes the zoning of the property located at 2751 Universal Street, parcel 91329120200, from Heavy
Industrial District (HI) to Heavy Industrial District with a Planned Development Overlay (HI-PD). The full text of
the Ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and on the City's
website at www.oshkoshwi.gov. Clerk's phone: (920) 236-5011.
ITEM: Public Hearing: Zone Change from Heavy Industrial District (HI) to Heavy
Industrial District with a Planned Development Overlay (HI-PD) and
Approval of a General Development Plan and Specific Implementation Plan
for a Building Expansion at 2751 Universal Street
Plan Commission Meeting of September 2, 2025
Applicant: Keller Inc.
Property Owner: Millwork Distributors Inc.
Action Requested: The applicant requests approval of a zone change from Heavy Industrial
District (HI) to Heavy Industrial District with a Planned Development Overlay (HI-PD) for the
property at 2751 Universal Street. The applicant is also requesting General Development Plan
and Specific Implementation Plan approval for expansion and remodel of the existing facility.
Applicable Ordinance Provisions: Zoning map amendment standards are found in Section 30-
381 of the Zoning Ordinance. Planned Development standards are found in Section 30-387 of
the Zoning Ordinance.
Property Location and Background Information: The subject site consists of a five-acre parcel
located in the Southwest Industrial Park, on Universal Street, just north of West South Park
Avenue. The site is home to Millwork Distributors, who manufacture and sell finished wood
and composite materials. The site also consists of semi loading/unloading areas and an
associated parking lot. The site and surrounding area are zoned Heavy Industrial District (HI)
with a mixture of differing industrial land uses. The 2040 Comprehensive Land Use Plan
recommends Industrial for the subject area.
Existing Land Use Zoning
Industrial HI
Existing Uses Zoning
North Industrial HI
South Vacant HI
East Industrial/Professional Services/Commercial HI
West Industrial HI
The applicant is proposing to rezone the subject site to Heavy Industrial District with a Planned
Development Overlay (HI-PD) from Heavy Industrial (HI). The requested Planned
Development Overlay designation is intended to allow for flexibility in the zoning ordinance to
accommodate expansion of the existing facility at the property. The applicant has submitted
plans to construct a 23,067 sq. ft. building expansion, attached to the west side of the existing
building, and install new pavement to accommodate more parking stalls. Staff is supportive of
the proposed rezone as it will assist with accomplishing a building expansion and the need for
more employee parking, both related to the increased impervious surface ratio.
Use/Site Design/Access - The current use of the property is unchanged. The proposed building
expansion and new parking areas will be accessed by an existing drive lane off of Universal
Street as well as a new stormwater pond on the northeast side of the property.
Standards Required Provided
Front Setback (east) 30 ft. min. Existing building
Rear Setback (west) 25 ft. min. Expansion at 25 ft.
Side Setback (north) 20 ft. min. Existing building
Side Setback (south) 20 ft. min. Existing building
Impervious Surface 70% max. 76.6%
Parking Calculation 1 stall per employee = 60 73
Proposed site plan showing building expansion, new parking areas, and new stormwater pond
Zoning code allows for a 70% Maximum Impervious Surface Ratio in all Heavy Industrial
Zoning Districts. The applicant is requesting a Base Standard Modification (BSM) to allow for
76.6% of the property to be impervious. Staff is supportive of the BSM request to allow for an
increased impervious surface ratio as this will help accommodate needed employee parking,
ADA accessible stalls, and the building expansion. To offset this request the applicant is
proposing to install landscaping that exceeds zoning code requirements.
Landscaping - The Zoning Ordinance does not require any new landscaping points for this
project because the building expansion does not exceed 50 percent of the existing floor area, nor
does the new pavement exceed 50 percent of the existing pavement area. The applicant is
however improving the overall site by proposing to install more plantings than what code
would require to help offset their BSM request.
Proposed Landscaping Plan showing new plantings
Landscaping Calculations
Building Foundation - For new development, code requires 20 landscaping points per 100
linear feet of building foundation. According to the submitted landscape plan the applicant is
providing more than what would be required, which brings this property into compliance with
the current landscaping requirements.
Paved Area - For a new development, code requires 30 landscaping points per ten stalls or
10,000 sq. ft. of pavement. According to the submitted landscape plan, the applicant is
providing more than what would be required, bringing the property into compliance.
Street Frontage - For a new development, code requires 30 landscaping points per 100 linear
feet of street frontage. According to the submitted landscape plan the applicant is providing
more than what would be required, bringing the property into compliance.
Yards - For a new development, code requires ten landscaping points per 1,000 sq. ft. of gross
floor area. According to the submitted landscape plan the applicant is providing more than
what would be required, bringing the property into compliance.
According to the applicant, this property currently has a total of 1507.9 landscaping points. A
number of these plantings need to be removed due to being dead, in decline, overgrown, or
within one of the expansion areas. The proposed landscaping plan shows a total of 2271.9
landscaping points, which is the sum of all new plantings and the existing plantings that can be
saved. This increase in overall landscaping sufficiently compensates for the proposed BSM for
increased impervious surface ratio.
Storm Water Management/Utilities - The Department of Public Works has noted that final
submitted plans are required to be in full compliance with the requirements of the City of
Oshkosh Municipal Code Chapter 14 for storm water management and a Notice of Intent (NOI)
shall be filed with WDNR.
Site Lighting - The applicant submitted a photometric plan for the site. The lighting levels meet
the 0.4 foot-candle minimum requirement for new paved areas and driveway access, while not
exceeding the maximum of 0.5 foot-candles of light trespass at the property lines. The plan
shows light fixtures to be mounted at 25 ft. which is the maximum allowed height to mount a
light fixture in the HI District.
Building Facades – The applicant plans to improve exterior front façade by painting the
existing brick charcoal and gray colors and replacing window trims with a charcoal color. The
exterior material on the building expansion will match the existing metal siding, as shown
below, which is compliant with exterior design standards for an addition that is less that 50
percent of an existing building footprint.
North Façade
East Façade
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 because the
proposed Planned Development Overlay will allow for further review of
development on the site.
(b) Is in harmony with the Comprehensive Plan because the underlying zoning
designation (HI) is consistent with the 2040 Comprehensive Land Use Plan
designation of Industrial.
(c) Maintains the desired overall consistency of land uses, land use intensities, and land
use impacts within the pertinent zoning districts because the HI zoning designation
is the consistent zoning of neighboring properties.
(d) 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
because site expansion has been proposed that may need relief from the
bulk regulations of the current zoning ordinance.
In its review and recommendation to the Common Council on an application for a Planned
Development district, staff recommends the Plan Commission consider 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 this Chapter because the current land use is consistent with the HI
zoning designation and Industrial 2040 Comprehensive Land Use Plan designation.
(b) The proposed Planned Development project is consistent with the City’s
Comprehensive Plan as Industrial land uses are designated for this property in the
2040 Comprehensive Land Use Plan.
(c) The proposed Planned Development project would maintain the desired
relationships between land uses, land use densities and intensities, and land use
impacts in the environs of the subject site because the proposed industrial use is
consistent with neighboring industrial uses along Universal Street.
(f) Project design does not detract from areas of natural beauty surrounding the site as
the applicant plans to install more trees, shrubs, and plants to the site.
(i) The proposed Planned Development project will produce significant benefits in
terms of environmental design and significant alternative approaches to addressing
development performance that relate to and more than compensate for any
requested exceptions/base standard modifications variation of any standard or
regulation of this Chapter because increased landscaping points and increased
planting size will be provided to compensate for BSM requests.
Recommendation/Conditions:
Staff recommends approval of the Zone Change, General Development Plan, and Specific
Implementation Plan with the findings listed above and the following conditions:
1. Base Standard Modification to allow increased impervious surface ratio to 76.6%.
2. Final landscaping plan shall be reviewed and approved by the Department of
Community Development.
The Plan Commission recommended approval of the requested zone change on September 2,
2025. For a comprehensive record of the proceedings, the official minutes can be obtained by
contacting Planning Services.
Page 7
Page 8
August 11, 2025
City of Oshkosh – Plan Commission
215 Church Avenue
Oshkosh, WI 54903
RE: Zoning Map Amendment & Planned Development Application for property located at 2751 Universal
Street, Oshkosh, WI 54904; further described as NE 1/4, SW 1/4 of Section 33, T.18N. - R.16E., CITY OF
OSHKOSH
Dear Plan Commission:
Thank you for your review of the proposed Zoning Amendment. We appreciate the Plan Commission’s willingness
to work together to improve the community by expanding business, improving the Industrial Park’s curb appeal,
and increasing handicap accessibility.
Millwork Distributors, Inc. is proposing a substantial $2,5000,000.00 expansion and remodel to their existing
facility. Project goals include:
Increased warehouse space to accommodate growth.
Remodel of restrooms and breakroom facilities for employee comfort and handicap accessibility.
Exterior facade updates for a modern curb appeal.
Additional parking for increased employment and handicap accessibility.
Major upgrades to the stormwater systems to meet today’s standards for retention and filtration.
* Please see included Architectural and Civil Engineered Plans that illustrate these facility improvements.
The project is scheduled to begin in September 2025 and will be completed in April 2026. Priority during
construction will be earthwork, including stormwater facility upgrades, interior and exterior concrete work for site
stabilization, and exterior facade work prior to frost conditions. This will allow for general building erection and
interior remodel throughout the winter months and prompt completion of landscaping features come springtime.
To accomplish the facility, handicap accessibility, and stormwater upgrades noted above, the site will require a
reduction of greenspace from 34.4% to 22.8% of the parcel. Current zoning standards call for 30% greenspace for
Heavy Industrial Zoning. As a result, Millwork Distributors is seeking the approval of a Planned Development
Overlay Zoning which would allow this project to move forward. In exchange for the reduction of greenspace
percentages, landscaping will be provided that will exceed the current requirements (list requirements and additional
provided) for Heavy Industrial Zoning. Additionally, the current dry pond will become a landscaped wet pond and
the front office facade, facing the roadway, will be refreshed.
We appreciate your consideration to allow these upgrades to this property and the Industrial Park overall.
Scott Ryback, President & CEO
Millwork Distributors, Inc.
2751 Universal Street
Oshkosh, WI 54904
Sam Winterfeldt
Keller, Inc.
N216 State Road 55,
Kaukauna, WI 54130
Page 9
BUILDING CODE ANALYSIS
PROJECT ADDRESS
2751 UNIVERSAL STREET, OSHKOSH, WI, 54904
APPLICABLE CODES
2015 International Building Code (w/ WI Amendments)
2015 IECC
2015 IEBC (Level 2 Alteration)
OCCUPANCY
S1
Accessory Use
NONE
Incidental Use
NONE
High-Piled Combustible Storage YES
Hazardous Materials NO
Multiple Control Areas NO
HEIGHT & AREA
Building Height: 27'-0" Maximum Allowed: 75'-0"
Number of Stories: 1 Maximum Allowed: 3
Total Building Area: 24,000 S.F. Maximum Allowed: 70,000 S.F.
Total Fire Area: 24,000 S.F. Maximum Allowed: 70,000 S.F.
Mixed/Separated Occupancies
Unlimited Area Building NO
CONSTRUCTION TYPE
Construction Classification IIB
Fire Separation Distance >10'-0"
FIRE PROTECTION SYSTEMS
Assumed Sprinkler Type NFPA 13
Fire Alarm System NO
MEANS OF EGRESS
Occupant Load 48
Panic Hardware NO
STRUCTURAL DESIGN
Risk Category II
Design Loads
Roof Live Load 20 psf
Walk-on IMP Ceiling Live Load N/A psf
Steel Framing
Collateral Load 5 psf
Wood Truss
Top Chord Dead Load N/A psf
Bottom Chord Load N/A psf
Mezzanine/Second Floor/Basemen
Live Load N/A psf
Point Load (Partition) N/A psf
Snow Load Criteria
Ground Snow Load (Pg) 35 psf
Exposure Factor (Ce) 1.0
Thermal Factor (Ct) 1.0
Wind Loads
Wind Load 115 MPH
Surface Roughness B
Exposure Category D
Earthquake Load Criteria
Soil Site Class D
Ss 0.296
S1 0.061
PLUMBING SYSTEMS
Mens WC Required 1
Womens WC Required 1
Drinking Fountain Required 1
Other Source YES
Ambulatory Stall Required YES
MECHANICAL SYSTEMS
NO SINGLE PIECE OF EQUIPMENT OVER 400,000 BTU
NO BOILERS OVER 15PSI AND 10 HORSEPOWER
SITE INFORMATION
SITE CONTENT
Building Size 96,826 S.F. 43.90%
Hard Surface 65,803 S.F. 29.84%
Green Space 57,929 S.F. 26.26%
Parcel Size (Approx.) 220,558 S.F. 5.06 Acres
Parking Provided -- Stalls
Area of Disturbance -,--- S.F.
ZONING
Property Zoning --
Setbacks FY -'--" SY -'--" RY -'--"
Hard Surface Setback -'--"
Coverage Limit --%
Greenspace Requirement --%
Parking Required -- Stalls
Refuse Enclosure YES/NO
RTU SCREENING YES/NO
FLOOR AREAS
SECOND FLOOR
BUILDING & FIRE AREA
SQUARE FOOTAGES
FIRST FLOOR
CANOPIES (COLUMN SUPPORTED)
BASEMENT
EXISTING NEW
N/A
SUB-TOTAL
BUILDING AREA SUB-TOTALS
MEZZANINES
FIRE AREA TOTALS
------ S.F. ------ S.F.
74,002 S.F. 24,000 S.F. 98,002 S.F.
77 S.F.------ S.F.
------ S.F. ------ S.F.
74,079 S.F. 98,079 S.F.
9,113 S.F. ------ S.F.
83,182 S.F.107,182 S.F.
N/A
24,000 S.F.
24,000 S.F.
77 S.F.
9,113 S.F.
UN
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20' BUILDING SETBACK
20' BUILDING SETBACK
30' BUILDING SETBACK
25' BUILDING SETBACK
EXISTING
BUILDING
120'-0"
EXPAND
EXISTING
CONCRETE
PAVING
30'-0"
20'-0"
ADDITIONAL CONCRETE
TO INCREASE PARKING
(14) -NEW EMPLOYEE PARKING STALLS
200'-0"
PROPOSED
ADDITION
24,000 S.F.72,002 S.F.
5
'
-
0
"
ALT:
NEW CONCRETE
GENERATOR PAD
RECESSED LOADING DOCKS
75'-0"
25'-0"
TRUCK MANEUVERING SPACE
AT-GRADE
OVERHEAD
DOOR
(WILL-CALL
PICK-UP)
AT-GRADE
OVERHEAD
DOOR
150'-0"
CUSTOMER
CUSTOMER
CUSTOMER
CUSTOMER
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(15) -EMPLOYEE PARKING STALLS
(11) -EMPLOYEE PARKING STALLS (1
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PRELIMINARY NO:
SUPERVISOR:
EXPEDITOR:
DRAWN BY:
CONTRACT NO:
DATE:
SHEET:
REVISIONS
"COPYRIGHT NOTICE"
This design, drawing and detail is the
copyrighted property of KELLER, INC.
No part hereof shall be copied, duplicated,
distributed, disclosed or made available to
anyone without the expressed written
consent of KELLER, INC.
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DESIGNER:
PROJECT MANAGER:
INTERIOR DESIGNER:
C1.0
10.15.2024
TDP
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MILLWORK DISTRIBUTORS INC.
PROPOSED FOR:
OSHKOSH,
S. WINTERFELDT
G. STRAUB
-------
NORTH
SHEET INDEX
C1.0 CONCEPTUAL SITE PLAN
EX1.0 EXISTING FLOOR PLAN
EX2.0 EXISTING ELEVATIONS
A1.0 FLOOR PLAN
A1.1 ENLARGED FLOOR PLANS
A2.0 ELEVATIONS
A3.0 SECTIONS
A3.1 SECTIONS
A7.0 REFLECTED CEILING PLAN
S1.0 FOUNDATION PLAN
THE LOT DIMENSIONS AND BEARINGS SHOWN ON THIS PLAN ARE INTERPRETED VALUES. BACKGROUND
INFORMATION TAKEN FROM LOCAL GIS DATE. AERIAL IMAGERY AND/OR CLIENT PROVIDED INFORMATION,
EASEMENTS, STREAMS AND ROADS ARE APPROXIMATE IN NATURE. FOLLOW UP INVESTIGATION WITH
STATE AND LOCAL AUTHORITIES AND/OR WITH CERTIFIED SURVEY MAP DATA WHEN AVAILABLE IS REQUIRED.
0'15'30'60'120'
1" = 30'-0"
CONCEPTUAL SITE PLAN
1 05.12.2025 KRW
2 05.21.2025 KRW
3 06.05.2025 KRW
4 06.13.2025 TDP
5
6
Page 10
UNIVERSALST
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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: 8/11/2025
1 in = 400 ft
1 in = 0.08 mi¯2751 UNIVERSAL STNOTICE 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
Page 11
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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: 8/11/2025
1 in = 400 ft
1 in = 0.08 mi¯2751 UNIVERSAL STZONING & 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
Page 12
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Tim Heiman, Fire Chief
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Ord 25-503 Amend Chapter 13 of the City of Oshkosh Municipal Code Pertaining to Fire
Prevention and Protection to Adopt Updated Provisions from the International Fire Code and
Clarify Provisions Pertaining to Responsibility for Compliance and Fireworks
B A C K G R O U N DBACKGROUND
Th e State of Wiscon sin allows m u n icipalities to adopt by ordin an ce a m odel fire code an d
addition al requ irem en ts th at are equ iv alen t to th e Nation al Fire Protection Association (NFPA)
Fire code. Th e City of O sh k osh h as prev iou sly adopted th e prov ision s of th e In tern ation al Fire
Code (IFC) 2 0 1 5 .
A N A L Y S I SANALYSIS
Th e proposed ordin an ce will u pdate th e v ersion of th e IFC for u se w ith in th e city for th e u se,
operation , an d m ain ten an ce of pu blic bu ildin gs an d places of em ploym en t from th e cu rren tly
u sed 2 0 1 5 to th e 2 0 2 1 v ersion . Th e In tern ation al Fire Code is dev eloped by th e In tern ation al
Code Cou n cil an d in tegrates w ith th e bu ildin g codes, in clu din g th e In tern ation al Bu ildin g
Code, w h ich is also adopted by State law in Wiscon sin , as w ell as addressin g fire prev en tion
an d protection issu es. Th e IFC addresses m in im u m fire safety requ irem en ts for n ew an d existin g
bu ildin gs an d facilities, an d establish es safe storage requ irem en ts an d processes for v ariou s
h azards an d m aterials.
As staff rev iew ed th e ordin an ce for u pdatin g, it w as also n oted th at th ere was n ot a clear
statem en t of preceden ce of w h ich codes w ou ld apply in th e existin g ordin an ce, so lan g u ag e
w as added to Section 1 3 -6 to clarify th at th e in ten tion of th e code is th at th e prov ision s of th e
IFC sh all apply, with state statu tes an d adm in istrativ e codes applyin g on ly in th ose
circu m stan ces specifically n oted w ith in th e code or to w h ich th e IFC does n ot apply.
Lan gu age w as also added in n ew section 1 3 -2 .2 clarifyin g w h o is respon sible for com plian ce
w ith th e fire code. In m ost in stan ces, th e own er of a property w ill be respon sible for code
com plian ce; h ow ev er th e section does allow an en forcem en t official to exercise discretion an d
issu e a correction n otice or citation to an oth er party if th e en forcem en t official determ in es th at
person is respon sible for th e con dition or v iolation .
Lan gu age w as added to clarify th e priority of city ordin an ce prov ision s in relation to sm ok e
detectors an d carbon m on oxide detector regu lation s.
Fin ally, staff recom m en ds rev ision s to th e regu lation s for firework s an d firew ork s displays to
clarify cu rren t prov ision s, adopt th e prov ision s of th e IFC pertain in g to safety practices
pertain in g to firework s an d to clarify perm it requ irem en ts for firework s displays. Th ese proposed
am en dm en ts do n ot ch an ge an y cu rren t practices pertain in g to firew ork s regu lation s,
in spection s, or display perm its bu t prov ide greater clarity to th ose prov ision s.
F I S C A L I M P A C TFISCAL I M P A C T
Th ere is n o fiscal im pact to th e proposed am en dm en t.
R E C O M M E N D A T I O NRECOMMENDATION
It is recom m en ded th at th e Cou n cil approv e th e proposed ordin an ce.
A t t a c h m e n t sAttachments
Ord 25-503
Fire Code updates - clean version
Fire Code updates - redline
09/23/2025 25-503 ORDINANCE
SECOND READING
9/9/2025 25-479 ORDINANCE
FIRST READING
PURPOSE: AMEND CHAPTER 13 OF THE CITY OF OSHKOSH MUNICIPAL CODE PERTAINING TO FIRE PREVENTION
AND PROTECTION TO ADOPT UPDATED PROVISIONS FROM THE INTERNATIONAL FIRE CODE AND CLARIFY
PROVISIONS PERTAINING TO RESPONSIBILITY FOR COMPLIANCE AND FIREWORKS
INITIATED BY : FIRE DEPARTMENT
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH CREATING SECTION 13-2.2 PERTAINING TO RESPONSIBILITY
FOR CODE COMPLIANCE AND AMENDING SECTION 13-6 ADOPTION OF FIRE PREVENTION CODES TO ADOPT
UPDATED PROVISIONS FROM THE INTERNATIONAL FIRE CODE AND CLARIFY PROVISIONS PERTAINING TO
RESPONSIBILITY FOR COMPLIANCE AND FIREWORKS
WHEREAS, State law allows permits municipalities to adopt by ordinance a model fire code and additional
requirements that are equivalent to the National Fire Protection Association (NFPA) Fire code; and
WHEREAS, the City has previously adopted the provisions of the International Fire Code (IFC) 2015; and
WHEREAS, the Fire Marshal has reviewed and recommends the adoption of IFC 2021 and the clarification
of current ordinance provisions pertaining to responsibility for code compliance and fireworks regulations.
NOW, THEREFORE, BE IT ORDAINED by the Common Council of the City of Oshkosh as follows:
SECTION 1. That Section 13-2.2 of the City of Oshkosh Municipal Code pertaining to Responsibility for Code
Compliance is hereby created to read as shown on the attachment to this Ordinance.
SECTION 2. That Section 13-6 of the City of Oshkosh Municipal Code pertaining to Adoption of Fire
Prevention Codes is hereby repealed and recreated to read as shown on the attachment to this Ordinance.
SECTION 3. This ordinance shall be in full force and effect from and after its passage and publication.
SECTION 4. Publication Notice. Please take notice that the City of Oshkosh enacted ordinance 25-503
AMEND CHAPTER 13 OF THE CITY OF OSHKOSH MUNICIPAL CODE PERTAINING TO FIRE PREVENTION AND
PROTECTION TO ADOPT UPDATED PROVISIONS FROM THE INTERNATIONAL FIRE CODE AND CLARIFY
PROVISIONS PERTAINING TO RESPONSIBILITY FOR COMPLIANCE AND FIREWORKS (A GENERAL ORDINANCE OF
THE CITY OF OSHKOSH CREATING SECTION 13-2.2 PERTAINING TO RESPONSIBILITY FOR CODE COMPLIANCE
AND AMENDING SECTION 13-6 ADOPTION OF FIRE PREVENTION CODES TO ADOPT UPDATED PROVISIONS
FROM THE INTERNATIONAL FIRE CODE AND CLARIFY PROVISIONS PERTAINING TO RESPONSIBILITY FOR
COMPLIANCE AND FIREWORKS) ON September 23, 2025. This ordinance adopts updated provisions from IFC
2021, clarifies current ordinance provisions pertaining to responsibility for code compliance, clarifies provisions
applicable to smoke detectors and carbon monoxide detectors, and clarifies fireworks regulations including
responsibility for issuance of permits and requirements for fireworks permits.
The full text of the ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and
through the City’s website at www.oshkoshwi.gov. Clerk’s phone: 920/236-5011.
City of Oshkosh Municipal Codes
Revised 09/23/2025
City of Oshkosh Chapter 13 – Page 1 Municipal Codes
CHAPTER 13
SECTION 13-2.2 RESPONSIBILITY FOR CODE COMPLIANCE
Except as specifically noted in this code or within a correction notice or citation issued
hereunder, compliance with the provisions of this code and correction and abatement of
violations of this code shall be the responsibility of the owner. The owner may authorize an
agent to act on their behalf however, the responsibility for compliance shall remain with the
owner.
This section shall not prevent an enforcement official, in their discretion, from making a
determination that the owner’s authorized agent, operator, occupant or other person is
responsible for the condition or violation and issuing a correction notice or citation to that
person who the enforcement official determines is responsible.
SECTION 13-6 ADOPTION OF FIRE PREVENTION CODES
The City relies upon and adopts various national codes, the Wisconsin Statutes and Wisconsin
Administrative Code Sections in relation to fire prevention and to the use, operation, and maintenance
of public buildings and places of employment within the City of Oshkosh. Except as specifically
provided by city ordinance, the provisions below shall be applied by priority as listed. It is the intention
of this Section that the provisions of the International Fire Code shall be applied in any circumstance
regulated under the provisions of that code as adopted below.
(A) 2021 International Fire Code: Pursuant to Wis. Admin. Code SPS 314.001(2), the City of Oshkosh
hereby adopts the following provisions of the 2021 International Fire Code (2021 IFC) for the use,
operation, and maintenance of public buildings and places of employment within the City of
Oshkosh, which are incorporated as part of this Chapter and shall be enforced with the same
force and effect as though set forth in full herein.
Chapter 1 Scope and Administration, Sections:
Section 101: Scope and General Requirements
Section 102: Applicability
Section 104: Duties and Power of the Fire Code Official
Section 108: inspections
Section 109: Maintenance
Section 110: Service Utilities
Section 113: Stop Work Order
Section 114: Unsafe Structures or Equipment
Chapter 2 Definitions
Chapter 3 General Requirements, with the exception of Section 307 Open Burning,
Recreational Fires and Portable Outdoor Fireplaces which are regulated
under Section 13-7 of this Municipal Code
City of Oshkosh Municipal Codes
Revised 09/23/2025
City of Oshkosh Chapter 13 – Page 2 Municipal Codes
Chapter 4 Emergency Planning and Preparedness
Chapter 5 Fire Service Features
Chapter 6 Building Services and Systems
Chapter 7 Fire and Smoke Protection Features
Chapter 8 Interior Finish, Decorative Materials and Furnishings
Chapter 9 Fire Protection and Life Safety Systems, except those provisions pertaining
to smoke detectors and carbon monoxide detectors as described in
subsection (D) below
Chapter 10 Means of Egress
Chapter 11 Construction Requirements for Existing Buildings
Chapter 12 Energy Systems
Chapter 20 Aviation Facilities
Chapter 21 Dry Cleaning
Chapter 22 Combustible Dust-Producing Operations
Chapter 23 Motor Fuel-Dispensing Facilities and Repair Garages
Chapter 24 Flammable Finishes
Chapter 25 Fruit and Crop Ripening
Chapter 26 Fumigation and Insecticidal Fogging
Chapter 27 Semiconductor Fabrication Facilities
Chapter 28 Lumber Yards and Agro-Industrial, Solid Biomass and Woodworking
Facilities
Chapter 29 Manufacture of Organic Coatings
Chapter 30 Industrial Ovens
Chapter 31 Tents, Temporary Special Event Structures and Other Membrane
Structures
Chapter 32 High-Piled Combustible Storage
Chapter 33 Fire Safety During Construction and Demolition
Chapter 34 Tire Rebuilding and Tire Storage
Chapter 35 Welding and Other Hot Work
Chapter 36 Marinas
Chapter 37 Combustible Fibers
Chapter 38 Higher Education Laboratories
Chapter 39 Processing and Extraction Facilities
Chapter 40 Storage of Distilled Spirits and Wines
Chapter 50 Hazardous Materials – General Provisions
Chapter 51 Aerosols
Chapter 53 Compressed Gases
Chapter 54 Corrosive Materials
Chapter 55 Cryogenic Fluids
Chapter 56 Explosives and Fireworks, regulation of Fireworks shall also be subject to
Subsection (C) below
Chapter 57 Flammable and Combustible Liquids
Chapter 58 Flammable Gases and Flammable Cryogenic Fluids
Chapter 59 Flammable Solids
Chapter 60 Highly Toxic and Toxic Materials
City of Oshkosh Municipal Codes
Revised 09/23/2025
City of Oshkosh Chapter 13 – Page 3 Municipal Codes
Chapter 61 Liquified Petroleum Gases
Chapter 62 Organic Peroxides
Chapter 63 Oxidizers, Oxidizing Gases and Oxidizing Cryogenic Fluids
Chapter 64 Pyrophoric Materials
Chapter 65 Pyroxylin (Cellulose Nitrate) Plastics
Chapter 66 Unstable (Reactive) Materials
Chapter 67 Water- Reactive Solids and Liquids
Appendix B Fire-Flow Requirements for Buildings
Appendix C Fire Hydrant Locations and Distribution
Appendix D Fire Apparatus Access Roads
Appendix F Hazard Ranking
Appendix I Fire Protection Systems – Noncompliant Conditions
Appendix N Indoor Trade Shows and Exhibitions
The Geographic limits referred to in certain sections of the International Fire Code are
hereby established as follows:
Section 5501.0 The storage of flammable cryogenic fluids in stationary containers is
prohibited on properties zoned residential or within one thousand (1,000) feet of a
property line of property zoned residential unless allowed by the Fire Chief or his/her
designee.
Section 5704.2.9.6.1 The storage of Class I and Class II liquids in above-ground tanks
outside of buildings is prohibited on properties zoned residential or within one
thousand (1,000) feet of a property line of property zoned residential unless allowed
by the Fire Chief or his/her designee.
Section 5706.2.4.4 The storage of Class I and Class II liquids in above-ground tanks is
prohibited on properties zoned residential or within one thousand (1,000) feet of a
property line of property zoned residential unless allowed by the Fire Chief or his/her
designee.
(B) Wisconsin Administrative Codes: The following Wisconsin Administrative Code Sections,
together with any future additions, deletions or supplements thereto, are herewith incorporated
as part of this Chapter and subject to (A) above, shall be enforced with the same force and effect
as though set forth in full herein.
Fire Prevention Code, SPS 314, Wis. Admin. Code. For any fire prevention issue not
addressed by the 2021 IFC or the City of Oshkosh ordinances, the provisions of the
National Fire Protection Association Standards, as adopted and modified by SPS 314, shall
apply.
(C) Fireworks and Fireworks Displays. Section 167.10 and 167.10(3)(a) of the Wisconsin Statutes
pertaining to Regulation of Fireworks, together with any future additions, deletions or
City of Oshkosh Municipal Codes
Revised 09/23/2025
City of Oshkosh Chapter 13 – Page 4 Municipal Codes
supplements thereto, are herewith incorporated as part of this Chapter and shall be enforced with
the same force and effect as though set forth in full herein.
(1) No person may sell, possess or use fireworks, as that term is defined by Section 167.10(1)
of the Wisconsin Statutes as may be amended from time to time, within the City; except
by appropriate permit issued by the Fire Marshal.
The permit application shall include:
the name and address of the permit holder;
the date on which the fireworks will be used and shall include any dates fireworks
may be stored in the City prior to use and any “rain dates”;
the kind and quantity of fireworks to be used;
the time, route and means by which fireworks will be transported within the City;
the location at which any fireworks will be stored; and
the location of display.
The Permit shall contain a requirement for provision of a policy of liability insurance
which shall include the city, its elected officials and employees as additional insureds and
such other conditions as the Fire Marshal may determine are reasonable and necessary for
the protection of the public health, safety and welfare.
A permit holder shall comply with all requirements of this code, state statutes, the
provisions of the International Fire Code pertaining to Fireworks adopted hereunder and
any conditions of permit issuance. Failure to comply with any of these requirements shall
be considered a violation of this section.
(D) Smoke Detectors and Carbon Monoxide Detectors. The regulations applicable to Smoke
Detectors and Carbon Monoxide Detectors are set forth in Sections 13-11 and 16-33 of this
Municipal Code, Sections 101.145 and 101.149 of the Wisconsin Statutes and Wisconsin
Administrative Code Section SPS 328 and the City hereby adopts those provisions of the State
Statutes and Administrative Code together with any future additions, deletions or supplements
thereto, are herewith incorporated as part of this Chapter and shall be enforced with the same
force and effect as though set forth in full herein.
City of Oshkosh Municipal
Codes
Revised
09/23/2025
City of Oshkosh Chapter 13 – Page 1 Municipal Codes
CHAPTER 13
SECTION 13-2.2 RESPONSIBILITY FOR CODE COMPLIANCE
Except as specifically noted in this code or within a correction notice or citation issued
hereunder, compliance with the provisions of this code and correction and abatement of
violations of this code shall be the responsibility of the owner. The owner may authorize an
agent to act on their behalf however, the responsibility for compliance shall remain with the
owner.
This section shall not prevent an enforcement official, in their discretion, from making a
determination that the owner’s authorized agent, operator, occupant or other person is
responsible for the condition or violation and issuing a correction notice or citation to that
person who the enforcement official determines is responsible.
SECTION 13-6 ADOPTION OF FIRE PREVENTION CODES
(A) This Chapter adopts the State of Wisconsin, Division of Safety and Professional Services
Administrative Codes (DSPS), the Wisconsin Enrolled Building Code, the National Fire
Protection Association (NFPA) incorporated standards and the International Fire Code 2015 (IFC)
shall be adopted in place of DSPS Chapter 314, Subchapter I, Section 314.001(2).
The City relies upon and adopts various national codes, the Wisconsin Statutes and Wisconsin
Administrative Code Sections in relation to fire prevention and to the use, operation, and maintenance
of public buildings and places of employment within the City of Oshkosh. Except as specifically
provided by city ordinance, the provisions below shall be applied by priority as listed. It is the intention
of this Section that the provisions of the International Fire Code shall be applied in any circumstance
regulated under the provisions of that code as adopted below.
(A) (BA) 2021 International Fire Code: Pursuant to Wis. Admin. Code SPS 314.001(2), the City of
Oshkosh hereby adopts the following provisions of the 2021 International Fire Code (2021 IFC)
for the use, operation, and maintenance of public buildings and places of employment within the
City of Oshkosh, which The following rules and regulations together with any future additions,
deletions or supplements thereto, are herewith incorporated as part of this Chapter and shall be
enforced with the same force and effect as though set forth in full herein. Providing, however,
that where such rules and regulations are less stringent than other provisions found in this Code,
the provisions of this Code shall apply.
(a) International Fire Code (IFC) 2015 CChapter 1, Scope and Administration, Sections:
City of Oshkosh Municipal
Codes
Revised
09/23/2025
City of Oshkosh Chapter 13 – Page 2 Municipal Codes
Section 101: SCOPE AND GENERAL REQUIREMENTSScope and General
Requirements
Section 102: APPLICABILITYApplicability
Section 104: GENERAL AUTHORITY AND RESPONSIBILITIESDuties and Power of
the Fire Code Official
Section 106108: INSPECTIONSinspections
Section 107109: MAINTENANCEMaintenance
Section 110: UNSAFE BUILDINGSService Utilities
Section 111113: STOP WORK ORDERStop Work Order
Section 112114: SERVICE UTILITIESUnsafe Structures or Equipment
(b) International Fire Code (IFC) 2015 Chapters 2-67 Definitions
Chapter 3 General Requirements, with the exception of Section 307 Open Burning,
Recreational Fires and Portable Outdoor Fireplaces which are regulated
under Section 13-7 of this Municipal Code
Chapter 4 Emergency Planning and Preparedness
Chapter 5 Fire Service Features
Chapter 6 Building Services and Systems
Chapter 7 Fire and Smoke Protection Features
Chapter 8 Interior Finish, Decorative Materials and Furnishings
Chapter 9 Fire Protection and Life Safety Systems, except those provisions pertaining
to smoke detectors and carbon monoxide detectors as described in
subsection (D) below
Chapter 10 Means of Egress
Chapter 11 Construction Requirements for Existing Buildings
Chapter 12 Energy Systems
Chapter 20 Aviation Facilities
Chapter 21 Dry Cleaning
Chapter 22 Combustible Dust-Producing Operations
Chapter 23 Motor Fuel-Dispensing Facilities and Repair Garages
Chapter 24 Flammable Finishes
Chapter 25 Fruit and Crop Ripening
Chapter 26 Fumigation and Insecticidal Fogging
Chapter 27 Semiconductor Fabrication Facilities
Chapter 28 Lumber Yards and Agro-Industrial, Solid Biomass and Woodworking
Facilities
Chapter 29 Manufacture of Organic Coatings
Chapter 30 Industrial Ovens
Chapter 31 Tents, Temporary Special Event Structures and Other Membrane
Structures
Chapter 32 High-Piled Combustible Storage
City of Oshkosh Municipal
Codes
Revised
09/23/2025
City of Oshkosh Chapter 13 – Page 3 Municipal Codes
Chapter 33 Fire Safety During Construction and Demolition
Chapter 34 Tire Rebuilding and Tire Storage
Chapter 35 Welding and Other Hot Work
Chapter 36 Marinas
Chapter 37 Combustible Fibers
Chapter 38 Higher Education Laboratories
Chapter 39 Processing and Extraction Facilities
Chapter 40 Storage of Distilled Spirits and Wines
Chapter 50 Hazardous Materials – General Provisions
Chapter 51 Aerosols
Chapter 53 Compressed Gases
Chapter 54 Corrosive Materials
Chapter 55 Cryogenic Fluids
Chapter 56 Explosives and Fireworks, regulation of Fireworks shall also be subject to
Subsection (C) below
Chapter 57 Flammable and Combustible Liquids
Chapter 58 Flammable Gases and Flammable Cryogenic Fluids
Chapter 59 Flammable Solids
Chapter 60 Highly Toxic and Toxic Materials
Chapter 61 Liquified Petroleum Gases
Chapter 62 Organic Peroxides
Chapter 63 Oxidizers, Oxidizing Gases and Oxidizing Cryogenic Fluids
Chapter 64 Pyrophoric Materials
Chapter 65 Pyroxylin (Cellulose Nitrate) Plastics
Chapter 66 Unstable (Reactive) Materials
Chapter 67 Water- Reactive Solids and Liquids
Appendix B Fire-Flow Requirements for Buildings
Appendix C Fire Hydrant Locations and Distribution
Appendix D Fire Apparatus Access Roads
Appendix F Hazard Ranking
Appendix I Fire Protection Systems – Noncompliant Conditions
Appendix N Indoor Trade Shows and Exhibitions
(c) International Fire Code (IFC) 2015 – Appendix B, C, & D
(d) The Geographic limits referred to in certain sections of the 2015 International Fire
Code are hereby established as follows:
Section 5501.0 The storage of flammable cryogenic fluids in stationary containers is
prohibited on properties zoned residential or within one thousand (1,000) feet of a
property line of property zoned residential unless allowed by the Fire Chief or his/her
designee.
City of Oshkosh Municipal
Codes
Revised
09/23/2025
City of Oshkosh Chapter 13 – Page 4 Municipal Codes
Section 5704.2.9.6.1 The storage of Class I and Class II liquids in above-ground tanks
outside of buildings is prohibited on properties zoned residential or within one
thousand (1,000) feet of a property line of property zoned residential unless allowed
by the Fire Chief or his/her designee.
Section 5706.2.4.4 The storage of Class I and Class II liquids in above-ground tanks is
prohibited on properties zoned residential or within one thousand (1,000) feet of a
property line of property zoned residential unless allowed by the Fire Chief or his/her
designee.
(B) (2)(B) Wisconsin Administrative Codes: The following Wisconsin Administrative Code
Sections, together with any future additions, deletions or supplements thereto, are herewith
incorporated as part of this Chapter and subject to (A) above, shall be enforced with the same
force and effect as though set forth in full herein.
Flammable and Combustible Liquids Code, ATCP 93, Wis. Admin. Code
Fire Prevention Code, SPS 314, Wis. Admin. Code. For any fire prevention issue not
addressed by the 2021 IFC or the City of Oshkosh ordinances, the provisions of the
National Fire Protection Association Standards, as adopted and modified by SPS 314, shall
apply.
Smoke Detectors and Carbon Monoxide Detectors, SPS 328
(3) Wisconsin Administrative Codes
Flammable and Combustible Liquids Code, ATCP 93, Wis. Admin. Code
Fire Prevention Code, SPS 314, Wis. Admin. Code
Smoke Detectors and Carbon Monoxide Detectors, SPS 328
(B)(C) (C) Fireworks and Fireworks Displays. Section 167.10 and 167.10(3)(a) of the Wisconsin
Statutes pertaining to Regulation of Fireworks, together with any future additions, deletions or
supplements thereto, are herewith incorporated as part of this Chapter and shall be enforced with
the same force and effect as though set forth in full herein. Providing, however, that where such
rules and regulations are less stringent than other provisions found in this Code, the provisions
of this Code shall apply.
(1) (1) Notwithstanding any provision of this Code to the contrary, nNo person may sell,
possess or use fireworks, as that term is defined by Section 167.10(1) of the Wisconsin
Statutes as may be amended from time to time, within the City; except that the use of
fireworks may be allowed by appropriate permit issued by the fire Firec Marshalhief.
The permit application shall include:
the name and address of the permit holder;
City of Oshkosh Municipal
Codes
Revised
09/23/2025
City of Oshkosh Chapter 13 – Page 5 Municipal Codes
the date on which the fireworks will be used and shall include any dates fireworks
may be stored in the City prior to use and any “rain dates”;
the kind and quantity of fireworks to be used;
the time, route and means by which fireworks will be transported within the City;
the location at which any fireworks will be stored; and
the location of display.
The Permit shall contain a requirement for provision of a policy of liability insurance
which shall include the city, its elected officials and employees as additional insureds and
such other conditions as the Fire Marshal may determine are reasonable and necessary for
the protection of the public health, safety and welfare.
A permit holder shall comply with all requirements of this code, state statutes, the
provisions of the International Fire Code pertaining to Fireworks adopted hereunder and
any conditions of permit issuance. Failure to comply with any of these requirements shall
be considered a violation of this section.
(D) International Fire Code (IFC) 2015 Chapter 3, Section 307 Open Burning, Recreational Fires and
Portable Outdoor Fireplaces is hereby adopted
(D) Smoke Detectors and Carbon Monoxide Detectors. The regulations applicable to Smoke
Detectors and Carbon Monoxide Detectors are set forth in Sections 13-11 and 16-33 of this
Municipal Code, Sections 101.145 and 101.149 of the Wisconsin Statutes and Wisconsin
Administrative Code Section SPS 328 and the City hereby adopts those provisions of the State
Statutes and Administrative Code together with any future additions, deletions or supplements
thereto, are herewith incorporated as part of this Chapter and shall be enforced with the same
force and effect as though set forth in full herein.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Jim Collins, Director of Transportation
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :*Ord 25-504 Designate 20th Avenue and the east driveway of Traeger School as Traffic
Controlled Intersection per Section 27A-7 of the Municipal Code
B A C K G R O U N DBACKGROUND
As part of th e recen tly passed O sh k osh Area Sch ool District (O ASD) referen du m , O ASD plan s to
address traffic con cern s w ith th e in gress an d eg ress to th e Carl Traeg er Sch ool. O ASD h ired
Tadi, In c. to con du ct a traffic im pact an alysis an d m ak e recom m en dation s. A traffic con trolled
in tersection is th e recom m edn ation .
A N A L Y S I SANALYSIS
Th e recom m en dation of th e Traffic Im pact An alysis is to add traffic-con trol sig n alin g to th e
in tersection of th e east driv eway to Traeg er Sch ools an d W. 2 0 th Av en u e. Th e stu dy sh owed
th at th is w ill g reatly im prov e traffic operation s in th is area n ow an d in to th e fu tu re.
B O A R D /C O M M I S S I O N I N F O R M A T I O NBOARD/C O M M I S S I O N I N F O R M A T I O N
Th e Tran sportation Com m ittee recom m en ded th is option after a roll-call v ote (5 -0 ) at th e
9 /9 /2 5 Tran sportation Com m ittee m eetin g.
F I S C A L I M P A C TFISCAL I M P A C T
Th e cost of th is traffic sig n al in stallation an d associated rig h t of w ay w ork will be cov ered by th e
O sh k osh Area Sch ool District as part of th eir recen tly approv ed referen du m .
R E C O M M E N D A T I O NRECOMMENDATION
Staff recom m en ds approv al.
A t t a c h m e n t sAttachments
Ord 25-504
Traffic Impact Analysis_Traeger
09/23/2025 25-504 ORDINANCE
FIRST READING
PURPOSE: APPROVE INSTALLATION OF A TRAFFIC SIGNAL AT THE INTERSECTION OF 20TH AVE AND THE EXISTING
EAST DRIVEWAY TO CARL TRAEGER SCHOOL
INITIATED BY : TRANSPORTATION DEPARTMENT AT THE REQUEST OF OSHKOSH
AREA SCHOOL DISTRICT
TRANSPORTATION COMMITTEE - APPROVED
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING SECTION 27A-7 TRAFFIC SIGNAL CONTROLLED
INTERSECTIONS DESIGNATED TO ADD A TRAFFIC SIGNAL CONTROLLED INTERSECTION AT THE INTERSECTION OF
20TH AVENUE AND THE EXISTING EAST DRIVEWAY ENTRANCE TO CARL TRAEGER SCHOOL
WHEREAS, the Oshkosh Area School District has conducted a traffic impact analysis and requests the
addition of a traffic signal control at the intersection of 20th Avenue and the currently existing east driveway
entrance to Carl Traeger School; and
WHEREAS, the Transportation Department recommends approval to add a traffic signal on 20th Avenue at
the east driveway entrance to Carl Traeger School as requested.
NOW, THEREFORE, BE IT ORDAINED by the Common Council of the City of Oshkosh as follows:
SECTION 1. That Section 27A-7 pertaining to traffic signal controlled intersections designated.
A-7 TRAFFIC SIGNAL CONTROLLED INTERSECTIONS DESIGNATED
Add Thereto: 20th Avenue and the east driveway entrance to Carl Traeger School
SECTION 2. This ordinance shall be in full force and effect from and after its Passage and publication and
placement of the traffic signal.
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh enacted ordinance #25-XXX on
October 7, 2025 APPROVE INSTALLATION OF A TRAFFIC SIGNAL AT THE INTERSECTION OF 20TH AVE AND THE
EXISTING EAST DRIVEWAY TO CARL TRAEGER SCHOOL (A GENERAL ORDINANCE OF THE CITY OF OSHKOSH
AMENDING SECTION 27A-7 TRAFFIC SIGNAL CONTROLLED INTERSECTIONS DESIGNATED TO ADD A TRAFFIC
SIGNAL CONTROLLED INTERSECTION AT THE INTERSECTION OF 20TH AVENUE AND THE EXISTING EAST DRIVEWAY
ENTRANCE TO CARL TRAEGER SCHOOL). The ordinance approves the addition of a traffic signal at the
intersection of 20th Avenue and the currently existing east driveway entrance to Carl Traeger School.
The full text of the ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and
through the City’s website at www.oshkoshwi.gov, Phone: 920/236-5011.
P.O. Box 128
Cedarburg, WI 53012
800.605.3091
www.tadi-us.com
Car l Tr ae ger Elementar y/
Mid dle School
Tr af fic Impact Anal ysis
City of Oshkosh
Winnebago County, Wisconsin
May 7, 2025
TRAFFIC IMPACT STUDY FOR:
CARL TRAEGER ELEMENTARY/MIDDLE
SCHOOL DEVELOPMENT
CITY OF OSHKOSH, WINNEBAGO COUNTY, WISCONSIN
DATE SUBMITTED: May 7, 2025
PREPARED FOR:
Oshkosh Area School District
1404 S. Main Street
Oshkosh, WI 54902
Phone: (920) 424-0135
Contact Person: James Fochs, Director of Facilities
PREPARED BY:
TADI
PO Box 128
Cedarburg, WI 53012
Phone: (800) 605-3091
Contact Persons: Don Lee, P.E. (WisDOT TIA Certification # SE05-804-046)
John Bieberitz, P.E., PTOE (WisDOT TIA Certification # SE05-804-044)
“I certify that this Traffic Impact Analysis has been prepared by me or under my immediate
supervision and that I have experience and training in the field of traffic and transportation
engineering.”
______________________
Donald J. Lee, P.E.
Wisconsin Registration #35214-006
Traffic Analysis & Design, Inc.
Carl Traeger Elementary/Middle School
Traffic Impact Analysis
Table of Contents
LIST OF EXHIBITS ....................................................................................................................... ii
LIST OF APPENDICES ................................................................................................................ iv
CHAPTER I – INTRODUCTION & EXECUTIVE SUMMARY..................................................1
Part A – Purpose of Report and Study Objectives .......................................................................1
Part B – Executive Summary .......................................................................................................1
CHAPTER II – PROPOSED DEVELOPMENT .............................................................................7
Part A – On-Site Development ....................................................................................................7
Part B – Study Area .....................................................................................................................8
Part C – Off-Site Land Use and Development .............................................................................8
Part D – Site Accessibility ...........................................................................................................8
CHAPTER III – ANALYSIS OF EXISTING CONDITIONS......................................................10
Part A – Physical Characteristics ...............................................................................................10
Part B – Traffic Volumes ...........................................................................................................10
Part C – Capacity Level of Service ............................................................................................10
Part D – Sources of Data ............................................................................................................11
CHAPTER IV – FORECASTED TRAFFIC .................................................................................12
Part A – Background Traffic Forecasting ..................................................................................12
Part B – Site Traffic Forecasting ...............................................................................................12
Part C – Build and Total Traffic ................................................................................................14
CHAPTER V – TRAFFIC AND IMPROVEMENT ANALYSIS ................................................15
Part A – Site Access ...................................................................................................................15
Part B – Capacity Level of Service Analysis .............................................................................15
Part C – Queueing Analysis .......................................................................................................18
Part D – Pedestrian, Bicycle, Bus Service and Multi-Use Trail Considerations .......................18
Part E – Speed Considerations/Sight Distance ..........................................................................20
Part F – Traffic Control Needs...................................................................................................21
Part G – Traffic Signal Warrant Analysis ..................................................................................21
CHAPTER VI – RECOMMENDATIONS AND CONCLUSION ...............................................23
Part A – Recommendations .......................................................................................................23
Part B – Conclusion ...................................................................................................................26
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
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LIST OF EXHIBITS
Exhibit 1-1 ........Project Overview Map
Exhibit 1-2A......Conceptual Site Plan – School
Exhibit 1-2B ......Conceptual Site Plan – Offsite Development
Exhibit 1-3 ........Recommended Modifications
Exhibit 2-1 ........Project Overview Map
Exhibit 2-2A......Conceptual Site Plan – School
Exhibit 2-2B ......Conceptual Site Plan – Offsite Development
Exhibit 3-1 ........Existing Transportation Detail
Exhibit 3-2 ........Year 2025 Existing Traffic Volumes
Exhibit 3-3 ........Year 2025 Existing Traffic Operations – Without Modifications
Exhibit 4-1 ........Year 2026 Background Traffic Volumes
Exhibit 4-2 ........Year 2036 Background Traffic Volumes
Exhibit 4-3A......On-Site Trip Generation & Distribution Tables
Exhibit 4-3B ......Off-Site (Sawyer Creek Crossing Residential) Trip Generation & Distribution
Tables
Exhibit 4-3C ......Off-Site (Southeast Residential) Trip Generation & Distribution Tables
Exhibit 4-4 ........Trip Distribution Diagram
Exhibit 4-7A......On-Site (Scenario 1 – One Eastern Driveway) New Trips
Exhibit 4-7B ......On-Site (Scenario 2 – Two Eastern Driveways) New Trips
Exhibit 4-7C ......Redistributed Trips (Scenario 2 – Two Eastern Driveways, One-Way Operation)
Exhibit 4-10A....Off-site (Sawyer Creek Crossing Residential) New Trips
Exhibit 4-10B ....Off-site (Southeast Residential) New Trips
Exhibit 4-11A....Year 2026 (Scenario 1 – One Eastern Driveway) Build Traffic
Exhibit 4-11B ....Year 2026 (Scenario 2 – Two Eastern Driveways) Build Traffic
Exhibit 4-13A....Year 2036 (Scenario 1 – One Eastern Driveway) Build Traffic
Exhibit 4-13B ....Year 2036 (Scenario 2 – Two Eastern Driveways) Build Traffic
Exhibit 4-16A....Year 2036 (Scenario 1 – One Eastern Driveway) Total Traffic
Exhibit 4-16B ....Year 2036 (Scenario 2 – Two Eastern Driveways) Total Traffic
Exhibit 5-3A......Year 2026 (Scenario 1 – One Eastern Driveway) Build Traffic Operations –
Without Modifications
Exhibit 5-3B ......Year 2026 (Scenario 2 – Two Eastern Driveways) Build Traffic Operations –
Without Modifications
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Exhibit 5-5A......Year 2036 (Scenario 1 – One Eastern Driveway) Build Traffic Operations –
Without Modifications
Exhibit 5-5B ......Year 2036 (Scenario 2 – Two Eastern Driveways) Build Traffic Operations –
Without Modifications
Exhibit 5-8A......Year 2036 (Scenario 1 – One Eastern Driveway) Total Traffic Operations –
Without Modifications
Exhibit 5-8B ......Year 2036 (Scenario 2 – Two Eastern Driveways) Total Traffic Operations –
Without Modifications
Exhibit 5-12A....Year 2026 (Scenario 1 – One Eastern Driveway) Build Traffic Operations –
With Modifications
Exhibit 5-12B ....Year 2026 (Scenario 2 – Two Eastern Driveways) Build Traffic Operations –
With Modifications
Exhibit 5-14A....Year 2036 (Scenario 1 – One Eastern Driveway) Build Traffic Operations –
With Modifications
Exhibit 5-14B ....Year 2036 (Scenario 2 – Two Eastern Driveways) Build Traffic Operations –
With Modifications
Exhibit 5-17A....Year 2036 (Scenario 1 – One Eastern Driveway) Total Traffic Operations –
With Modifications
Exhibit 5-17B ....Year 2036 (Scenario 2 – Two Eastern Driveways) Total Traffic Operations –
With Modifications
Exhibit 6-1 ........Conceptual Drawing – Recommended Modifications
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LIST OF APPENDICES
Appendix A ......Traffic
Existing Turning Movement Counts
Background Growth Rate Calculations
Sat Flow Rate Calculations
Traffic Signal Plans and Timings
Crash History Plot
CMF backup
Intersection Sight Distance (ISD) Calculations
Appendix B ...Existing Traffic – Peak Hour Analysis Outputs
Year 2025 Existing Traffic
Appendix C ...Build & Total Traffic – Peak Hour Analysis Outputs
Year 2026 Build (Scenario 1) Traffic
Year 2026 Build (Scenario 2) Traffic
Year 2036 Build (Scenario 1) Traffic
Year 2036 Build (Scenario 2) Traffic
Year 2036 Total (Scenario 1) Traffic
Year 2036 Total (Scenario 2) Traffic
Appendix D ...Peak Hour Improvement Analysis Outputs
Year 2026 Build (Scenario 1) Traffic – With Modifications
Year 2026 Build (Scenario 2) Traffic – With Modifications
Year 2036 Build (Scenario 1) Traffic – With Modifications
Year 2036 Build (Scenario 2) Traffic – With Modifications (lanes only)
Year 2036 Build (Scenario 2) Traffic – With Modifications (signal)
Year 2036 Total (Scenario 1) Traffic – With Modifications
Year 2036 Total (Scenario 2) Traffic – With Modifications (lanes only)
Year 2036 Total (Scenario 2) Traffic – With Modifications (signal)
Appendix E ...Traffic Signal Warrant Analysis
20th Avenue at East Driveway – Year 2025 Existing
20th Avenue at East Driveway – Year 2036 Background
20th Avenue at East Driveway – Year 2026 Build (Scenario 1)
20th Avenue at East Driveway – Year 2036 Build (Scenario 1)
20th Avenue at East Driveway – Year 2036 Build (Scenario 2)
20th Avenue at East Driveway – Year 2036 Total (Scenario 1)
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
CHAPTER I – INTRODUCTION & EXECUTIVE SUMMARY
PART A – PURPOSE OF REPORT AND STUDY OBJECTIVES
The Oshkosh Area School District is planning to upgrade the Carl Traeger Elementary/Middle
School located at 3000 West 20th Avenue, on the southwest side of the City of Oshkosh,
Winnebago County, Wisconsin. Modifications to the building as well as possible modifications to
the access driveways are proposed as part of the expansion plans. As part of the proposed school
expansion, the school district has requested a traffic impact analysis be conducted to determine
the additional traffic expected to be generated by the proposed elementary/middle school,
evaluation of the internal circulation, and to identify roadway modifications, if any, attributed to
the school modifications for the opening year (2026) and horizon year (2036) traffic scenarios.
Previously identified off-site developments adjacent to the proposed site are also considered.
This report documents the procedures, findings, and conclusions of the traffic impact analysis.
The analysis identifies recommended modifications based on existing intersection geometrics,
background traffic volumes, and additional traffic expected to be generated by known
developments adjacent to the study area as well as the proposed school development within the
limits of the study area.
PART B – EXECUTIVE SUMMARY
The executive summary includes a description of the study area, description of the on-site and
off-site developments and conclusions based on the findings of the TIA.
B1. Location of Study Site with Respect to Area Roadway Network
The school expansion is proposed at the existing Carl Traeger Elementary/Middle School located
at 3000 West 20th Avenue, in the City of Oshkosh, as shown in Exhibit 1-1. The study area for
the proposed school expansion includes the following intersections:
• 20th Avenue & west school driveway (one-way stop control)
• 20th Avenue & existing east school driveway/private business driveway (two-way stop
control)
• 20th Avenue & proposed east enter only school driveway (one-way stop control)
• 20th Avenue & Oakwood Road (traffic signal control)
• Sawyer Creek Drive/Wellington Drive with pedestrian crossing/walkway
• Fox Tail Lane with pedestrian crossing/walkway
• Woodstock Street with pedestrian crossing/walkway
B2. On-Site Development Description
A conceptual site plan for the proposed school expansion is shown on Exhibit 1-2A. Four new
classrooms are proposed at the existing school. The school is bordered by 20th Avenue to the
south, a nature preserve to the west and residential neighborhoods to the north and east.
Commercial uses exist along 20th Avenue to the south and west. The school expansion is
expected to accommodate the following student populations over the next several years:
Full Build
• Expected student population – 100 additional students
The proposed school modifications are expected to be completed by the beginning of the year
2026/2027 school year. For the purpose of this study, full build out was assumed in the Year
2026 Build and Year 2036 Build traffic scenarios.
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B3. Off-Site Development Description
The following two off-site developments, as shown in Exhibit 1-1, were identified within the
limits of the study area.
B3.1 Sawyer Creek Crossing Residential Development
A multi-family residential development has previously been proposed for a parcel of land located
about ¼-mile west of the school, immediately north of the Oshkosh Community YMCA facility
located at 3303 West 20th Avenue. Access to this site was assumed as a new driveway onto 20th
Avenue. The land uses and densities assumed for this off-site development are as follows:
• Multifamily Housing (Low-Rise/Not Close to Rail Transit) – 208 units
For the purpose of this study, full buildout of this off -site development is expected to be
included in the Year 2036 total traffic volumes.
B3.2 Southeast Residential Development
A potential multi-family residential development is planned for future construction on a parcel of
land located about ¼-mile east of the school, in the southwest quadrant of the 20th Avenue
intersection with Oakwood Road. Access to this site was assumed as a new driveway onto 20th
Avenue. The land uses and densities assumed for this off-site development are as follows:
• Multifamily Housing (Low-Rise/Not Close to Rail Transit) – 160 units
For the purpose of this study, full buildout of this off-site development is expected to be included
in the Year 2036 total traffic volumes.
B4. Site Generated Traffic
To address any potential future traffic impacts along study area roadways and at the intersections
adjacent to the school, it is necessary to identify the hourly and daily volume of traffic generated
by the school expansion. The traffic volumes expected to be generated for the expanded student
population are based on the trip rates as published in the Institute of Transportation Engineer’s
(ITE) Trip Generation Manual, 11th Edition. Trip rates were calculated based on the peak hour of
generator instead of the peak hour of adjacent street traffic to account for the worst-case school
traffic conditions.
Under full build conditions, the proposed school expansion is expected to generate 165
additional new trips (90 entering/75 exiting) during a typical weekday morning arrival peak hour.
During a typical weekday afternoon dismissal peak hour, the proposed school expansion is
expected to generate 70 additional new trips (30 entering/40 exiting). On a typical weekday, the
proposed school expansion is expected to generate approximately 220 additional new trips (110
entering/110 exiting) under full build conditions.
In addition, the traffic volumes expected to be generated by the identified off-site developments
are based on the size and type of the proposed land uses and on fitted curve equations as
published in the ITE Trip Generation Manual, 11th Edition. Due to the land use types assumed,
no linked or pass-by trip reductions were included in the traffic assumptions.
Under future year build conditions, the proposed Sawyer Creek Crossing off-site development is
expected to generate 85 new trips (20 entering/65 exiting) during a typical weekday morning
peak hour. During a typical weekday afternoon peak hour, the proposed Sawyer Creek Crossing
off-site development is expected to generate 110 new trips (70 entering/40 exiting). On a typical
weekday, the proposed Sawyer Creek Crossing off-site development is expected to generate
approximately 1,410 new trips (705 entering/705 exiting) under future year full build conditions.
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Under future year build conditions, the potential southeast off-site development is expected to
generate 70 new trips (15 entering/55 exiting) during a typical weekday morning peak hour.
During a typical weekday afternoon peak hour, the potential southeast off-site development is
expected to generate 90 new trips (55 entering/35 exiting). On a typical weekday, the potential
southeast off-site development is expected to generate approximately 1,100 new trips (550
entering/550 exiting) under future year full build conditions.
B5. Proposed Access
As shown in Exhibit 1-2A, two full access driveways are proposed along the east side of the
school onto 20th Avenue for parents and one existing full access driveway is proposed to remain
along the west side of the school onto 20th Avenue to accommodate the teacher parking lot.
Since operational issues have been identified at the existing east driveway, two access scenarios
were investigated as part of this study, noting that no changes are proposed for the existing west
driveway. The east driveway access scenarios investigated are as follows:
Scenario 1: One eastern access driveway - Under this scenario, the existing east access
drive is proposed to operate as a single access driveway with the potential to add
additional exiting turn lanes and an additional entrance lane at the current location and
potentially add traffic signal control to the driveway intersection.
Scenario 2: Two eastern access driveways - Under this scenario, the existing east access
drive would be replaced by two access driveways, with the driveways operating under
one-way operation. Specifically, the new eastern driveway would operate as a one-way
entrance driveway and the new middle driveway would operate as a one-way exit
driveway. The driveways would operate with two lanes each.
In addition to driveway access to the site, three pedestrian walkways are provided to the
residential neighborhoods located immediately north and east of the school site. Walkway
connections are provided along Sawyer Creek Drive/Wellington Drive, Fox Tail Lane, and
Woodstock Street.
B6. Recommended Modifications
The study area intersections were analyzed based on the procedures set forth in the Highway
Capacity Manual (HCM) 7th Edition. Intersection operation is defined by “level of service.”
Level of Service (LOS) is a quantitative measure that refers to the overall quality of flow at an
intersection ranging from very good, represented by LOS ‘A,’ to very poor, represented by LOS
‘F.’ For the purpose of this study, LOS D or better was used to define acceptable peak hour
operating conditions.
Modifications to address traffic impacts are shown in Exhibit 1-3 for the Year 2026 and Year
2036. Traffic conditions have been split into three categories:
• “26 Build Traffic” – These modifications are expected to be necessary to accommodate
Year 2026 Build traffic volumes, which include only the proposed on-site school
expansion.
• “36 Build Traffic” – These modifications are expected to be necessary to accommodate
Year 2036 Build traffic volumes, which include ten years of general background growth
as well as the proposed on-site school expansion.
• “36 Total Traffic” – These modifications are expected to be necessary to accommodate
Year 2036 Total traffic volumes, which include the previously identified off-site
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developments as well as ten years of general background growth and the proposed on-site
school expansion.
The analysis was conducted using existing intersection geometrics and traffic control. The
following modifications, as shown in Exhibit 1-3, are recommended to accommodate the Year
2026 and Year 2036 build and total traffic volumes, respectively. Modifications are for
jurisdictional consideration and are not legally binding. The City of Oshkosh reserves the right
to determine alternative solutions.
20th Avenue (General)
• 26 Build Traffic:
o Consider installation of a solar powered Rectangular Rapid Flashing
Beacon (RRFB) at the existing crosswalk located immediately west of the
west school driveway to enhance the safety at this location.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & West School Driveway
• 26 Build Traffic: No modifications.
• 36 Build Traffic: No modifications.
• 36 Total Traffic: No modifications.
20th Avenue & East School Driveway (Scenario 1)
• 26 Build Traffic:
o Reconstruct the north approach to align with the private driveway located
immediately west of the existing school driveway.
o Construct a dedicated left-turn lane and a dedicated right-turn lane exiting
the site (two exit lanes) and two inbound lanes on the new north approach.
o Provide a dedicated westbound right-turn lane along 20th Avenue.
o Provide a fully actuated traffic signal with eastbound protected/permitted
left-turn phasing.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & New Exiting School Driveway (Scenario 2 - optional)
• 26 Build Traffic:
o Construct a new north approach with a dedicated left-turn lane and a
dedicated right-turn lane.
o Align the new driveway approach directly opposite the landscape
company driveway located on the south side of 20th Avenue.
o Provide stop sign control on the north approach.
o Provide DO NOT ENTER signs facing 20th Avenue.
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o Provide a fully actuated traffic signal with eastbound protected/permitted
left-turn phasing when traffic volume thresholds reach a level where signal
warrants are met.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & New Entering School Driveway (Scenario 2 - optional)
• 26 Build Traffic:
o Construct a new north approach with two entering drive aisles into the site
as shown on the site plan.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & Oakwood Road
• 26 Build Traffic:
o Consider modifying the lane assignments on the north and south
approaches to provide a dedicated left-turn lane and a shared
through/right-turn lane. The lanes are currently striped to provide a shared
through/left-turn lane and a dedicated right-turn lane.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
Higher than acceptable delays are currently being experienced for southbound motorists at the
20th Avenue intersection with Oakwood Road during the typical weekday morning peak period.
These delays are expected to increase over the next ten years with expected background growth
in the overall area, with or without the identified off-site developments. Modifications to the lane
assignments are expected to allow the intersection to operate acceptably for all movements under
the existing and expected future traffic volumes. However, it is noted that the recommended lane
assignments on the north and south approaches; specifically, a dedicated left-turn lane and a
shared through/right-turn lane, will occasionally require the higher volume right-turn movement
vehicles to wait behind a through movement vehicle until the approach gets a green signal
indication. Due to the shorter signal cycle length at the intersection, these delays are expected to
be minimal and are expected to allow all movements at the intersection to operate within
acceptable delay thresholds.
Two access scenarios were evaluated as part of this study, one with a single two-way east access
driveway to the school (Scenario 1) and one with two one-way east access driveways to the
school (Scenario 2). Scenario 2 is expected to allow the east driveway to operate acceptably
under Year 2026 Build conditions without traffic signals. In order for the east driveway to
operate acceptably under Year 2026 Build conditions under Scenario 1, traffic signals would also
need to be installed. Even though Scenario 2 is expected to allow the east access driveway to
operate acceptably under opening day conditions and until traffic signal warrants are met at some
point in the future, it is recommended to implement Scenario 1 with installation of traffic signals
now, based on the likelihood that traffic signals will be warranted in the near future and to
provide a higher level of safety.
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Based on the signal warrant analysis completed as part of this study, assuming similar
background traffic growth along 20th Avenue as has occurred over the past 20 years, the peak
hour traffic signal warrant is expected to be met under either Scenario in about five years without
the known off-site developments moving forward. If the two identified developments move
forward, the warrant is expected to be met immediately, once both are fully built out without any
background growth. In addition, if only the Sawyer Creek Residential development moves
forward, the warrant would be expected to be met in as little as two and half years with
background growth. Therefore, since traffic signals are very likely to met in the next couple of
years, installing traffic signals with the other recommended geometrics under the opening year
build conditions is recommended.
Comparing both Scenario 1 and 2, Scenario 2 can operate acceptably without signals in the short-
term, however, as traffic grows along 20th Avenue, signals would be warranted in the future.
Since both Scenario 1 and 2 require signalization in the future, it is recommended to implement
Scenario 1 with two lanes both inbound and outbound on the north approach with signalization
to improve traffic operations and to provide a higher level of safety sooner rather than waiting
for signals to be installed later.
It is noted that under Scenario 1, which includes modifications to the existing east access
driveway including providing an additional entrance lane and an additional exit lane, the east
driveway to the school is expected to provide for additional stacking distance within the site
during the typical weekday afternoon discharge peak period, thereby helping to reduce the
frequency of vehicles backing onto 20th Avenue while waiting in the queue for the afternoon
school discharge bell.
It is also noted that based on the Year 2024 WisDOT crash modification factors, with installation
of a traffic signal at the east driveway intersection, a 34 percent reduction in right-angle crashes
and a 14 percent reduction in all crashes is expected. However, rear end crashes could increase
by about 50 percent. Based on a review of the most recent crashes reported for the east driveway
intersection, only two crashes occurred at the intersection over the most recent 5 years of
available data and both crashes were reported as right-angle crashes with southbound left-turning
vehicles exiting the driveway being hit by westbound vehicles.
B7. Conclusion
Except where noted in Chapter V, all movements at the study area intersections are expected to
operate safely and efficiently with the development assumptions outlined in this TIA and with
the identified recommended modifications if properly designed and implemented through the
Year 2036.
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E XH I B IT 1-1
PROJECT OVERVIEW M A P
OS HK O SH, WI S CON SIN
Study Area Intersection
School Walkway Location
Existing School Site Location
Off-site Development Location
L EG E N D
Sawyer Creek
Crossing
Residential
Off-Site
Southeast
Residential
Off-Site
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E X H I B I T 1-2A
CONCEPTUAL SITE PLAN
TRAEGER SCHOOL
OSHKOSH, WI S CON SIN
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E X H I B I T 1-2B
CONCEPTUAL SITE PLAN
OFF-SITE SAWYER CREEK CROSSING RESIDENTIAL
OSHKOSH, WI S CON SIN
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E XH I B IT 1-3
RECOMMENDED MODIFICATIONS
OSHKOSH, WI S CON SIN
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5
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Consider changing lane designations
on north and south approaches to
provide a dedicated left-turn lane and
a shared through/right-turn lane
LEGEND
XX’
Traffic Signal Control
Stop Control
Storage Length (In Feet)
Existing Lane Configuration
Year 2026 Build Traffic Recommended Modifications
Year 2036 Build Traffic Recommended Modifications
BLUE
Consider RRFB Pedestrian
Crossing Control Units
Provide fully actuated traffic signal
with eastbound left-turn phasing
Realign north approach with private
driveway located on south approach
of intersection
GREEN
50’
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
7
CHAPTER II – PROPOSED DEVELOPMENT
PART A – ON-SITE DEVELOPMENT
A1. Development Description and Site Location
The Oshkosh Area School District is planning to upgrade the Carl Traeger Elementary/Middle
School located at 3000 West 20th Avenue, on the southwest side of the City of Oshkosh,
Winnebago County, Wisconsin. Modifications to the building as well as possible modifications to
the access driveways are proposed as part of the expansion plans. A project overview map
illustrating the location of the proposed development site is shown in Exhibit 2-1.
A2. Land Use and Intensity
The Carl Traeger Elementary/Middle School provides primary education for grades K-8 for
about 870 students. The school is bordered by 20th Avenue to the south, a nature preserve to the
west and residential neighborhoods to the north and east. Commercial uses exist along 20th
Avenue to the south and west.
A3. Site Plan
A copy of the conceptual site plan for the school expansion is provided on Exhibit 2-2A. As
shown, two full access driveways are proposed along the east side of the school onto 20th Avenue
for parents and one existing full access driveway is proposed to remain along the west side of the
school onto 20th Avenue to accommodate the teacher parking lot.
Since operational issues have been identified at the existing east driveway, two access scenarios
were investigated as part of this study, noting that no changes are proposed for the existing west
driveway. The east driveway access scenarios investigated are as follows:
Scenario 1: One eastern access driveway - Under this scenario, the existing east access
drive is proposed to operate as a single access driveway with the potential to add
additional exiting turn lanes and an additional entrance lane at the current location and
potentially add traffic signal control to the driveway intersection.
Scenario 2: Two eastern access driveways - Under this scenario, the existing east access
drive would be replaced by two access driveways, with the driveways operating under
one-way operation. Specifically, the new eastern driveway would operate as a one-way
entrance driveway and the new middle driveway would operate as a one-way exit
driveway. The driveways would operate with two lanes each.
In addition to driveway access to the site, three pedestrian walkways are provided to the
residential neighborhoods located immediately north and east of the school site. Walkway
connections are provided along Sawyer Creek Drive/Wellington Drive, Fox Tail Lane, and
Woodstock Street.
A4. Development Phasing
The school expansion is expected to accommodate the following student populations over the
next several years:
Full Build
• Expected student population – 100 additional students
The proposed school modifications are expected to be completed by the beginning of the year
2026/2027 school year. For the purpose of this study, full build out was assumed in the Year
2026 Build and Year 2036 Build traffic scenarios.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
8
PART B – STUDY AREA
B1. Influence Area
Based on the type of proposed land uses and the location of the site in relation to 20th Avenue,
the proposed school expansion is expected to draw from a local family population base.
Therefore, the areas of significant influence include the Carl Traeger Elementary/Middle School
boundary within the greater Oshkosh Area School District.
B2. Area of Significant Traffic Impact
The study area for the proposed school expansion includes the following intersections:
• 20th Avenue & west school driveway (one-way stop control)
• 20th Avenue & existing east school driveway/private business driveway (two-way stop
control)
• 20th Avenue & proposed east enter only school driveway (one-way stop control)
• 20th Avenue & Oakwood Road (traffic signal control)
• Sawyer Creek Drive/Wellington Drive with pedestrian crossing/walkway
• Fox Tail Lane with pedestrian crossing/walkway
• Woodstock Street with pedestrian crossing/walkway
PART C – OFF-SITE LAND USE AND DEVELOPMENT
Two previously identified off-site developments, as shown in Exhibit 2-1, were identified.
C1. Sawyer Creek Crossing Residential Development
A multi-family residential development has previously been proposed for a parcel of land located
about ¼-mile west of the school, immediately north of the Oshkosh Community YMCA facility
located at 3303 West 20th Avenue. Access to this site was assumed as a new driveway onto 20th
Avenue. A copy of the conceptual site plan for this offsite development is provided on Exhibit 2-
2B. The land uses and densities assumed for this off-site development are as follows:
• Multifamily Housing (Low-Rise/Not Close to Rail Transit) – 208 units
For the purpose of this study, full buildout of this off -site development is expected to be
included in the Year 2036 total traffic volumes.
C2. Southeast Residential Development
A potential multi-family residential development is planned for future construction on a parcel of
land located about ¼-mile east of the school, in the southwest quadrant of the 20th Avenue
intersection with Oakwood Road. Access to this site was assumed as a new driveway onto 20th
Avenue. The land uses and densities assumed for this off-site development are as follows:
• Multifamily Housing (Low-Rise/Not Close to Rail Transit) – 160 units
For the purpose of this study, full buildout of this off-site development is expected to be included
in the Year 2036 total traffic volumes.
PART D – SITE ACCESSIBILITY
D1. Study Area Roadways
The study area roadways are discussed below:
20th Avenue is a four-lane east/west undivided major collector to the west of Oakwood Road and
minor arterial to the east. The posted speed limit on 20th Avenue is 30 miles per hour (mph)
within the limits of the school site and changes to 35-mph immediately west of the school’s west
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
9
driveway. School speed zone signage for 15-mph within the limits of the school site is also
posted along the roadway. According to the Wisconsin Department of Transportation (WisDOT),
the year 2023 annual average daily traffic (AADT) volumes on 20th Avenue were approximately
6,500 vehicles per day (vpd) east of Oakwood Road and 5,000-vpd (2016 count) to the west of
Oakwood Road. Sidewalks are currently provided along the north side of 20th Avenue,
throughout the project limits and along the south side of the street, from the Oshkosh Community
YMCA driveway up to the 20th Avenue crosswalk located immediately west of the west school
driveway.
Oakwood Road is a two-lane north/south undivided minor arterial to the north of 20th Avenue
and a four-lane undivided minor arterial to the south. The posted speed limit on Oakwood Road
is 30-mph within the limits of the study area. The Year 2023 WisDOT AADT volumes on
Oakwood Road were approximately 2,900 vpd south of 20th Avenue and 5,200-vpd (2016 count)
to the north. Sidewalks are currently provided along both sides of Oakwood Road to the north of
20th Avenue.
Sawyer Creek Drive is a two-lane east/west undivided local roadway with a posted speed limit of
25-mph within the limits of the study area. There are no AADT volumes currently available
along Sawyer Creek Drive within the limits of the study area. Sidewalks are currently provided
along both sides of the street within the limits of the study area.
Fox Tail Lane is a two-lane east/west undivided local roadway with a posted speed limit of 25-
mph within the limits of the study area. There are no AADT volumes currently available along
Fox Tail Lane within the limits of the study area. Sidewalks are currently provided along both
sides of the street within the limits of the study area.
Woodstock Street is a two-lane north/south undivided local roadway with a posted speed limit of
25-mph within the limits of the study area. There are no AADT volumes currently available
along Woodstock Street within the limits of the study area. Sidewalks are currently provided
along both sides of the street within the limits of the study area.
D2. Alternative Modes of Transportation
As described above, pedestrian sidewalks currently exist along many of the roadways within the
limits of the study area. On-street bicycle accommodations are also provided along Oakwood
Road, to the north of 20th Avenue. No other on-street bicycle accommodations were identified.
About 15 school buses and one city bus provide service to the two schools during the weekday
morning and weekday afternoon peak periods.
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E XH I B IT 2-1
PROJECT OVERVIEW M A P
OS HK O SH, WI S CON SIN
Study Area Intersection
School Walkway Location
Existing School Site Location
Off-site Development Location
L EG E N D
Sawyer Creek
Crossing
Residential
Off-Site
Southeast
Residential
Off-Site
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E X H I B I T 2-2A
CONCEPTUAL SITE PLAN
TRAEGER SCHOOL
OSHKOSH, WI S CON SIN
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E X H I B I T 2-2B
CONCEPTUAL SITE PLAN
OFF-SITE SAWYER CREEK CROSSING RESIDENTIAL
OSHKOSH, WI S CON SIN
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
10
CHAPTER III – ANALYSIS OF EXISTING CONDITIONS
PART A – PHYSICAL CHARACTERISTICS
Exhibit 3-1 shows the existing transportation detail for the study area intersections. More
specifically, the exhibit illustrates intersection lane configurations, intersection traffic controls,
and posted speed limits.
PART B – TRAFFIC VOLUMES
The weekday morning and weekday afternoon peak hours are expected to drive the
improvements needed to adequately accommodate the school expansion, as they represent the
highest trip generation for the site and the highest volumes along the adjacent roadways.
Therefore, weekday morning (7:00 to 8:30 am) and weekday evening (2:00 to 6:00 pm) turning
movement traffic counts were collected by TADI at the existing study area intersections along
20th Avenue and at the three residential walking paths to the school during a typical weekday in
late January of 2025. Weather reported on the two days of data collection was dry with highs
between 40- and 48-degrees Fahrenheit.
Based on the turning movement counts and the expected school bell schedule, the weekday
morning and weekday afternoon peak hours were identified as being 7:15 to 8:15 am and 2:45 to
3:45 pm; respectively. These peak hours coincide with the higher volume elementary school start
and end times of 7:45 am and 2:45 pm, respectively. The existing peak hour traffic volumes at
the study area intersections, balanced along the study area corridors, are shown in Exhibit 3-2.
The traffic counts used to determine peak hour factors and truck percentages have been included
in the appendix of this study.
PART C – CAPACITY LEVEL OF SERVICE
C1. Level of Service Definitions
The study area intersections were analyzed based on the procedures set forth in the Highway
Capacity Manual ( HCM) 7th Edition. Intersection operation is defined by “level of service.”
Level of service (LOS) is a quantitative measure that refers to the overall quality of flow at an
intersection ranging from very good, represented by LOS ‘A,’ to very poor, represented by LOS
‘F.’ For the purpose of this study, LOS D was used to define acceptable peak hour operating
conditions. Descriptions of the various levels of service are as follows:
LOS A is the highest level of service that can be achieved. Under this condition,
intersection approaches appear quite open, turning movements are easily made, and
nearly all drivers find freedom of operation. At signalized and unsignalized intersections,
average delays are less than 10 seconds.
LOS B represents stable operation. At signalized intersections, average vehicle delays are
10 to 20 seconds. At unsignalized intersections, average delays are 10 to 15 seconds.
LOS C still represents stable operation, but periodic backups of a few vehicles may
develop behind turning vehicles. Most drivers begin to feel restricted, but not
objectionably so. At signalized intersections, average vehicle delays are 20 to 35 seconds.
At unsignalized intersections, average delays are 15 to 25 seconds.
LOS D represents increasing traffic restrictions as the intersection approaches instability.
Delays to approaching vehicles may be substantial during short peaks within the peak
period, but periodic clearance of long lines occurs, thus preventing excessive backups. At
signalized intersections, average vehicle delays are 35 to 55 seconds. At unsignalized
intersections, average delays are 25 to 35 seconds.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
11
LOS E represents the capacity of the intersection. At signalized intersections, average
vehicle delays are 55 to 80 seconds. At unsignalized intersections, average delays are 35
to 50 seconds.
LOS F represents jammed conditions where the intersection is over capacity and
acceptable gaps for unsignalized intersections in the mainline traffic flow are minimal. At
signalized intersections, average vehicle delays exceed 80 seconds. At unsignalized
intersections, average delays exceed 50 seconds.
C2. Year 2025 Existing Traffic Operations – No Modifications
Exhibit 3-3 shows the Year 2025 Existing traffic peak hour operating conditions at the study area
intersections. The existing traffic analysis was conducted using the existing lane configurations
shown in Exhibit 3-1, the Year 2025 Existing traffic volumes shown in Exhibit 3-2 and the
existing traffic signal timings as shown in the appendix of this study.
As shown in Exhibit 3-3, all movements are currently operating acceptably at LOS D or better at
the study area intersections under the Year 2025 Existing traffic volume conditions except for the
following:
• The southbound movements at the 20th Avenue intersection with the east school driveway
which are currently operating at LOS F during the weekday morning peak period.
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are currently operating at LOS F during the weekday morning peak
period.
Modifications to address these operations are discussed in Chapters V and VI.
PART D – SOURCES OF DATA
The following sources of data were obtained for use in conducting this traffic study:
• Turning movement traffic counts – TADI
• Historic WisDOT AADT information – WisDOT
• Existing transportation details – TADI along with Google Earth
• Existing traffic signal timings – City of Oshkosh
• Crash Data – WisDOT
• On-site development information – Oshkosh Area School District and Bray Architects
• Off-site development information – City of Oshkosh
• Transit information – Oshkosh Go Transit
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E XH I B IT 3-1
EXISTING TRANSPORTATION DETAIL
OSHKOSH, WI S CON SIN
20th Avenue
SPEED
LIMIT
30
10
0
’
SPEED
LIMIT
30
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XX’
Traffic Signal Control
Stop Control
Existing Lane Configuration
Existing Storage Length (in Feet)
Distance Between Roadways (in Feet)
LEGEND
XX’
650’1,480’
SPEED
LIMIT
30
SPEED
LIMIT
35
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Fox Tail Lane
Sawyer Creek Drive
Newport Avenue
YMCA
Landscaping
Traeger
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Church
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E XH I B IT 3-2
E X I S T I N G T RA F F IC VO LU M E S
OSHKOSH, WI S CON SIN
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EG EN D
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55
(
3
0
)
(5) -
( - ) 5
( - ) -
5 ( - )
- ( - )
5 (5)
(
1
5
)
2
0
480 (320)
(295) 470
Pedestrian Crossing Location
X,XXX
5,200
Mid Block Path
Wes
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5
(
5
)
35
(
4
5
)
Sawyer Creek
Drive
(5) 15
(130) 230
190 (250)
55
(
2
5
)
-
(
-
)
24
5
(
1
3
0
)
280 (80)
195 (240)
5 ( - )
(
-
)
-
(
-
)
-
(
-
)
-
(135) 245
20th Avenue
Fox Tail Lane
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5,000
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w
E
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e
Dr
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w
a
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(10) 40
(165) 225
( - ) -
65 (20)
185 (245)
- (5)
50 (26)
(33) 19
(102) 161
(2)
8
2016 Annual Average Daily Traffic (AADT)
2023 Annual Average Daily Traffic (AADT)
(
2
4
)
-
- (7)
24
5
(
1
10
)
85
(
6
5
)
110
(
6
5
)
35 (125)
205 (190)
35 (25)
(
2
0
)
3
0
(1
4
0
)
4
0
(
7
0
)
2
0
(90) 160
(195) 280
(10) 30
5
(
5
)
45
(
3
0
)
5
(
5
)
(
-
)
-
(1
0
)
1
0
(
1
0
)
1
5
2,900
6,500
X,XXX
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E XH I B IT 3-3
E X I S T I N G T RAF F I C O P E R AT I O N S
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
v/c --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -B B -B A B D
Delay 14.2 -11.5 10.1 -10.2 9.1 10.7 52.2
v/c --------
Queue 95'-95'50'-50'25'75'
LOS B -B B -B A A B
Delay 12.3 -10.4 10.4 -10.6 9.4 9.7 16.3
Queue 45'-45'50'-50'25'35'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 3-3
Existing Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-B
One-Way Stop Control
7.9 *-13.5
25'*-25'
25'*-25'
PM
A *-B
8.1 *-13.6
AM
A *-F
Lanes->2 2 -1
One-Way Stop Control -*-0.97
9.1 *-69.4
Node 200: 20th Avenue &
East Driveway
25'*-280'
25'*-45'
PM
A *-C
8.3 *-16.2
F
14.2 254.8
Lanes->1 1
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control -1.46
40'100'
AM
B
PM
B D
11.8 54.7
70'60'
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
12
CHAPTER IV – FORECASTED TRAFFIC
PART A – BACKGROUND TRAFFIC FORECASTING
To determine the background traffic growth rate to use when calculating the design year traffic
volumes, historic WisDOT AADT volumes from the year 1991 through the year 2023 were
collected along 20th Avenue and along Oakwood Road at the WisDOT count stations located
along the corridors in close proximity to the study area. Using this data, historical AADT trend
lines were developed to determine the expected annual growth of traffic that may occur along the
corridor between the present and design year 2036. Based on the traffic projections (1991 - 2023)
and assuming the historic trends will continue at a linear rate, traffic volumes along the 20th
Avenue and Oakwood Road corridors would be expected to increase at a rate of 2.0-percent per
year. Therefore, this growth rate was applied to the existing traffic volumes collected as part of
this study. The year 2026 background and year 2036 background traffic volumes, which account
for this yearly growth rate, are shown in Exhibits 4-1 & 4-2, respectively. The growth rate
calculations have been included in the Appendix of this study.
PART B – SITE TRAFFIC FORECASTING
To address any potential future traffic impacts along study area roadways and at the intersections
adjacent to the school, it is necessary to identify the hourly and daily volume of traffic generated
by the school expansion. The traffic volumes expected to be generated for the expanded student
population are based on the trip rates as published in the Institute of Transportation Engineer’s
(ITE) Trip Generation Manual, 11th Edition. Trip rates were calculated based on the peak hour of
generator instead of the peak hour of adjacent street traffic to account for the worst-case school
traffic conditions. In addition, the traffic volumes expected to be generated by the identified off-
site developments are based on the size and type of the proposed land uses and on fitted curve
equations as published in the ITE Trip Generation Manual, 11th Edition. Due to the land use
types assumed, no linked or pass-by trip reductions were included in the traffic assumptions.
B1. Trip Generation
On-Site Trip Generation
As shown in Exhibit 4-3A, under full build conditions, the proposed school expansion is
expected to generate 165 additional new trips (90 entering/75 exiting) during a typical weekday
morning arrival peak hour. During a typical weekday afternoon dismissal peak hour, the
proposed school expansion is expected to generate 70 additional new trips (30 entering/40
exiting). On a typical weekday, the proposed school expansion is expected to generate
approximately 220 additional new trips (110 entering/110 exiting) under full build conditions.
Off-Site Trip Generation
As shown in Exhibit 4-3B, under future year build conditions, the proposed Sawyer Creek
Crossing off-site development is expected to generate 85 new trips (20 entering/65 exiting)
during a typical weekday morning peak hour. During a typical weekday afternoon peak hour, the
proposed Sawyer Creek Crossing off-site development is expected to generate 110 new trips (70
entering/40 exiting). On a typical weekday, the proposed Sawyer Creek Crossing off-site
development is expected to generate approximately 1,410 new trips (705 entering/705 exiting)
under future year full build conditions.
As shown in Exhibit 4-3C, under future year build conditions, the potential southeast off-site
development is expected to generate 70 new trips (15 entering/55 exiting) during a typical
weekday morning peak hour. During a typical weekday afternoon peak hour, the potential
southeast off-site development is expected to generate 90 new trips (55 entering/35 exiting). On
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
13
a typical weekday, the potential southeast off-site development is expected to generate
approximately 1,100 new trips (550 entering/550 exiting) under future year full build conditions.
B2. Mode Split
Pedestrians and bicyclists are expected to continue to use their respective modes to access the
Carl Traeger Elementary/Middle School expansion site. However, to provide for a worst case
(highest traffic volume) scenario, it was assumed that the student population increase will access
the site via motor vehicle. In addition, all new trips to/from the identified off-site developments
were assumed to occur via motor vehicle.
B3. Determination of Linked and Pass-by Trip Traffic
Due to the land use types assumed for the on-site and off-site developments, no linked or pass-by
trip reductions were included in the traffic assumptions. A linked trip occurs when a patron of
one tenant visits another tenant prior to exiting the site (e.g., a retail patron visits a restaurant in a
mixed-use development prior to entering the roadway system). Pass-by trips occur when
motorists already on the roadway system stop at a development site prior to continuing on their
intended route (e.g., an existing motorist eastbound on 20th Avenue stops at the school to
continuing eastbound on 20th Avenue to their ultimate destination).
B4. Trip Distribution
The trip distribution for the school expansion and identified off-site developments, listed below,
and shown in table format in Exhibits 4-3A and 4-3B, and graphically on Exhibit 4-4, was
determined based on the existing traffic counts, the type of proposed land uses and the location
of existing populations within the study area. The trip distribution for the project is as follows:
• 15 percent to/from the west on 20th Avenue
• 40 percent to/from the east on 20th Avenue
• 30 percent to/from the north on Oakwood Road
• 15 percent to/from the south on Oakwood Road
B5. Trip Assignment
Trips expected to be generated by the on-site and off-site developments were assigned to the
study area intersections based on the trip distribution summarized in the previous section.
On-Site New Trips
New trips for the proposed school expansion were distributed to the study area intersections
under the two access scenarios previously described in Chapter II, Part A3.Site Plan and based
on the above trip distribution. The full build new trips were assigned to the study area as follows:
• On-Site (Scenario 1 – One Eastern Driveway) New Trips - Exhibit 4-7A
• On-Site (Scenario 2 – Two Eastern Driveways) New Trips - Exhibit 4-7B
In addition, under Scenario 2, with two one-way driveways east of the school, the existing traffic
patterns for the current student population are expected to change to access the new driveways. The
redistributed trips for the school site under this scenario are shown in Exhibit 4-7C.
Off-Site New Trips
The Sawyer Creek Crossing Residential off-site development new trips are shown in Exhibit 4-
10A.
The Southeast Residential off-site development new trips are shown in Exhibit 4-10B.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
14
PART C – BUILD AND TOTAL TRAFFIC
C1. Year 2026 Build Traffic
The Year 2026 background traffic volumes, Exhibit 4-1, were added to on-site (Scenario 1 – One
Eastern Driveway) new trips, illustrated in Exhibit 4-7A, to determine the Year 2026 Build
(Scenario 1 – One Eastern Driveway) traffic volumes (Exhibit 4-11A).
The Year 2026 background traffic volumes, Exhibit 4-1, were added to on-site (Scenario 2 – Two
Eastern Driveways) new trips, illustrated in Exhibit 4-7B, and the redistributed trips site (Scenario
2 – Two Eastern Driveways), illustrated in Exhibit 4-7C, to determine the Year 2026 Build
(Scenario 2 – Two Eastern Driveways) traffic volumes (Exhibit 4-11B).
C2. Year 2036 Build Traffic
The Year 2036 background traffic volumes, Exhibit 4-2, were added to on-site (Scenario 1 – One
Eastern Driveway) new trips, illustrated in Exhibit 4-7A, to determine the Year 2036 Build
(Scenario 1 – One Eastern Driveway) traffic volumes (Exhibit 4-13A).
The Year 2036 background traffic volumes, Exhibit 4-2, were added to on-site (Scenario 2 – Two
Eastern Driveways) new trips, illustrated in Exhibit 4-7B, and the redistributed trips site (Scenario
2 – Two Eastern Driveways), illustrated in Exhibit 4-7C, to determine the Year 2036 Build
(Scenario 2 – Two Eastern Driveways) traffic volumes (Exhibit 4-13B).
C3. Year 2036 Total Traffic
The Year 2036 build (Scenario 1 – One Eastern Driveway) traffic volumes, Exhibit 4-13A, were
added to the off-site (Sawyer Creek Crossing Residential) new trips, illustrated in Exhibit 4-10A,
and the off-site (Southeast Residential) new trips, illustrated in Exhibit 4-10B, to determine the
Year 2036 total (Scenario 1 – One Eastern Driveway) traffic volumes (Exhibit 4-16A).
The Year 2036 build (Scenario 2 – Two Eastern Driveways, One-Way Operation) traffic
volumes, Exhibit 4-13B, were added to the off-site (Sawyer Creek Crossing Residential) new
trips, illustrated in Exhibit 4-10A, and the off-site (Southeast Residential) new trips, illustrated in
Exhibit 4-10B, to determine the Year 2036 total (Scenario 2 – Two Eastern Driveways, One-Way
Operation) traffic volumes (Exhibit 4-16B).
N
NOT TO SCALE3415 ~ 5/7/25
E XH I B IT 4-1
YEA R 2026 B A C K G R O U ND T RA F F IC VO LU M E S
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
25
0
(
1
10
)
85
(
6
5
)
110
(
6
5
)
(90) 160
(200) 285
(10) 30
35 (130)
205 (195)
35 (25)
(
2
0
)
3
0
(1
4
5
)
4
0
(
7
0
)
2
0
485 (325)
(300) 475
Mid Block
Path
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
Sawyer Creek
Drive
(5) 15
(135) 235
195 (255)
55
(
2
5
)
-
(
-
)
24
5
(
1
3
0
)
280 (80)
200 (245)
5 ( - )
(
-
)
-
(
-
)
-
(
-
)
-
(140) 250
20th Avenue
Fox Tail Lane
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Wel
l
i
n
g
t
o
n
Dr
i
v
e
(10) 40
(170) 230
( - ) -
65 (20)
190 (250)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
- (5)
(5) -
( - ) 5
( - ) -
5 ( - )
- ( - )
5 (5)
5
(
5
)
45
(
3
0
)
5
(
5
)
(
-
)
-
(1
0
)
1
0
(
1
0
)
1
5
55
(
3
0
)
(
1
5
)
2
0
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
Woo
d
s
t
o
c
k
S
t
r
e
e
t
N
NOT TO SCALE3415 ~ 5/7/25
E XH I B IT 4-2
YEA R 2036 B A C K G R O U ND T RA F F IC VO LU M E S
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
30
5
(
1
3
5
)
10
5
(
8
0
)
13
5
(
8
0
)
(110) 200
(240) 350
(10) 35
45 (155)
255 (235)
45 (30)
(
2
5
)
3
5
(1
7
5
)
5
0
(
8
5
)
2
5
595 (395)
(360) 585
Mid Block
Path
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
Sawyer Creek
Drive
(5) 15
(195) 345
305 (325)
55
(
2
5
)
-
(
-
)
24
5
(
1
3
0
)
280 (80)
310 (315)
5 ( - )
(
-
)
-
(
-
)
-
(
-
)
-
(200) 360
20th Avenue
Fox Tail Lane
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Wel
l
i
n
g
t
o
n
Dr
i
v
e
(10) 40
(230) 340
( - ) -
65 (20)
300 (320)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
- (5)
(5) -
( - ) 5
( - ) -
5 ( - )
- ( - )
5 (5)
5
(
5
)
45
(
3
0
)
5
(
5
)
(
-
)
-
(1
0
)
1
0
(
1
0
)
1
5
55
(
3
0
)
(
1
5
)
2
0
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
Woo
d
s
t
o
c
k
S
t
r
e
e
t
N
NOT TO SCALE3415 ~ 5/7/25
E XH I B IT 4-3
O N & O F F-S I T E D E V E LO P ME NT
T R I P GENERAT IO N A N D DI S TR I B U T I O N TAB L E S
OSHKOSH, WIS CON SIN
I n Out Tota l In Out Tota l
110 20 20 40 10 15 25
(2.27)(54%)(46%)(0.75)(46%)(54%)(0.45)
110 70 55 125 20 25 45
(2.10)(55%)(45%)FCE (48%)(52%)(0.36)
220 90 75 165 30 40 70
TR I P D I S TR I BU TION (New T rips)
W est on 20t h Avenue 15%35 15 10 5 5
Eas t on 20t h Avenue 40%85 35 30 10 15
North on Oakwood Road 30%65 25 25 10 15
South on Oak wood Road 15%35 15 10 5 5
100%220 90 75 30 40
La nd Use
ITE
Code P ropose d S ize
W e e kda y
Da i l y
AM Pe a k
Middle Sc hool/Junior High Sc hool 522 50 S t udent s
50 S t udent s
PM P e a k
Element ary School 520
Exhibit 4-3A
On-S ite Trip Generation Table1
1 I TE Trip R ates (X.XX) and/o r Fitted Curve Eq ua tions (FCE) are from th e I TE Trip Generatio n Manual, 1 1th Editio n.
Tota l Ne w Tri ps
I n Out Tota l In Out Tota l
1,410 20 65 85 70 40 110
FCE (24%)(76%)FCE (63%)(37%)FCE
1,410 20 65 85 70 40 110
TR I P DIS TR I BU TI ON (New Trips)
W es t on 20th Avenue 15%210 5 10 10 5
Eas t on 20t h Avenue 40%565 10 25 30 15
Nort h on Oakwood Road 30%425 5 20 20 15
South on Oak wood Road 15%210 0 10 10 5
100%1410 20 65 70 40
Tota l Ne w Tri ps
1 I TE Trip Rates (X.XX) and/or Fitted C urve Equa tio ns (FCE) are fro m the I TE Trip Genera tio n Ma nual, 11th Edition .
Multifamily Hous ing (Low-Ris e) (Not Clos e
to Rail Transit )220 208 Units
Exhibit 4-3B
Off-Site (Saw yer C reek C rossing R esidential) Trip Generation Table1
La nd Use
ITE
Code P ropose d Size
W e e kda y
Da ily
AM P e a k PM Pe a k
I n Out Tota l In Out Tota l
1,100 15 55 70 55 35 90
FCE (24%)(76%)FCE (63%)(37%)FCE
1,100 15 55 70 55 35 90
TR I P DIS TR I BU TI ON (New Trips)
W es t on 20th Avenue 15%165 5 10 10 5
Eas t on 20t h Avenue 40%440 5 20 20 15
Nort h on Oakwood Road 30%330 5 15 15 10
South on Oak wood Road 15%165 0 10 10 5
100%1100 15 55 55 35
Tota l Ne w Tri ps
1 I TE Trip Rates (X.XX) and/or Fitted C urve Equa tio ns (FCE) are fro m the I TE Trip Genera tio n Ma nual, 11th Edition .
Multifamily Hous ing (Low-Ris e) (Not Clos e
to Rail Transit )220 160 Units
Exhibit 4-3C
Off-Site (S outheast Residen tial) Trip Generation Table1
La nd Use
ITE
Code P ropose d Size
W e e kda y
Da ily
AM P e a k PM Pe a k
N
NOT TO SCALE3415 ~ 5/7/25
E XH I B IT 4-4
T RI P D I S T R I BU T I O N DI A G R AM
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
40%
15%
Proposed Trip Distribution
LEGEND
XX%
15%
30%
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 4-7A
ON-S I T E N E W T R I P S
SCENARIO 1
OSHKOSH, WI S CON SIN
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
Oa
k
w
o
o
d
Ro
a
d
25
(
1
0
)
(15) 25
(15) 30
(5) 10
35 (10)
(
5
)
1
5
75 (25)
(35) 65
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
(5) 15
10 (5)
10
(
5
)
65
(
3
5
)
75 (25)
(5) 15
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(5) 15
10 (5)
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 4-7B
ON-S I T E N E W T R I P S
SCENARIO 2
OSHKOSH, WI S CON SIN
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
Oa
k
w
o
o
d
Ro
a
d
25
(
1
0
)
(15) 25
(15) 30
(5) 10
35 (10)
(
5
)
1
5
75 (25)
(5) 15
(35) 65
Wes
t
D
r
i
v
e
w
a
y
Ne
w
E
x
i
t
Dr
i
v
e
w
a
y
(5) 15
10 (5)
10
(
5
)
65
(
3
5
)
(5) 15
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(5) 15
10 (5)
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 4-7C
REDI S TR I B U T E D T R I P S
SCENARIO 2
OSHKOSH, WI S CON SIN
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
Oa
k
w
o
o
d
Ro
a
d
280 (80)
-280 (-80)
-280 (-80)
(10) 40
Wes
t
D
r
i
v
e
w
a
y
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(-10) -40
(10) 40
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
Ne
w
E
x
i
t
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 4-10A
O F F-S I T E N E W T R I P S
SAWYER CREEK CROSSING RESIDENTIAL
OSHKOSH, WI S CON SIN
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
Oa
k
w
o
o
d
Ro
a
d
5
(
2
0
)
(15) 20
(15) 25
(5) 10
10 (30)
(
1
0
)
-
15 (60)
(35) 55
YM
C
A
Dr
i
v
e
w
a
y
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
(35) 55
15 (60)
10
(
5
)
55
(
3
5
)
(10) 5
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
15 (60)
(35) 55
15 (60)
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 4-10B
O F F-S I T E N E W T R I P S
SOUTHEAST RESIDENTIAL
OSHKOSH, WI S CON SIN
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
Oa
k
w
o
o
d
Ro
a
d
5
(
1
5
)
(10) 15
(15) 20
(5) 10
5 (20)
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
10 (5)
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(10) 5
10 (5)
(10) 5
10 (5)
(10) 5
(
1
0
)
-
10 (5)
(10) 5
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
(
5
)
1
0
(3
0
)
4
5
10 (45)
(10) 5
20th Avenue
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
20th Avenue
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
EXH I B IT 4-11A
Y E A R 2026 B U I LD T RA F F IC VO LU M E S
SCENARIO 1
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
27
5
(
1
2
0
)
85
(
6
5
)
110
(
6
5
)
(105) 185
(215) 315
(15) 40
35 (130)
240 (205)
35 (25)
(
2
5
)
4
5
(1
4
5
)
4
0
(
7
0
)
2
0
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
(5) 15
(140) 250
205 (260)
65
(
3
0
)
-
(
-
)
31
0
(
1
6
5
)
355 (105)
200 (245)
5 ( - )
(
-
)
-
(
-
)
-
(
-
)
-
(145) 265
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
(15) 55
(170) 230
( - ) -
65 (20)
200 (255)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
560 (350)
(335) 540
YM
C
A
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
EXH I B IT 4-11B
Y E A R 2026 B U I LD T RA F F IC VO LU M E S
SCENARIO 2
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
27
5
(
1
2
0
)
85
(
6
5
)
110
(
6
5
)
(105) 185
(215) 315
(15) 40
35 (130)
240 (205)
35 (25)
(
2
5
)
4
5
(1
4
5
)
4
0
(
7
0
)
2
0
Wes
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
(5) 15
(140) 250
205 (260)
65
(
3
0
)
-
(
-
)
31
0
(
1
6
5
)
200 (245)
5 ( - )
(
-
)
-
(
-
)
-
(145) 265
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(185) 285
( - ) -
65 (20)
200 (255)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
(15) 55
(335) 540
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
355 (105)
205 (245)
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
Ne
w
E
x
i
t
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 4-13A
Y E A R 2036 B U I LD T RA F F IC VO LU M E S
SCENARIO 1
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
33
0
(
1
4
5
)
10
5
(
8
0
)
13
5
(
8
0
)
(125) 225
(255) 380
(15) 45
45 (155)
290 (245)
45 (30)
(
3
0
)
5
0
(1
7
5
)
5
0
(
8
5
)
2
5
670 (420)
(395) 650
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
(5) 15
(200) 360
315 (330)
65
(
3
0
)
-
(
-
)
31
0
(
1
6
5
)
355 (105)
310 (315)
5 ( - )
(
-
)
-
(
-
)
-
(
-
)
-
(205) 375
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(15) 55
(230) 340
( - ) -
65 (20)
310 (325)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 4-13B
Y E A R 2036 B U I LD T RA F F IC VO LU M E S
SCENARIO 2
OSHKOSH, WI S CON SIN
Oa
k
w
o
o
d
Ro
a
d
33
0
(
1
4
5
)
10
5
(
8
0
)
13
5
(
8
0
)
(125) 225
(255) 380
(15) 45
45 (155)
290 (245)
45 (30)
(
3
0
)
5
0
(1
7
5
)
5
0
(
8
5
)
2
5
Wes
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
(5) 15
(200) 360
315 (330)
65
(
3
0
)
-
(
-
)
31
0
(
1
6
5
)
310 (315)
5 ( - )
(
-
)
-
(
-
)
-
(205) 375
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
(245) 395
( - ) -
65 (20)
310 (325)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
(15) 55
(395) 650
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
355 (105)
315 (315)
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
YM
C
A
Dr
i
v
e
w
a
y
Ne
w
E
x
i
t
Dr
i
v
e
w
a
y
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 4-16A
Y E A R 2036 TOTA L T RA F F IC VO LU M E S
SCENARIO 1
OSHKOSH, WI S CON SIN
10
(
5
)
55
(
3
5
)
Oa
k
w
o
o
d
Ro
a
d
34
0
(
1
8
0
)
10
5
(
8
0
)
13
5
(
8
0
)
(150) 260
(285) 425
(25) 65
45 (155)
305 (295)
45 (30)
(
5
0
)
5
0
(1
7
5
)
5
0
(
8
5
)
2
5
695 (485)
(440) 710
YM
C
A
Dr
i
v
e
w
a
y
Wes
t
D
r
i
v
e
w
a
y
Ea
s
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
(5) 15
(245) 420
15 (60)
325 (335)
65
(
3
0
)
-
(
-
)
31
0
(
1
6
5
)
355 (105)
335 (380)
5 ( - )
(
-
)
-
(
-
)
-
(
-
)
-
(10) 5
(215) 380
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
(15) 55
(275) 400
( - ) -
65 (20)
335 (390)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 4-16B
Y E A R 2036 TOTA L T RA F F IC VO LU M E S
SCENARIO 2
OSHKOSH, WI S CON SIN
10
(
5
)
55
(
3
5
)
Oa
k
w
o
o
d
Ro
a
d
34
0
(
1
8
0
)
10
5
(
8
0
)
13
5
(
8
0
)
(150) 260
(285) 425
(25) 65
45 (155)
305 (295)
45 (30)
(
5
0
)
5
0
(1
7
5
)
5
0
(
8
5
)
2
5
YM
C
A
Dr
i
v
e
w
a
y
Wes
t
D
r
i
v
e
w
a
y
5
(
5
)
35
(
4
5
)
(5) 15
(245) 420
15 (60)
325 (335)
65
(
3
0
)
-
(
-
)
31
0
(
1
6
5
)
335 (380)
5 ( - )
(10) 5
(215) 380
20th Avenue
La
n
d
s
c
a
p
e
Dr
i
v
e
w
a
y
Of
f
-
S
i
t
e
Dr
i
v
e
w
a
y
(290) 455
( - ) -
65 (20)
335 (390)
XX
(XX)
–
AM Weekday Peak Hour (7:15 - 8:15 AM)
PM Weekday Peak Hour (2:45 - 3:45 PM)
Negligible Traffic Volumes (Fewer than 3 vph)
L EGEN D
(15) 55
(440) 710
Ne
w
E
n
t
r
a
n
c
e
Dr
i
v
e
w
a
y
355 (105)
340 (380)
(
-
)
-
(
-
)
-
Ne
w
E
x
i
t
Dr
i
v
e
w
a
y
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
15
CHAPTER V – TRAFFIC AND IMPROVEMENT ANALYSIS
PART A – SITE ACCESS
Two full access driveways are proposed along the east side of the school onto 20th Avenue for
parents and one existing full access driveway is proposed to remain along the west side of the
school onto 20th Avenue to accommodate the teacher parking lot.
Since operational issues have been identified at the existing east driveway, two access scenarios
were investigated as part of this study, noting that no changes are proposed for the existing west
driveway. The east driveway access scenarios investigated are as follows:
Scenario 1: One eastern access driveway - Under this scenario, the existing east access
drive is proposed to operate as a single access driveway with the potential to add
additional exiting turn lanes and an additional entrance lane at the current location and
potentially add traffic signal control to the driveway intersection.
Scenario 2: Two eastern access driveways - Under this scenario, the existing east access
drive would be replaced by two access driveways, with the driveways operating under
one-way operation. Specifically, the new eastern driveway would operate as a one-way
entrance driveway and the new middle driveway would operate as a one-way exit
driveway. The driveways would operate with two lanes each.
In addition to driveway access to the site, three pedestrian walkways are provided to the
residential neighborhoods located immediately north and east of the school site. Walkway
connections are provided along Sawyer Creek Drive/Wellington Drive, Fox Tail Lane, and
Woodstock Street.
PART B – CAPACITY LEVEL OF SERVICE ANALYSIS
B1. Year 2026 Build Traffic Operating Conditions – No Modifications
Exhibits 5-3A&B show the Year 2026 build traffic peak hour operating conditions at the study area
intersections under the two aforementioned access scenarios. The Year 2026 build traffic includes
only the proposed on-site school expansion student population estimates. The Year 2026 build
traffic analysis was conducted using existing intersection configurations and traffic control.
As shown in Exhibit 5-3A, all movements are expected to operate at LOS D or better conditions
under Scenario 1, except the following:
• The southbound movements at the 20th Avenue intersection with the east school driveway
which are expected to continue to operate at LOS F during the weekday morning peak
period.
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to continue to operate at LOS F during the weekday
morning peak period.
As shown in Exhibit 5-3B, all movements are expected to operate at LOS D or better conditions
under Scenario 2, except the following:
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to continue to operate at LOS F during the weekday
morning peak period.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
16
B2. Year 2036 Build Traffic Operating Conditions – No Modifications
Exhibits 5-5A&B show the Year 2036 build traffic peak hour operating conditions at the study area
intersections under the two aforementioned access scenarios. The Year 2036 build traffic includes
ten years of general background growth as well as the proposed on-site school expansion student
population estimates. The Year 2036 build traffic analysis was conducted using existing
intersection configurations and traffic control.
As shown in Exhibit 5-5A, all movements are expected to operate at LOS D or better conditions
under Scenario 1, except the following:
• The southbound movements at the 20th Avenue intersection with the east school driveway
which are expected to continue to operate at LOS F during the weekday morning peak
period.
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS F during the weekday morning and
afternoon peak periods.
• The northbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS E during the weekday morning peak
period.
As shown in Exhibit 5-5B, all movements are expected to operate at LOS D or better conditions
under Scenario 2, except the following:
• The southbound movements at the 20th Avenue intersection with the new school exit
driveway which are expected to operate at LOS F during the weekday morning peak
period.
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS F during the weekday morning and
afternoon peak periods.
• The northbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS E during the weekday morning peak
period.
B3. Year 2036 Total Traffic Operating Conditions – No Modifications
Exhibits 5-8A&B show the Year 2036 total traffic peak hour operating conditions at the study area
intersections under the two aforementioned access scenarios. The Year 2036 total traffic includes
the previously identified off-site developments as well as ten years of general background
growth and the proposed on-site school expansion student population estimates. The Year 2036
total traffic analysis was conducted using existing intersection configurations and traffic control.
As shown in Exhibit 5-8A, all movements are expected to operate at LOS D or better conditions
under Scenario 1, except the following:
• The southbound movements at the 20th Avenue intersection with the east school driveway
which are expected to continue to operate at LOS E/F during the weekday morning and
afternoon peak periods.
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS F during the weekday morning and
afternoon peak periods.
• The northbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS F during the weekday morning peak
period.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
17
As shown in Exhibit 5-8B, all movements are expected to operate at LOS D or better conditions
under Scenario 2, except the following:
• The southbound movements at the 20th Avenue intersection with the new school exit
driveway which are expected to operate at LOS F during the weekday morning peak
period.
• The southbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS F during the weekday morning and
afternoon peak periods.
• The northbound through/left-turn movements at the 20th Avenue intersection with
Oakwood Road which are expected to operate at LOS F during the weekday morning peak
period.
B4. Traffic Operating Conditions – With Modifications
Modifications to accommodate the build and total traffic volumes are summarized in Chapter VI
– Recommendations and Conclusion. The following outlines the location of the expected peak
hour operating conditions with modifications at the study area intersections. The analysis outputs
are included in the Appendix of this report.
• Exhibit 5-12A – Year 2026 (Scenario 1 – One Eastern Driveway) Build Traffic
Operations – With Modifications
• Exhibit 5-12B – Year 2026 (Scenario 2 – Two Eastern Driveways) Build Traffic
Operations – With Modifications
• Exhibit 5-14A – Year 2036 (Scenario 1 – One Eastern Driveway) Build Traffic
Operations – With Modifications
• Exhibit 5-14B – Year 2036 (Scenario 2 – Two Eastern Driveways) Build Traffic
Operations – With Modifications
• Exhibit 5-17A – Year 2036 Total (Scenario 1 – One Eastern Driveway) Traffic
Operations – With Modifications
• Exhibit 5-17B – Year 2036 Total (Scenario 2 – Two Eastern Driveways) Traffic
Operations – With Modifications
As shown, all movements are expected to operate desirably at LOS D or better conditions except
as follows:
• Year 2026 (Scenario 1 – One Eastern Driveway) Build Traffic: At the 20th Avenue
intersection with the east school driveway, the southbound left-turn movements are
expected to operate at LOS F during the weekday morning peak period under one-way stop
sign control. Traffic signal warrants are not expected to be met for about ten years. It is
recommended to monitor operations until signals are warranted.
• Year 2036 (Scenario 2 – Two Eastern Driveways) Build Traffic: At the 20th Avenue
intersection with the new school exit driveway, the southbound left-turn movements are
expected to operate at LOS F during the weekday morning peak period under one-way stop
sign control. Traffic signal warrants are expected to be met with background traffic and
school population growth. Therefore, traffic signals could be considered once actual
volumes reach the warrant thresholds at some point in the future. It is noted that the
warrant is just met under a ten-year traffic scenario. Assuming similar background traffic
growth along 20th Avenue as has occurred over the past 20 years, it is expected that
signals won’t be warranted for about ten years. It is recommended to monitor operations
until signals are warranted.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
18
• Year 2036 (Scenario 2 – Two Eastern Driveways) Total Traffic: At the 20th Avenue
intersection with the new school exit driveway, the southbound left-turn movements are
expected to operate at LOS F during the weekday morning peak period under one-way stop
sign control. Traffic signal warrants are expected to be met with background traffic
growth and additional development traffic. Therefore, traffic signals could be considered
once actual volumes reach the warrant thresholds at some point in the future. It is noted
that the warrant is just met under a ten-year traffic scenario. Assuming similar
background along 20th Avenue as has occurred over the past 20 years, it is expected that
signals won’t be warranted for about ten years. It is recommended to monitor operations
until signals are warranted.
PART C – QUEUEING ANALYSIS
To estimate storage length requirements for turn bays at the study area intersections with
modifications, a queuing analysis has been conducted. Note that the 95th percentile probable
queue lengths were used for the design of turn bay storage at traffic signal and stop sign-
controlled intersections. The following is a list of where the results of the queuing analysis can
be found. Only the build scenarios with identified modifications are listed.
• Year 2026 (Scenario 1 – One Eastern Driveway) Build Traffic – Exhibit 5-12A
• Year 2026 (Scenario 2 – Two Eastern Driveways) Build Traffic – Exhibit 5-12B
• Year 2036 (Scenario 1 – One Eastern Driveway) Build Traffic – Exhibit 5-14A
• Year 2036 (Scenario 2 – Two Eastern Driveways) Build Traffic – Exhibit 5-14B
• Year 2036 (Scenario 1 – One Eastern Driveway) Total Traffic – Exhibit 5-17A
• Year 2036 (Scenario 2 – Two Eastern Driveways) Total Traffic – Exhibit 5-17B
PART D – PEDESTRIAN, BICYCLE, BUS SERVICE AND MULTI-USE TRAIL
CONSIDERATIONS
D1. Pedestrian Enhancements
As previously described, sidewalks are currently provided along the north side of 20th Avenue,
throughout the project limits and along the south side of the street, from the Oshkosh Community
YMCA driveway up to the 20th Avenue crosswalk located immediately west of the west school
driveway. The crosswalk provides a marked and signed crossing location for students to traverse
20th Avenue to get to the YMCA for after school activities. A crossing guard is present for each
of the crossing times (two separate time periods) during the weekday afternoon discharge peak
periods noting that a crossing guard joins the group of students as they walk from the school for
the elementary and middle school discharge peak periods. Providing a higher level of safety at
this crosswalk location was considered as part of this study. A Rectangular Rapid Flashing
Beacon (RRFB) was considered to provide for a controlled crossing location.
The MUTCD does not include a warrant for the installation of a RRFB. However, WisDOT and
many communities allow the installation of a RRFB at pedestrian locations where a marked
crossing exists, and higher volumes of pedestrians are present. There are also studies from other
states that utilize thresholds of 300 vehicles and 20 pedestrians present at the crossing during any
hour or more than one pedestrian being struck over a ten-year period.
The vehicular and pedestrian volume thresholds along the corridor are met along 20th Avenue at
this crosswalk location. Therefore, since the 20th Avenue crossing meets the vehicular and
pedestrian volume thresholds and is allowed by WisDOT and many local communities as an
effective pedestrian crossing system, the installation of an RRFB could be considered a good
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
19
application for this location along the 20th Avenue corridor to provide for an extra level of safety
for the crossing guards helping the students cross.
Three pedestrian walkways are provided to the residential neighborhoods located immediately
north and east of the school site. Walkway connections are provided along Sawyer Creek
Drive/Wellington Drive, Fox Tail Lane, and Woodstock Street. Pedestrian counts at the three
locations, as shown in Exhibit 3-2 show that the highest pedestrian counts were recorded at the
mid-block crossing along Woodstock Street, whereas the Sawyer Creek Drive and Fox Tail Lane
locations had very few pedestrians. Images taken from the video counts conducted as part of the
data collection at these three locations are provided in the appendix of this report to show the
existing conditions at different times. For the Sawyer Creek Drive and Fox Tail Lane locations,
images are provided showing the highest volume times. At the Woodstock Street location,
images are provided for several different times during the weekday morning and afternoon peaks
to show the differences over the duration of the highest pedestrian volume times. In most cases,
parents were parking near (or on the same side of the road) as the walkways so only a small
number of students were required to cross the street. However, at the location of Woodstock
Street, parents parked on both sides of the street with students crossing the street wherever their
vehicle was parked. Based on observations as part of the data collection completed as part of this
study, and because the traffic at all of the locations is local school traffic, all locations are
currently operating safely, and no enhanced pedestrian treatments are recommended. However,
consideration could be given to providing additional sidewalk connections between the street and
the sidewalk (within the terrace area) along Woodstock Street, near the Woodstock Street
location to provide for less distance that students need to spend on the street between driveways
before accessing the sidewalks. Consideration could also be given to restricting parking within
25 feet of the crosswalk on the east side of the street, similar to the existing restrictions on the
west side of the street.
It is noted that with improved operations at the school access driveways expected due to the
modifications recommended as part of this study, it is expected that in lieu of the neighborhood
walkway connection drop-off/pick-up locations, more parents may utilize the school driveways
to drop off and pick up their students at the school.
D2. Internal Site Operations
The parent parking lots and drop-off/pick-up operations for the two schools are located on the
east side of the school. Parents currently use two areas for transfer of the students. Most parents
utilize the drop-off/pick-up aisles adjacent to the school doors; however, a significant number of
parents also drop off and pick up their young students by parking in the parking lot and walking
to the school doors. After drop off or pick up, the vehicles head back to the south where they
enter the exit lane of the driveway onto 20th Avenue noting that once the driveway exiting
vehicle line queues back up past the southern end of the parking lot, the vehicles from the drop-
off/pick-up lane and the vehicles from the parking lot take turns as they merge into a single exit
queue as they head towards 20th Avenue.
It was observed that the queues trying to exit the site backed up past this merge point starting at
about 7:34 am and lasted about 13 to 14 minutes, up to about 7:48 am, during the typical
weekday morning peak period. During the typical weekday evening peak period, exiting vehicles
started to back up past this merge point starting at about 2:50 pm and lasting about 5 minutes, up
to 2:55 pm. Images taken from the video counts conducted as part of the data collection at the
south end of the parking lot merge point are provided in the appendix of this report to show
specific points in time under the existing conditions during both the weekday morning and
afternoon peak periods.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
20
During the typical weekday discharge peak period, vehicles arrived early to pick up their
students at the end of the day and queued up along the pick-up aisle adjacent to the school. This
line of vehicles backed up past the southern entrance of the parking lot onto the entrance
driveway towards 20th Avenue starting around 2:34 pm with the queue reaching 20th Avenue at
about 2:40 pm. Due to the long queue, some vehicles were forced to park on 20th Avenue beyond
2:40 pm for about 5 minutes, with the driveway queue south of the parking lot existing within the
limits of the entrance driveway until about 2:46 pm. It is also noted that while the entrance
queue was backed up from the south end of the parking lot towards 20th Avenue, some vehicles
drove in the exit lanes of the driveway to bypass the queued vehicles to access the parking lot to
the east. Even though this is not a safe condition or operation, it did function without conflicts
since no vehicles were exiting the site as they were waiting in the queue to pick up their students.
Images taken from the video counts conducted as part of the data collection at the south end of
the driveway at 20th Avenue are provided in the appendix of this report to show this existing
condition.
The proposed two driveway scenario (Access Scenario 2), with a new dedicated entrance
driveway and a new dedicated exit driveway is proposed to separate the inbound and outbound
operations along with increased capacity providing for two drive lanes in each driveway. For
entering vehicles, this allows vehicles wanting to park in the parking lots a lane to bypass the
vehicles queued up waiting to enter or exit the drop-off/pick-up aisles. For the exiting vehicles,
the two lanes allow the vehicles wanting to make left-turn and right-turn movements at 20th
Avenue to stack within their respective exit lanes, which in turn allows for additional stacking
distance within the overall site.
Since queueing during the typical weekday afternoon pick-up queues up to and onto 20th
Avenue, the additional stacking distance for the inbound lanes as well as the outbound lanes
should limit any queuing back onto 20th Avenue.
In addition, the proposed design includes a drive aisle at the southern end of the parking lot to
allow exiting vehicles to traverse adjacent to and through the entering lanes to access the exiting
lanes, without having to drive through the drop-off/pick-up aisles. Based on observations of the
existing operations, this “short cut” is expected to operate well as there appear to be many gaps
in inbound traffic to allow for vehicles exiting the parking lots to pass through the entering lanes
to access the exiting lanes.
D3. Bus Operations
All buses currently utilize the west driveway to access the site with drop-off and pick-up
operations on the west side of the school. During the morning peak period, about 15 school
buses, plus two city buses (with 15-minute headways), currently provide service for the schools.
Most buses entered and exited the site to/from the east with a handful to/from the west. Because
of the staggered arrival during the morning peak period, drop-off operations appeared to operate
efficiently and safely. During the typical weekday afternoon discharge peak hour, about seven
buses and one city bus provide service for each of the two school dismissal time periods.
Because of the staggered afternoon bell schedules during the afternoon peak period, bus
operations appeared to operate efficiently and safely.
PART E – SPEED CONSIDERATIONS/SIGHT DISTANCE
The party responsible for designing the intersections will be responsible for cross-checking,
verifying, and designing for all applicable sight distances. Site observation indicates that
intersection sight distance (ISD) is expected to be met at the two new eastern school driveways.
ISD must be double checked during the permit application stage of development.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
21
PART F – TRAFFIC CONTROL NEEDS
Modifications to the existing traffic control are recommended at several of the study area
intersections as follows.
As recommended to accommodate Year 2026 build traffic (Scenario 1):
20th Avenue & East School Driveway (Scenario 1)
• 26 Build Traffic:
o Reconstruct the north approach to align with the private driveway located
immediately west of the existing school driveway.
o Construct a dedicated left-turn lane and a dedicated right-turn lane exiting
the site (two exit lanes) and two inbound lanes on the new north approach.
o Provide a fully actuated traffic signal with eastbound protected/permitted
left-turn phasing.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
As recommended to accommodate Year 2026 build traffic (Scenario 2 – optional):
20th Avenue & New Exiting School Driveway (Scenario 2 - optional)
o Construct a new north approach with a dedicated left-turn lane and a dedicated
right-turn lane.
o Align the new driveway approach directly opposite the landscape company
driveway located on the south side of 20th Avenue.
o Provide stop sign control on the north approach.
o Provide DO NOT ENTER signs facing 20th Avenue.
o Provide a fully actuated traffic signal with eastbound protected/permitted left-turn
phasing when traffic volume thresholds reach a level where signal warrants are
met.
20th Avenue & New Entering School Driveway (Scenario 2 - optional)
o Construct a new north approach with two entering drive aisles into the site as
shown on the site plan.
PART G – TRAFFIC SIGNAL WARRANT ANALYSIS
Warrants should be viewed as guidelines to help decide whether traffic signal controls may be
installed. Meeting warrants does not translate to a legal requirement for their installation.
Completed warrant analysis worksheets are included in the Appendix of this report.
Development-related traffic was included based on the WisDOT hourly distributions of traffic
for the various land use types for each included development area. Warrants 2 and 3 were
evaluated as a part of this study under urban thresholds.
G1. Scenario 1 – One Eastern Driveway
Traffic signal warrants were investigated at the 20th Avenue intersection with the east school
driveway under Year 2025 Existing, Year 2026 Build (Scenario 1 – One Eastern Driveway) and
Year 2036 Build (Scenario 1 – One Eastern Driveway) traffic volumes in accordance with the
MUTCD, 11th Edition. 20th Avenue was analyzed as a major street with two lanes on each
approach. The east school driveway was analyzed as a minor street with one lane. Since a right-
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
22
turn lane is proposed on the minor street approach, none of the minor street right-turn
movements were included in the warrant analysis. The posted speed limit is 30 mph along 20th
Avenue therefore urban warrant thresholds were utilized.
The warrant analysis was conducted based on the 5-hour turning movement counts collected
along 20th Avenue as part of this study and forecasted to Year 2026 and Year 2036 based on a
2.0% east/west annual linear growth, as reflected in the growth rate calculations provided in the
appendix of this report.
Based on the warrant analysis, Warrant 3, Peak Hour Volume is not expected to be met at the
20th Avenue intersection under Year 2025 Existing or Year 2026 Build (Scenario 1 – One
Eastern Driveway) traffic volume conditions. However, under Year 2036 Build (Scenario 1 –
One Eastern Driveway) traffic volume conditions, which include ten years of general
background growth as well as the proposed on-site school expansion, the traffic signal warrant is
expected to be met. Therefore, traffic signals should be considered once actual volumes reach the
warrant thresholds at some point in the future. It is noted that assuming similar background
traffic growth along 20th Avenue as has occurred over the past 20 years, the warrant is expected
to be met in about five years without the known developments moving forward. If the two
identified developments move forward, the warrant is expected to be met once both are fully
built out without any background growth. In addition, if only the Sawyer Creek Residential
development moves forward, the warrant would be expected to be met in as little as two and half
years.
G2. Scenario 2 – Two Eastern Driveways with one-way operation
Traffic signal warrants were also investigated at the 20th Avenue intersection with the new
eastern school driveway under Year 2036 Build (Scenario 2 – Two Eastern Driveways) traffic
volumes in accordance with the MUTCD, 11th Edition. 20th Avenue was analyzed as a major
street with two lanes on each approach. The new eastern school driveway was analyzed as a
minor street with one lane. Since a right-turn lane is proposed on the minor street approach, none
of the minor street right-turn movements were included in the warrant analysis. The posted speed
limit is 30 mph along 20th Avenue therefore urban warrant thresholds were utilized.
The warrant analysis was conducted based on the 5-hour turning movement counts collected at
along 20th Avenue as part of this study and forecasted to Year 2036 based on a 2.0% east/west
annual linear growth, as reflected in the growth rate calculations provided in the appendix of this
report.
Similar to Scenario 1, based on the warrant analysis, Warrant 3, Peak Hour Volume is expected
to be met at the 20th Avenue intersection under Year 2036 Build (Scenario 2 – Two Eastern
Driveways) traffic volume conditions. Therefore, traffic signals should be considered once actual
volumes reach the warrant thresholds at some point in the future. It is noted that assuming
similar background traffic growth along 20th Avenue as has occurred over the past 20 years, the
warrant is expected to be met in about five years without the known developments moving
forward. If the two identified developments move forward, the warrant is expected to be met
once both are fully built out without any background growth. In addition, if only the Sawyer
Creek Residential development moves forward, the warrant would be expected to be met in as
little as two and half years.
All data pertaining to this signal warrant analysis are included in the Appendix of this report.
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 5-3A
Y E A R 2026 B U I L D T RAF F I C O P E R ATI O N S
WITHOUT MODIFICATIONS
SCENARIO 1
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
v/c --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -B A -B B B D
Delay 15.2 -11.6 9.9 -10.0 10.0 12.0 53.2
v/c --------
Queue 110'-110'55'-55'25'95'
LOS B -B B -B A A B
Delay 13.3 -10.6 10.5 -10.7 9.4 9.7 16.3
Queue 50'-50'50'-50'25'35'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-3A
Year 2026 Build (Scenario 1) Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-B
One-Way Stop Control
8.0 *-13.9
25'*-25'
25'*-25'
PM
A *-B
8.2 *-13.9
AM
A *-F
Lanes->2 2 -1
One-Way Stop Control -*-1.43
9.7 *-240.1
Node 200: 20th Avenue &
East Driveway
25'*-630'
25'*-75'
PM
A *-C
8.5 *-20.1
F
25.1 283.0
Lanes->1 1
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control -1.52
50'115'
AM
C
PM
B D
12.4 54.8
75'60'
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 5-3B
Y E A R 2026 B U I L D T RAF F I C O P E R ATI O N S
WITHOUT MODIFICATIONS
SCENARIO 2
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -B A -B B B D
Delay 15.2 -11.6 9.9 -10.0 10.0 12.0 53.2
v/c --------
Queue 110'-110'55'-55'25'95'
LOS B -B B -B A A B
Delay 13.3 -10.6 10.5 -10.7 9.4 9.7 16.3
Queue 50'-50'50'-50'25'35'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
25'*--
8.5 *--
A *--
2 2 --
A *--
9.7 *--
PM
One-Way Stop Control 25'*--
AM
Node 300: 20th Avenue &
New Second East Driveway
Lanes->
PM
B D
12.4 54.8
75'60'
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control -1.52
50'115'
AM
C F
25.1 283.0
Lanes->1 1
**-60'
PM
**-C
**-16.2
One-Way Stop Control
**-32.9
Node 200: 20th Avenue &
East Driveway
**-210'
AM
**-D
Lanes->2 2 -1
25'*-25'
PM
A *-B
8.2 *-13.9
One-Way Stop Control
8.0 *-13.9
25'*-25'
AM
A *-B
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-3B
Year 2026 Build (Scenario 2) Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 5-5A
Y E A R 2036 B U I L D T RAF F I C O P E R ATI O N S
WITHOUT MODIFICATIONS
SCENARIO 1
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
v/c --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -B A -A B B F
Delay 17.3 -10.9 9.1 -8.9 14.0 18.0 117.0
v/c --------
Queue 140'-140'65'-65'25'145'
LOS B -B B -B A A C
Delay 15.2 -11.0 10.9 -11.1 9.5 9.9 24.1
Traffic Signal Control v/c --------
Queue 80'-80'80'-80'25'40'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-5A
Year 2036 Build (Scenario 1) Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.4 *-17.7
25'*-25'
25'*-25'
PM
A *-C
8.4 *-16.2
AM
B *-F
Lanes->2 2 -1
One-Way Stop Control -*-1.96
10.3 *-477.4
Node 200: 20th Avenue &
East Driveway
25'*-865'
25'*-105'
PM
A *-D
8.8 *-27.4
F
62.5 681.1
Lanes->1 1
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control 0.87 2.40
75'#205'
AM
E
PM
B F
14.4 112.4
-1.09
85'75'
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 5-5B
Y E A R 2036 B U I L D T RAF F I C O P E R ATI O N S
WITHOUT MODIFICATIONS
SCENARIO 2
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
v/c --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -B A -A B B F
Delay 17.3 -10.9 9.1 -8.9 14.0 18.0 117.0
v/c --------
Queue 140'-140'65'-65'25'145'
LOS B -B B -B A A C
Delay 15.2 -11.0 10.9 -11.1 9.5 9.9 24.1
Traffic Signal Control v/c --------
Queue 80'-80'80'-80'25'40'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-5B
Year 2036 Build (Scenario 2) Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.4 *-17.7
25'*-25'
25'*-25'
PM
A *-C
8.4 *-16.2
AM
**-F
Lanes->2 2 -1
One-Way Stop Control -*-1.09
**-99.3
Node 200: 20th Avenue &
East Driveway
**-405'
**-80'
PM
**-C
**-20.6
AM
B *--
Lanes->2 2 --
One-Way Stop Control
10.4 *--
Node 300: 20th Avenue &
New Second East Driveway
25'*--
25'*--
PM
A *--
8.8 *--
F
62.5 681.1
Lanes->1 1
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control 0.87 2.40
75'#205'
AM
E
PM
B F
14.4 112.4
-1.09
85'75'
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 5-8A
Y E A R 2036 TO TA L T RAF F I C O P E R AT I O N S
WITHOUT MODIFICATIONS
SCENARIO 1
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
v/c --
Queue --
LOS --
Delay --
One-Way Stop Control v/c --
Queue --
1 -1 1 -1 1 1
LOS C -B A -A B C F
Delay 20.8 -11.7 9.0 -8.2 16.6 22.3 141.8
v/c --------
Queue 180'-180'70'-70'25'150'
LOS B -B B -B B B C
Delay 16.3 -10.8 10.4 -10.6 11.1 11.9 31.7
Traffic Signal Control v/c --------
Queue 95'-95'90'-90'30'60'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-8A
Year 2036 Total (Scenario 1) Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.5 *-19.4
25'*-25'
25'*-25'
PM
A *-C
8.7 *-18.9
AM
B *-F
Lanes->2 2 -1
One-Way Stop Control -*-2.17
10.5 *-577.1
Node 200: 20th Avenue &
East Driveway
25'*-935'
*-0.74
25'*-140'
PM
A *-E
9.1 *-39.4
-
F
89.4 889.1
Lanes->1 1
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control 0.95 2.85
75'#205'
AM
F
PM
D F
50.4 143.3
-1.17
110'85'
N
NOT TO SCALE3415 ~ 5/7/25
EXHI B IT 5-8B
Y E A R 2036 TO TA L T RAF F I C O P E R AT I O N S
WITHOUT MODIFICATIONS
SCENARIO 2
OSHKOSH, WI S CON SIN
I/S
LOS &
????????????Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
v/c --
Queue --
LOS --
Delay --
Queue --
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS C -B A -A B C F
Delay 20.8 -11.7 9.0 -8.2 16.6 22.3 141.8
v/c --------
Queue 180'-180'70'-70'25'150'
LOS B -B B -B B B C
Delay 16.3 -10.8 10.4 -10.6 11.1 11.9 31.7
Traffic Signal Control v/c --------
Queue 95'-95'90'-90'30'60'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-8B
Year 2036 Total (Scenario 2) Traffic Peak Hour Operating Conditions
With Existing Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.5 *-19.4
25'*-25'
25'*-25'
PM
A *-C
8.7 *-18.9
AM
**-F
Lanes->2 2 -1
One-Way Stop Control **-1.20
**-141.1
Node 200: 20th Avenue &
East Driveway
**-485'
**-105'
PM
**-D
**-27.2
AM
B *--
Lanes->2 2 --
One-Way Stop Control
10.6 *--
Node 300: 20th Avenue &
New Second East Driveway
25'*--
25'*--
PM
A *--
9.1 *--
F
89.4 889.1
Lanes->1 1
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control 0.95 2.85
75'#205'
AM
F
PM
D F
50.4 143.3
-1.17
110'85'
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 5-12A
Y E A R 2026 B U I L D T RAF F I C O P E R AT I O N S
WITH MODIFICATIONS
SCENARIO 1
OSHKOSH, WI S CON SIN
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--1 -1
LOS --F -B
Delay --191.4 -11.5
v/c *-1.30 --
Queue --485'-35'
LOS --C -A
Delay --19.6 -9.9
Queue --65'-25'
1 -1 1 -1 1 1
LOS B -A A -A B B B
Delay 10.2 -8.1 6.9 -7.0 18.3 13.2 10.5
Queue 130'-130'65'-65'35'70'
LOS A -A A -A B B A
Delay 7.3 -6.2 6.2 -6.3 14.4 16.4 9.3
Queue 55'-55'55'-55'25'35'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
150'35'
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-12A
Year 2026 Build (Scenario 1) Traffic Peak Hour Operating Conditions
With Modified Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-B
One-Way Stop Control
8.0 *-13.9
25'*-25'
25'*-25'
PM
A *-B
8.2 *-13.9
AM
A *-
Lanes->2 2 -
One-Way Stop Control -*-
9.7 *-
Node 200: 20th Avenue &
East Driveway
14'*-
B
15.3
25'*-
PM
A *-
8.5 *-
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control
AM
Lanes->1
B
11.1
1
PM
B
13.8
80'
B
13.1
60'
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 5-12B
Y E A R 2026 B U I L D T RAF F I C O P E R AT I O N S
WITH MODIFICATIONS
SCENARIO 2
OSHKOSH, WI S CON SIN
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--1 -1
LOS --D -A
Delay --27.0 -9.4
Queue --150'-25'
LOS --C -A
Delay --15.9 -9.4
Queue --50'-25'
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -A A -A B B B
Delay 10.2 -8.1 6.9 -7.0 18.3 13.2 10.5
Queue 130'-130'65'-65'35'70'
LOS A -A A -A B B A
Delay 7.3 -6.2 6.2 -6.3 14.4 16.4 9.3
Queue 55'-55'55'-55'25'35'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-12B
Year 2026 Build (Scenario 2) Traffic Peak Hour Operating Conditions
With Modified Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-B
One-Way Stop Control
8.0 *-13.9
25'*-25'
25'*-25'
PM
A *-B
8.2 *-13.9
AM
**-
Lanes->2 2 -
One-Way Stop Control
**-
Node 200: 20th Avenue &
East Driveway
**-
**-
PM
**-
**-
AM
A *--
Lanes->2 2 --
One-Way Stop Control
9.7 *--
Node 300: 20th Avenue &
New Second East Driveway
25'*--
25'*--
PM
A *--
8.5 *--
AM
Lanes->
Node 400: 20th Avenue &
Oakwood Road1
1 1
B B
11.1 15.3
35'150'Traffic Signal Control
PM
B B
13.8 13.1
80'60'
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 5-14A
Y E A R 2036 B U I L D T RAF F I C O P E R AT I O N S
WITH MODIFICATIONS
SCENARIO 1
OSHKOSH, WI S CON SIN
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--1 -1
LOS --B -B A
Delay --15.8 -11.1 9.4
Queue --170'-40'
LOS --B -B A
Delay --13.3 -11.4 7.0
Queue --65'-25'
1 -1 1 -1 1 1
LOS B -B A -A C B B
Delay 18.3 -11.1 9.2 -9.0 26.8 17.9 15.4
Queue 165'-165'75'-75'45'90'
LOS B -A A -A B B B
Delay 10.1 -7.6 7.5 -7.7 14.4 17.0 10.3
Queue 75'-75'75'-75'25'45'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
45'205'
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-14A
Year 2036 Build (Scenario 1) Traffic Peak Hour Operating Conditions
With Modified Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.4 *-17.7
25'*-25'
25'*-25'
PM
A *-C
8.4 *-16.2
AM
A A -
Lanes->2 2 -
Traffic Signal Control
6.7 8.3 -
Node 200: 20th Avenue &
East Driveway
85'150'-
14.4 22.8
30'50'-
PM
A A -
5.0 5.5 -
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control
AM
Lanes->1 1
B C
PM
B B
13.4 12.7
100'75'
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 5-14B
Y E A R 2036 B U I L D T RAF F I C O P E R AT I O N S
WITH MODIFICATIONS
SCENARIO 2
OSHKOSH, WI S CON SIN
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--1 -1
LOS --B -B A
Delay --15.7 -11.1 9.2
Queue --120'-30'
LOS --B -B A
Delay --13.3 -11.4 7.1
Queue --65'-25'
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS B -B A -A C B B
Delay 18.3 -11.1 9.2 -9.0 26.8 17.9 15.4
Queue 165'-165'75'-75'45'90'
LOS B -A A -A B B B
Delay 10.1 -7.6 7.5 -7.7 14.4 17.0 10.3
Queue 75'-75'75'-75'25'45'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--1 -1
LOS --F -B
Delay --73.7 -10.0
v/c --0.99 --
Queue --300'-25'
LOS --C -A
Delay --20.3 -9.7
Queue --65'-25'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-14B
Year 2036 Build (Scenario 2) Traffic Peak Hour Operating Conditions
With Modified Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.4 *-17.7
25'*-25'
25'*-25'
PM
A *-C
8.4 *-16.2
AM
A A -
Lanes->2 2 -
Traffic Signal Control
6.3 6.0 -
Node 200: 20th Avenue &
East Driveway
70'55'-
30'40'-
PM
A A -
4.9 5.0 -
AM
B *--
Lanes->2 2 --
One-Way Stop Control
10.4 *--
Node 300: 20th Avenue &
New Second East Driveway
25'*--
25'*--
PM
A *--
8.8 *--
AM
Lanes->
Node 400: 20th Avenue &
Oakwood Road1
1 1
B C
14.4 22.8
45'205'Traffic Signal Control
PM
B B
13.4 12.7
100'75'
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound Southbound
Node 200: 20th Avenue &
East Driveway
Lanes->2 2 -
AM
**-
**-
One-Way Stop Control -*-
**-
PM
**-
**-
**-
With Modified Geometrics and Traffic Control - One-way Stop Control at East Driveway
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 5-17A
Y E A R 2036 TO TA L T RAF F I C O P E R AT I O N S
WITH MODIFICATIONS
SCENARIO 1
OSHKOSH, WI S CON SIN
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--1 -1
LOS --B -B A
Delay --15.8 -11.1 9.3
Queue --175'-40'
LOS --B -B A
Delay --13.3 -11.4 7.0
Queue --65'-25'
1 -1 1 -1 1 1
LOS C -B B -A C C B
Delay 24.5 -13.2 10.0 -9.0 32.6 21.3 19.2
Queue 195'-195'75'-75'45'95'
LOS B -A A -A B B B
Delay 11.7 -8.0 7.7 -7.9 15.5 17.1 10.6
Queue 95'-95'90'-90'35'50'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
50'#245'
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-17A
Year 2036 Total (Scenario 1) Traffic Peak Hour Operating Conditions
With Modified Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.5 *-19.4
25'*-25'
25'*-25'
PM
A *-C
8.7 *-18.9
AM
A A -
Lanes->2 2 -
Traffic Signal Control
6.9 8.3 -
Node 200: 20th Avenue &
East Driveway
100'150'-
17.1 31.7
35'60'-
PM
A A -
5.1 5.7 -
Node 400: 20th Avenue &
Oakwood Road1
Traffic Signal Control
AM
Lanes->1 1
B C
PM
B B
13.4 13.1
115'100'
N
NOT TO SCALE3415 ~ 5/7/25
E X HI B I T 5-17B
Y E A R 2036 TO TA L T RAF F I C O P E R AT I O N S
WITH MODIFICATIONS
SCENARIO 2
OSHKOSH, WI S CON SIN
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
--1 -1
LOS --B -B A
Delay --15.7 -11.1 9.1
Queue --120'-30'
LOS --B -B A
Delay --13.3 -11.4 6.9
Queue --65'-25'
--
LOS --
Delay --
Queue --
LOS --
Delay --
Queue --
1 -1 1 -1 1 1
LOS C -B B -A C C B
Delay 24.5 -13.2 10.0 -9.0 32.6 21.3 19.2
Queue 195'-195'75'-75'45'95'
LOS B -A A -A B B B
Delay 11.7 -8.0 7.7 -7.9 15.5 17.1 10.6
Queue 95'-95'90'-90'35'50'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
1 EB/WB lanes consist of a single shared left/through lane and a single shared right/through lane
I/S
LOS &
↗→↘↙←↖↖↑↗↘↓↙Delay
--1 -1
LOS --F -B
Delay --108.5 -10.1
v/c --1.09 --
Queue --365'-25'
LOS --D -B
Delay --26.3 -10.1
Queue --85'-25'
(-) indicates a movement that is prohibited or does not exist; (*) indicates a freeflow movement.
Delay is reported in seconds. Queue is the maximum of the 50th & 95th percentile queue, measured in feet.
Southbound
Node 100: 20th Avenue &
West Driveway
Lanes->2 2 -1
Exhibit 5-17B
Year 2036 Total (Scenario 2) Traffic Peak Hour Operating Conditions
With Modified Geometrics and Traffic Control
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound
AM
A *-C
One-Way Stop Control
8.5 *-19.4
25'*-25'
25'*-25'
PM
A *-C
8.7 *-18.9
AM
A A -
Lanes->2 2 -
Traffic Signal Control
6.5 6.1 -
Node 200: 20th Avenue &
East Driveway
85'60'-
35'45'-
PM
A A -
5.0 5.2 -
AM
B *--
Lanes->2 2 --
One-Way Stop Control
10.6 *--
Node 300: 20th Avenue &
New Second East Driveway
25'*--
25'*--
PM
A *--
9.1 *--
AM
Lanes->
Node 400: 20th Avenue &
Oakwood Road1
1 1
B C
17.1 31.7
50'#245'Traffic Signal Control
PM
B B
13.4 13.1
115'100'
Intersection
Peak
Hour Metric
Level of Service (LOS) per Movement by Approach
Eastbound Westbound Northbound Southbound
Node 200: 20th Avenue &
East Driveway
Lanes->2 2 -
AM
**-
**-
One-Way Stop Control -*-
**-
PM
**-
**-
**-
With Modified Geometrics and Traffic Control - One-way Stop Control at East Driveway
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
23
CHAPTER VI – RECOMMENDATIONS AND CONCLUSION
PART A – RECOMMENDATIONS
The study area intersections were analyzed based on the procedures set forth in the Highway
Capacity Manual (HCM) 7th Edition. Intersection operation is defined by “level of service.”
Level of Service (LOS) is a quantitative measure that refers to the overall quality of flow at an
intersection ranging from very good, represented by LOS ‘A,’ to very poor, represented by LOS
‘F.’ For the purpose of this study, LOS D or better was used to define acceptable peak hour
operating conditions.
Modifications to address traffic impacts are shown in Exhibit 1-3 for the Year 2026 and Year
2036. Traffic conditions have been split into three categories:
• “26 Build Traffic” – These modifications are expected to be necessary to accommodate
Year 2026 Build traffic volumes, which include only the proposed on-site school
expansion.
• “36 Build Traffic” – These modifications are expected to be necessary to accommodate
Year 2036 Build traffic volumes, which include ten years of general background growth
as well as the proposed on-site school expansion.
• “36 Total Traffic” – These modifications are expected to be necessary to accommodate
Year 2036 Total traffic volumes, which include the previously identified off-site
developments as well as ten years of general background growth and the proposed on-site
school expansion.
The analysis was conducted using existing intersection geometrics and traffic control. The
following modifications, as shown in Exhibit 1-3, are recommended to accommodate the Year
2026 and Year 2036 build and total traffic volumes, respectively. Modifications are for
jurisdictional consideration and are not legally binding. The City of Oshkosh reserves the right
to determine alternative solutions.
20th Avenue (General)
• 26 Build Traffic:
o Consider installation of a solar powered Rectangular Rapid Flashing
Beacon (RRFB) at the existing crosswalk located immediately west of the
west school driveway to enhance the safety at this location.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & West School Driveway
• 26 Build Traffic: No modifications.
• 36 Build Traffic: No modifications.
• 36 Total Traffic: No modifications.
20th Avenue & East School Driveway (Scenario 1)
• 26 Build Traffic:
o Reconstruct the north approach to align with the private driveway located
immediately west of the existing school driveway.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
24
o Construct a dedicated left-turn lane and a dedicated right-turn lane exiting
the site (two exit lanes) and two inbound lanes on the new north approach.
o Provide a dedicated westbound right-turn lane along 20th Avenue.
o Provide a fully actuated traffic signal with eastbound protected/permitted
left-turn phasing.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & New Exiting School Driveway (Scenario 2 - optional)
• 26 Build Traffic:
o Construct a new north approach with a dedicated left-turn lane and a
dedicated right-turn lane.
o Align the new driveway approach directly opposite the landscape
company driveway located on the south side of 20th Avenue.
o Provide stop sign control on the north approach.
o Provide DO NOT ENTER signs facing 20th Avenue.
o Provide a fully actuated traffic signal with eastbound protected/permitted
left-turn phasing when traffic volume thresholds reach a level where signal
warrants are met.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & New Entering School Driveway (Scenario 2 - optional)
• 26 Build Traffic:
o Construct a new north approach with two entering drive aisles into the site
as shown on the site plan.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
20th Avenue & Oakwood Road
• 26 Build Traffic:
o Consider modifying the lane assignments on the north and south
approaches to provide a dedicated left-turn lane and a shared
through/right-turn lane. The lanes are currently striped to provide a shared
through/left-turn lane and a dedicated right-turn lane.
• 36 Build Traffic: No additional modifications.
• 36 Total Traffic: No additional modifications.
Higher than acceptable delays are currently being experienced for southbound motorists at the
20th Avenue intersection with Oakwood Road during the typical weekday morning peak period.
These delays are expected to increase over the next ten years with expected background growth
in the overall area, with or without the identified off-site developments. Modifications to the lane
assignments are expected to allow the intersection to operate acceptably for all movements under
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
25
the existing and expected future traffic volumes. However, it is noted that the recommended lane
assignments on the north and south approaches; specifically, a dedicated left-turn lane and a
shared through/right-turn lane, will occasionally require the higher volume right-turn movement
vehicles to wait behind a through movement vehicle until the approach gets a green signal
indication. Due to the shorter signal cycle length at the intersection, these delays are expected to
be minimal and are expected to allow all movements at the intersection to operate within
acceptable delay thresholds.
Two access scenarios were evaluated as part of this study, one with a single two-way east access
driveway to the school (Scenario 1) and one with two one-way east access driveways to the
school (Scenario 2). Scenario 2 is expected to allow the east driveway to operate acceptably
under Year 2026 Build conditions without traffic signals. In order for the east driveway to
operate acceptably under Year 2026 Build conditions under Scenario 1, traffic signals would also
need to be installed. Even though Scenario 2 is expected to allow the east access driveway to
operate acceptably under opening day conditions and until traffic signal warrants are met at some
point in the future, it is recommended to implement Scenario 1 with installation of traffic signals
now, based on the likelihood that traffic signals will be warranted in the near future and to
provide a higher level of safety. A conceptual drawing of the recommended modifications is
shown in Exhibit 6-1.
Based on the signal warrant analysis completed as part of this study, assuming similar
background traffic growth along 20th Avenue as has occurred over the past 20 years, the peak
hour traffic signal warrant is expected to be met under either Scenario in about five years without
the known off-site developments moving forward. If the two identified developments move
forward, the warrant is expected to be met immediately, once both are fully built out without any
background growth. In addition, if only the Sawyer Creek Residential development moves
forward, the warrant would be expected to be met in as little as two and half years with
background growth. Therefore, since traffic signals are very likely to met in the next couple of
years, installing traffic signals with the other recommended geometrics under the opening year
build conditions is recommended.
Comparing both Scenario 1 and 2, Scenario 2 can operate acceptably without signals in the short-
term, however, as traffic grows along 20th Avenue, signals would be warranted in the future.
Since both Scenario 1 and 2 require signalization in the future, it is recommended to implement
Scenario 1 with two lanes both inbound and outbound on the north approach with signalization
to improve traffic operations and to provide a higher level of safety sooner rather than waiting
for signals to be installed later.
It is noted that under Scenario 1, which includes modifications to the existing east access
driveway including providing an additional entrance lane and an additional exit lane, the east
driveway to the school is expected to provide for additional stacking distance within the site
during the typical weekday afternoon discharge peak period, thereby helping to reduce the
frequency of vehicles backing onto 20th Avenue while waiting in the queue for the afternoon
school discharge bell.
It is also noted that based on the Year 2024 WisDOT crash modification factors, with installation
of a traffic signal at the east driveway intersection, a 34 percent reduction in right-angle crashes
and a 14 percent reduction in all crashes is expected. However, rear end crashes could increase
by about 50 percent. Based on a review of the most recent crashes reported for the east driveway
intersection, only two crashes occurred at the intersection over the most recent 5 years of
available data and both crashes were reported as right-angle crashes with southbound left-turning
vehicles exiting the driveway being hit by westbound vehicles.
Carl Traeger Elementary/Middle School Development – Oshkosh, Wisconsin May 7, 2025
Traffic Analysis & Design, Inc.
26
PART B – CONCLUSION
Except where noted in Chapter V, all movements at the study area intersections are expected to
operate safely and efficiently with the development assumptions outlined in this TIA and with
the identified recommended modifications if properly designed and implemented through the
Year 2036.
N
NOT TO SCALE3415 ~ 5/7/25
E XH I B IT 6-1
C ON C E P T UA L DE S IG N
R E CO M M E N D E D M O D I F I C ATI O N S
OSHKOSH, WI S CON SIN
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Jim Collins, Director of Transportation
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :*Ord 25-505 Amend Section 27-36(j)(2)(c) of the City of Oshkosh Municipal Code pertaining to
Parking Permits within Municipal Parking Lots and Repeal Section 27-36(e) pertaining to Hours
of Enforcement within Municipal Parking Lots
B A C K G R O U N DBACKGROUND
Th ere are occasion s wh en down town ten an ts h av e v isitors an d/or g u ests stayin g with th em . In
som e cases, th ere is n o on -street park in g av ailable in th e im m ediate area an d/or th ere is a
tem porary n eed for ov ern ig h t park in g in th e lot. Th rou gh ou r v en dor, we can offer a 2 4 -h ou r
lim ited-tim e park in g perm it th rou gh th e m obile app. Th is produ ct wou ld allow for 2 4 -h ou r
park in g in th e perm itted spaces. Th e h ou rs of en forcem en t are defin ed on sig n ag e as w ell as in
th e app. Th erefore; section 2 7 -3 6 e is n o lon ger n eeded an d can be repealed for clarity.
A N A L Y S I SANALYSIS
As w e already allow ov ern igh t park in g in th e perm itted spaces w ith a m on th ly or an n u al
perm it, addin g a 2 4 -h ou r perm it sh ou ld h av e m in im al im pact. We discu ssed a $6 rate for th e
2 4 -h ou r perm it. A daily perm it is $3 , so it m ak es sen se th at a 2 4 -h ou r perm it wou ld be dou ble
th e cost of th e daily fee.
B O A R D /C O M M I S S I O N I N F O R M A T I O NBOARD/C O M M I S S I O N I N F O R M A T I O N
Tran sportation Com m ittee approv ed.
F I S C A L I M P A C TFISCAL I M P A C T
Th ere is n ot an extra cost to add th is produ ct to ou r app. Th is n ew tim ed perm it wou ld add
som e rev en u e to th e park in g u tility.
A t t a c h m e n t sAttachments
Ord 25-505
09/23/2025 25-505 ORDINANCE
FIRST READING
PURPOSE: AMEND SECTION 27-36(J)(2)(c) OF THE CITY OF OSHKOSH MUNICIPAL CODE PERTAINING TO
PARKING PERMITS WITHIN MUNICIPAL PARKING LOTS AND REPEAL SECTION 27-36(E) PERTAINING TO HOURS OF
ENFORCEMENT WITHIN MUNICIAL PARKING LOTS
INITIATED BY : TRANSPORTATION DEPARTMENT
TRANSPORTATION COMMITTEE - APPROVED
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING REGULATIONS PERTAINING TO PARKING
PERMITS AND REPEALING SPECIFIC HOURS OF ENFORCEMENT FOR PARKING REGULATIONS WITHIN MUNICIPAL
PARKING LOTS
WHEREAS, there is demand for a 24-hour parking permit option in municipal parking lots for visitors to the
city; and
WHEREAS, in the spring of 2025 the City transitioned to an application-based parking permit system; and
WHEREAS, the 24-hour temporary permit can be added as an option within the application-based parking
system; and
WHEREAS, the ordinance currently contains specific hours of enforcement for various types of parking,
however through signage and the application parking users are informed of the parking regulations and
violations of regulations may be enforced at any time they are observed or reported, making the current
provision outdated and obsolete.
SECTION 1. That Section 27-36(E) pertaining to hours of Enforcement for Permit Parking, Leased Parking and
Time Limited Parking is hereby repealed.
SECTION 2. That Section 27-36(J)(2)(c) pertaining to Parking Permits – Daily Permits is hereby repealed and
recreated to read as follows:
c) Daily permits may be issued for the period from 7 am to 6 pm or for a 24-hour period. A daily permit may
be used in any stall designated for permit parking on the date indicated on the permit.
SECTION 3. This ordinance shall be in full force and effect from and after its Passage and publication.
SECTION 4. Publication Notice. Please take notice that the City of Oshkosh enacted ordinance #25-XXX
on October 14, 2025 AMEND SECTION 27-36(J)(2)(c) OF THE CITY OF OSHKOSH MUNICIPAL CODE PERTAINING
TO PARKING PERMITS WITHIN MUNICIPAL PARKING LOTS AND REPEAL SECTION 27-36(E) PERTAINING TO HOURS
OF ENFORCEMENT WITHIN MUNICIAL PARKING LOTS (A GENERAL ORDINANCE OF THE CITY OF OSHKOSH
AMENDING REGULATIONS PERTAINING TO PARKING PERMITS AND REPEALING SPECIFIC HOURS OF
ENFORCEMENT FOR PARKING REGULATIONS WITHIN MUNICIPAL PARKING LOTS ). The Ordinance will allow for
issuance of two types of daily permits to park within municipal parking lots for the period from 7 am to 6 pm or
for a 24-hour period. The Ordinance also repeals provisions specifying certain hours for parking enforcement
as the regulations for enforcement and times are now designated through the maps contained in the
appendix to Chapter 27 and the application-based parking system.
The full text of the ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and
through the City’s website at www.oshkoshwi.gov, Phone: 920/236-5011.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Lynn Lorenson, City Attorney
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :*Ord 25-506 Amend Sections 2-19, 2-20 and Create Chapter 2 Article VII-1 of the City of
Oshkosh Municipal Code all Pertaining to Creation and Enforcement of Rules on City
Properties
B A C K G R O U N DBACKGROUND
Ch apter 6 4 of th e Wiscon sin Statu tes u n der w h ich th e City of O sh k osh is org an ized an d
operates gran ts th e city m an ager all execu tiv e an d adm in istrativ e powers with in th e city. Th is
w ou ld in clu de th e pow er to act for th e pu blic h ealth , safety an d w elfare to create an d en force
ru les on city properties as well as to en force th ose ru les.
Th is gen eral g ran t of au th ority h as been relied on an d accepted for m an y years. Howev er,
m ore recen tly th e n eed for clear au th ority h as becom e n ecessary du e to th e v ariety of
properties th at th e City own s an d con trols as well as du e to in creasin g scru tin y of ru les an d
regu lation s by cou rts w h ich h av e an alyzed a v ariety of ru les in oth er ju risdiction s an d prov ided
gu idan ce to m u n icipalities toward creatin g en forceable ru les an d reg u lation s g ov ern in g
activ ities on v ariou s pu blic ow n ed an d open to th e pu blic properties.
A N A L Y S I SANALYSIS
Th e proposed ordin an ce creates tw o n ew prov ision s with in th e cu rren t code section s
describin g th e du ties an d th e au th ority of th e city m an ager to address th e city m an ag er's
respon sibilities an d au th ority to create an d en force ru les for city properties. As n oted abov e,
th is au th ority w as im plicit in th e g ran t of au th ority in Ch apter 6 4 h owev er, it is recom m en ded
th at th e City set forth th e explicit gran t of au th ority in ou r ordin an ces to m ak e clear wh o h as
th e au th ority to create an d en force ru les an d th e param eters u n der wh ich th ose ru les m ay be
created. To th at en d, proposed section 2 -2 0 (H) allow s th e city m an ager to delegate ru le
m ak in g au th ority to departm en t directors for property u n der th eir con trol bu t fin al au th ority
an d respon sibility for th ose ru les rem ain s w ith th e city m an ag er. In addition , th is section also sets
ou t param eters for an y ru les created: "Th e ru les m u st be for th e protection an d efficien t u se of
City property, an d m ay describe person s au th orized to u se City property, iden tify properties or
parts of properties th at sh all n ot be accessible to th e pu blic, th e tim es an d m an n er in wh ich th e
property can be u sed, an d m eth ods of en forcin g th e ru les to en su re th at th e pu blic h ealth ,
safety, an d welfare is protected. Th e ru les sh all be con sisten t with th e Com m on Cou n cil
direction th rou gh th is Mu n icipal Code, as well as con sisten t w ith state an d federal law."
Sim ilarly, th e proposed Article VII-1 gov ern in g city property sets forth gen eral ru les for all city
properties, exceptin g tradition al pu blic foru m s. Tradition al pu blic foru m s are places su ch as
streets, sidew alk s, pu blic park s an d squ ares th at h av e h istorically been open to th e pu blic for
assem bly an d expression . R u les in th ese areas receiv e th e h ig h est lev el of scru tin y from cou rts
w h o are protectiv e of th e pu blic's first am en dm en t rig h ts to speech in th ese pu blic areas. R u les
m u st be con ten t-n eu tral tim e, place an d m an n er restriction s, be su pported by a com pellin g
gov ern m en tal in terest an d be n arrow ly tailored to m eet th e n eeds of th at in terest. In areas th at
are n ot tradition al pu blic foru m s, g ov ern m en ts are allow ed greater freedom u n der th e
con stitu tion to prov ide ru les an d regu lation s. Th e reg u lation s in th ese n on -tradition al pu blic
foru m s sh ou ld still be con ten t-n eu tral, tailored appropriately to th e n eed for con trol of th e
particu lar area an d su pported by g ov ern m en tal in terests protectiv e of pu blic h ealth , safety
an d welfare to be reason able an d defen sible in case of a ch allen ge. Th e proposed
regu lation s in th is n ew article are in ten ded to fit with in th ose param eters an d regu late
beh av iors, in clu din g beh av iors th at are poten tially destru ctiv e of property, su ch as im proper
disposal of trash , destru ction of property an d th eft; creatin g distu rban ces by u n reason able
n oise, disorderly con du ct or im pedin g u se of th e property or facility by oth ers; u se of alcoh ol
an d dru gs on city property; solicitin g an d v en din g with ou t au th orization ; cam pin g on city
property, an d trespassin g on v acan t city property. Th e ordin an ce wou ld allow creation of
addition al ru les th at m ay be specific to certain properties or areas on properties.
Th e pen alty for v iolation of ru les is proposed to be rem ov al from th e property an d poten tial
su spen sion from th e property. It sh ou ld be n oted th at th is is a rem edy th at h as been in place
for m an y years w ith in th e park s departm en t an d h as w ork ed w ell for th at departm en t in
dealin g w ith people w h o fail to follow th eir ru les. Becau se we are a gov ern m en t an d prov ide
serv ices, som e of w h ich are essen tial serv ices or serv ices w h ich m ay on ly be obtain ed th rou gh
th e city, th e proposed ordin an ce also in clu des altern ativ es for th ose w h o m ay be rem ov ed or
su spen ded to obtain th ose serv ices th at th ey do n eed.
F I S C A L I M P A C TFISCAL I M P A C T
Th ere is n o an ticipated fiscal im pact to th e proposed ordin an ce ch an ges.
R E C O M M E N D A T I O NRECOMMENDATION
Staff recom m en ds approv al of th e proposed ordin an ce ch an g es.
A t t a c h m e n t sAttachments
Ord 25-506
2-19 and 2-20 clean
2-19 and 2-20 redline
New Article VII-1 -Property
09/23/2025 25-506 ORDINANCE
FIRST READING
PURPOSE: AMEND SECTIONS 2-19, 2-20 AND CREATE CHAPTER 2 ARTICLE VII-1 OF THE CITY OF OSHKOSH
MUNICIPAL CODE ALL PERTAINING TO CREATION AND ENFORCEMENT OF RULES ON CITY PROPERTIES
INITIATED BY : CITY ADMINISTRATION
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH CREATING SECTIONS 2-19, 2-20 AND CREATING CHAPTER 2
ARTICLE VII-1 ALL PERTAINING TO CREATION AND ENFORCEMENT OF RULES ON CITY OWNED, LEASED OR
RENTED PROPERTIES
WHEREAS, State law grants the city manager all executive and administrative powers within the city
including the power to act for the public health, safety and welfare to create and enforce rules on city
properties as well as to enforce those rules; and
WHEREAS, due to the variety of properties that the City owns and controls as well as recent court guidance
to municipalities pertaining to the creation of enforceable rules and regulations governing activities on
various public owned and open to the public properties, it is advisable to clarify city ordinances pertaining
to the authority and responsibility for creation rules and enforcement of those rules on city properties; and
WHEREAS, staff has reviewed recent incidences of conduct on city properties and current rules and
recommends rules to regulate behaviors including improper disposal of trash destruction of property and
theft; creating disturbances by unreasonable noise, disorderly conduct or impeding use of the property or
facility by others; use of alcohol and drugs on city property; soliciting and vending without authorization;
camping on city property, and trespassing on vacant city property to be applicable on all city properties
except as these rules may not apply to traditional public forums in compliance with constitutional limitations.
NOW, THEREFORE, BE IT ORDAINED by the Common Council of the City of Oshkosh as follows:
SECTION 1. That Sections 2-19 and 2-20 of the City of Oshkosh Municipal Code pertaining to the Duties and
Responsibilities of and Authority Necessary to Discharge Duties by the City Manager are hereby repealed
and recreated to read as shown on the attachment to this Ordinance.
SECTION 2. That Chapter 2 Article VII-1 Property of the City of Oshkosh Municipal Code pertaining to rules
on property owned, leased or rented by the City of Oshkosh is hereby created to read as shown on the
attachment to this Ordinance.
SECTION 3. This ordinance shall be in full force and effect from and after its passage and publication.
SECTION 4. Publication Notice. Please take notice that the City of Oshkosh enacted ordinance AMEND
SECTIONS 2-19, 2-20 AND CREATE CHAPTER 2 ARTICLE VII-1 OF THE CITY OF OSHKOSH MUNICIPAL CODE ALL
PERTAINING TO CREATION AND ENFORCEMENT OF RULES ON CITY PROPERTIES (A GENERAL ORDINANCE OF
THE CITY OF OSHKOSH CREATING SECTIONS 2-19, 2-20 AND CREATING CHAPTER 2 ARTICLE VII-1 ALL
PERTAINING TO CREATION AND ENFORCEMENT OF RULES ON CITY OWNED, LEASED OR RENTED PROPERTIES) on
_____________, 2025. This ordinance specifies and clarifies the responsibility and authority of the city manager
to create rules for city properties and to delegate that authority to department heads under their control.
The rules must be for the protection and efficient use of City property, and may describe persons authorized
The rules must be for the protection and efficient use of City property, and may describe persons authorized
to use City property, identify properties or parts of properties that shall not be accessible to the public, the
times and manner in which the property can be used, and methods of enforcing the rules to ensure that the
public health, safety, and welfare is protected. The rules shall be consistent with the Common Council
direction through this Municipal Code, as well as consistent with state and federal law. The ordinance also
creates a new Article in Chapter 2 of the Municipal Code setting forth general rules for all owned, leased or
rented city properties, excepting traditional public forums including rules governing behaviors that are
potentially destructive of property such as improper disposal of trash destruction of property and theft;
creating disturbances by unreasonable noise, disorderly conduct or impeding use of the property or facility
by others; use of alcohol and drugs on city property; soliciting and vending without authorization; camping
on city property, and trespassing on vacant city property. The ordinance would allow creation of additional
rules that may be specific to certain properties or areas on properties. The penalty for violation of rules will be
removal from the property and potential suspension from the property, with alternative options for those who
may be removed or suspended to obtain those governmental services that they may need from the City.
The full text of the ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and
through the City’s website at www.oshkoshwi.gov. Clerk’s phone: 920/236-5011.
September 5, 2025
SECTION 2-19 DUTIES AND RESPONSIBILITIES
The City Manager shall have the following duties and responsibilities:
(A) Effect the enforcement of all laws and ordinances.
(B) Budget administration and budget preparation.
(C) Enforce all franchises, permits and privileges granted by the City to utilities.
(D) Protection of health, safety and welfare of the community within the standards of
services adopted by the City Council.
(E) Maintain and operate parks, playgrounds and any other recreational facilities now
owned or acquired hereafter by the City Council.
(F) Maintenance, operation and construction of streets, sewers, water plant and
distribution system, sewage disposal plant and all other City owned facilities,
buildings and equipment.
(G) Maintain, operate, and protect all City properties and improvements thereon;
enforce rules applying to City properties as described in this Municipal Code; and
create and enforce additional rules for City properties, as necessary, that: protect
the properties and the City’s interests in the properties; protect City employees
undertaking job functions on the property and citizens needing to utilize City
property for services offered; promote the efficient functioning of each property
for its intended purpose; and protect the public health, safety, and welfare.
(H) All fiscal transactions of the City.
(I) Assuring the efficiency of all City services.
(J) Keep the Council informed on all matters.
(K) All administrative functions, including those heretofore mentioned.
(L) Perform such other duties as may be required by the Council.
September 5, 2025
SECTION 2-20 AUTHORITY NECESSARY TO DISCHARGE DUTIES
The City Manager shall have the authority to:
(A) Authority to Appoint Officers; exception
Appoint, suspend, lay-off or dismiss all heads of departments, all subordinate city
officials and all employees, except that this subsection shall not be construed as
depriving the Board of Fire and Police Commissioners all the powers conferred by
Section 62.13 of the Wisconsin Statutes. [Statutory Reference §64.11(3) Wis. Stats.]
(B) Authority to Appoint Temporary Heads of Departments/Divisions
The City Manager may appoint an acting director of any department or manager
of any division if the director or manager is absent from the City or incapacitated
or a temporary vacancy exists in the position and no person has been designated
to be the acting director or manager or the person so designated is unable or
unwilling to serve in the acting capacity.
(C) Authority to Promulgate Rules and Regulations
Prepare and put into effect any necessary administrative rules and regulations
pertaining to purchasing, personnel, fiscal transactions, city services, and the
conduct of employees.
(D) Public Works
Exercise all of the powers of the Board of Public Works.
(E) Emergency Powers
Take whatever action is necessary in purchasing or assignments of employees to
protect the health, welfare, and the safety of the citizens of Oshkosh.
(F) Make Recommendation to Council
Make recommendations to the Council on all matters of municipal concern.
(G) Fill Vacancies
Fill all vacancies not to exceed budget allotments, except that this shall not be
construed as preventing the Manager from filling the vacancy with a lower paid
classification or leaving the position vacant, if, in the Manager's opinion, the
September 5, 2025
position does not need to be filled. This section shall not be construed to prevent
the City Manager from creating or filling positions not specifically budgeted when
in the Manager's opinion such action is in the best interest of the City and is
temporary in nature.
(H) Rules for Use of City Property
Create and enforce rules for the use and protection of all properties owned or
controlled by the City when necessary. The rules must be for the protection and
efficient use of City property, and may describe persons authorized to use City
property, identify properties or parts of properties that shall not be accessible to
the public, the times and manner in which the property can be used, and methods
of enforcing the rules to ensure that the public health, safety, and welfare is
protected. The rules shall be consistent with the Common Council direction
through this Municipal Code, as well as consistent with state and federal law. The
authority to create and enforce rules for the use and protection of all City property
is delegated to the Director of each City Department. Each Director may create
and enforce rules covering property they have been explicitly given authority
over, or has historically had authority over, or is the most appropriate Director to
have authority over a particular property. However, the City Manager retains
final authority for developing and enforcing the rules and final responsibility for
the rules and actions of the Directors of the various Departments.
(I) Residual Executive Powers
Exercise all other executive powers conferred upon the Manager in Chapter 64 of
the Wisconsin Statutes.
September 5, 2025
SECTION 2-19 DUTIES AND RESPONSIBILITIES
The City Manager shall have the following duties and responsibilities:
(A) Effect the enforcement of all laws and ordinances.
(B) Budget administration and budget preparation.
(C) Enforce all franchises, permits and privileges granted by the City to utilities.
(D) Protection of health, safety and welfare of the community within the standards of services
adopted by the City Council.
(E) Maintain and operate parks, playgrounds and any other recreational facilities now owned
or acquired hereafter by the City Council.
(F) Maintenance, operation and construction of streets, sewers, water plant and distribution
system, sewage disposal plant and all other City owned facilities, buildings and
equipment.
(F)(G) Maintain, operate, and protect all City properties and improvements thereon .; Eenforce
rules applying to City properties as described in this Municipal Code .; and Ccreate and
enforce additional rules for City properties, as necessary, that: protect the properties, and
the CitiesCity’s interests in the properties,; protect City employees undertaking job
functions on the property. and citizens needing to utilize City property for services
offered,; promote the efficient functioning of each property for its intended purpose,; and
protect the public health, safety, and welfare.
(G)(H) All fiscal transactions of the City.
(H)(I) Assuring the efficiency of all City services.
(I)(J) Keep the Council informed on all matters.
(J)(K) All administrative functions, including those heretofore mentioned.
(K)(L) Perform such other duties as may be required by the Council.
September 5, 2025
SECTION 2-20 AUTHORITY NECESSARY TO DISCHARGE DUTIES
The City Manager shall have the authority to:
(A) Authority to Appoint Officers; exception
Appoint, suspend, lay-off or dismiss all heads of departments, all subordinate city officials
and all employees, except that this subsection shall not be construed as depriving the
Board of Fire and Police Commissioners all the powers conferred by Section 62.13 of the
Wisconsin Statutes. [Statutory Reference §64.11(3) Wis. Stats.]
(B) Authority to Appoint Temporary Heads of Departments/Divisions
The City Manager may appoint an acting director of any department or manager of any
division if the director or manager is absent from the City or incapacitated or a temporary
vacancy exists in the position and no person has been designated to be the acting director
or manager or the person so designated is unable or unwilling to serve in the acting
capacity.
(C) Authority to Promulgate Rules and Regulations
Prepare and put into effect any necessary administrative rules and regulations pertaining
to purchasing, personnel, fiscal transactions, city services, and the conduct of employees.
(D) Public Works
Exercise all of the powers of the Board of Public Works.
(E) Emergency Powers
Take whatever action is necessary in purchasing or assignments of employees to protect
the health, welfare, and the safety of the citizens of Oshkosh.
(F) Make Recommendation to Council
Make recommendations to the Council on all matters of municipal concern.
(G) Fill Vacancies
Fill all vacancies not to exceed budget allotments, except that this shall not be construed
as preventing the Manager from filling the vacancy with a lower paid classification or
leaving the position vacant, if, in the Manager's opinion, the position does not need to be
filled. This section shall not be construed to prevent the City Manager from creating or
filling positions not specifically budgeted when in the Manager's opinion such action is in
the best interest of the City and is temporary in nature.
(H) Rules for Use of City Property
Create and enforce rules for the use and protection of all properties owned or controlled
by the City when necessary. The rules must be for the protection and efficient use of City
September 5, 2025
property, and may describe persons authorized to use City property, identify properties
or parts of properties that shall not be accessible to the public, the times and manner in
which the property can be used, and methods of enforcing the rules to ensure that the
public health, safety, and welfare is protected. The rules shall be consistent with the
Common Council direction through this Municipal Code, as well as consistent with state
and federal law. The authority to create and enforce rules for the use and protection of all
City property is delegated to the Director of each City Department. Each Director may
create and enforce rules covering property they have been explicitly given authority over,
or has historically had authority over, or is the most appropriate Director to have
authority over a particular property. However, the City Manager retains final authority
for developing and enforcing the rules and final responsibility for the rules and actions of
the Directors of the various Departments.
(I) Residual Executive Powers
Exercise all other executive powers conferred upon the Manager in Chapter 64 of the
Wisconsin Statutes.
September 5, 2025
ARTICLE VII-1 - PROPERTY
SECTION 2-64 APPLICABILITY
The rules in this Article apply to all property owned, leased, or rented by the City of
Oshkosh, and to all persons entering in or on such property. The City Manager is
responsible for enforcing the observance of these rules and regulations
SECTION 2-65 TRADITIONAL PUBLIC FORUMS
This Article does not apply to traditional public forums. Therefore, these rules do not
limit the use of traditional public forums for the purpose of engaging in constitutionally
protected speech or activities. This does not mean or imply that actions prohibited on
other City property are allowed in traditional public forums. Instead, the traditional
public forums are governed by other rules. This Article does not create, extend, or
expand the number, locations, or allowed uses of traditional public forums. Traditional
public forums are defined as the City’s streets, sidewalks, and parks.
SECTION 2-66 PRESERVATION OF PROPERTY
All persons entering in or on City property are prohibited from:
1. Improperly disposing of rubbish on property;
2. Willfully destroying or damaging property;
3. Theft of property;
4. Creating any hazard on property to persons or things; or
5. Throwing articles of any kind from or at a City building or City structure, or
climbing on statues, fountains, or any part of a building.
SECTION 2-67 DISTURBANCES
All persons entering in or on City property must conduct specific City business on the
City property they enter within a reasonable amount of time. Prohibited conduct in or
on City property includes:
1. Creates loud or unusual noise or nuisance;
2. Is disorderly;
3. Unreasonably obstructs the usual use of entrances, foyers, lobbies, corridors,
elevators, stairways, or parking lots;
September 5, 2025
4. Substantially impedes or disrupts the performance of official duties by City
employees; or
5. Prevents the general public from obtaining the services provided on the property
in a timely manner.
SECTION 2-68 NARCOTICS AND OTHER DRUGS
Except in cases where the drug is being used as prescribed for a patient by a licensed
physician, all persons entering in or on City property are prohibited from being under
the influence, using, or possessing any narcotic drugs, hallucinogens, marijuana,
barbiturates, or amphetamines.
SECTION 2-69 ALCOHOL BEVERAGES
Except in city parks in compliance with Chapter 19 of this Code, where the City
Manager or Department Head has specifically approved, or where the Common
Council has approved through a Special Event, the appropriate use of alcoholic
beverages, all persons entering in or on City property are prohibited from possessing
open intoxicants or consuming alcoholic beverages in or on City property.
SECTION 2-70 SOLICITING AND VENDING
All persons entering in or on City property are prohibited from giving away free
samples of anything, posting or affixing materials to City property, distributing
materials such as pamphlets, handbills, or flyers, or soliciting alms (including money
and non-monetary items) or commercial or political donations, vending merchandise of
all kinds, displaying or distributing commercial advertising, or collecting private debts,
except for:
1. Solicitation of labor organization membership or dues as authorized by law;
2. Concessions placed by the City, or personal notices posted by employees at
authorized locations; or
3. National or local drives for funds for welfare, health, or other similar purposes as
authorized by the City Manager.
SECTION 2-71 TRANSIT FACILITIES
All facilities used as part of the City’s transit services are intended solely for the
purpose of using transit for transportation. These facilities include all busses, bus stops,
bus shelters, and the transit center. Transit facilities adjacent to or connect to a street or
September 5, 2025
sidewalk or other traditional public forum, are not part of the traditional public forum.
Only those persons using transit services, or who are waiting to use a specific bus at a
specific time, or who are on the bus and have a specific destination at which they will
depart the bus, are allowed to use transit facilities.
SECTION 2-72 CAMPING
Camping is not allowed on City property. Camp or camping means the use of a shelter
such as a tent, trailer, motor vehicle, tarpaulin, hammock, bedroll, sleeping bag, blanket,
or any other shelter for temporary residence, shelter, or any sleeping purpose.
SECTION 2-73 VACANT PROPERTY
Persons shall not enter in or on for any purpose City property that is vacant and not
used for any current City business. Such City property will be posted for “No
Trespassing” or the equivalent.
SECTION 2-74 OTHER RULES
The City Manager is authorized to create and enforce other rules regarding the conduct
upon, and operation of, City buildings, facilities, and property, as necessary, and as
more fully described in Chapter 2 of this Municipal Code. The City Manager may
delegate this authority to create and enforce rules for City property as allowed by this
Municipal Code and by other applicable laws. Any such rules must be made
reasonably available to the public for review. Such rules may be posted at the
applicable property at the discretion of the City Manager, or their designee.
SECTION 2-75 REMOVAL
In addition to any other Penalty as allowed by this Municipal Code or state law,
persons violating these rules are subject to removal from City property. Those violating
these rules will be given verbal notice of the violation and ordered to correct the
violation of the City property rule, or to remove themselves from the City property.
Those refusing to voluntarily remove themselves from the City property, will be
involuntarily removed. If a person violates a City property rule three times within a
thirty day period, the person will be prohibited from entering or accessing any City
property, excluding streets and sidewalks, for a thirty day period and will be so notified
in writing. If the person needs to conduct actual City business during that thirty-day
period, such business must be conducted by or through electronic services available on
September 5, 2025
the City’s website, or by U.S. Mail, by email, or by telephone. If the person is incapable
of conducting City business through the foregoing methods, they may request a
reasonable accommodation through one of the foregoing methods from the Department
that issued the prohibition.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Rebecca Grill, City Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :*Ord 25-507 Amend Section 2-10(A) of the City of Oshkosh Municipal Code to remove the
requirement that the annual Council Organizational Meeting be held at 12:00 noon
B A C K G R O U N DBACKGROUND
State law requ ires an organ ization al m eetin g on th e th ird Tu esday of April, bu t does n ot specify
a tim e for th e m eetin g . Howev er, cu rren t m u n icipal code stipu lates th at th e organ ization al
m eetin g be h eld at 1 2 n oon . At th e Au g u st 2 6 , 2 0 2 5 m eetin g , Cou n cil approv ed an ordin an ce
th at allows for th e establish m en t of an an n u al sch edu le of m eetin gs. Th is proposed sch edu le,
con sidered separately, in clu des m on th s du rin g th e year wh en Cou n cil m ay on ly h old on e
m eetin g per m on th ; th is in clu des th e m on th of April, du e to th e local election , wh en th e
proposed m eetin g date also falls on th e th ird Tu esday of April. R em ov in g th e requ irem en t th at
th e org an ization al m eetin g be h eld at 1 2 :0 0 n oon from th e cu rren t City ordin an ce g iv es
Cou n cil an d staff th e ability to coordin ate m eetin g tim es an d to m ak e allowan ce for th e
im pact on th e City Clerk 's office in an election m on th .
A t t a c h m e n t sAttachments
Ord 25-507
9/23/2025 25-507 ORDINANCE
FIRST READING
PURPOSE: AMEND SECTION 2-10(A) OF THE CITY OF OSHKOSH MUNICIPAL CODE TO REMOVE THE REQUIREMENT
THAT THE ANNUAL COUNCIL ORGANIZATIONAL MEETING BE HELD AT 12:00 NOON
INITIATED BY : CITY ADMINISTRATION
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING SECTION 2-10(A) OF THE CITY OF OSHKOSH
MUNICIPAL CODE PERTAINING TO THE ORGANIZATIONAL MEETING OF THE COUNCIL TO REMOVE THE
REQUIREMENT THAT THE ANNUAL COUNCIL ORGANIZATIONAL MEETING BE HELD AT 12:00 NOON
WHEREAS, state law requires an organizational meeting on the third Tuesday of April but does not specify a
time for such meeting, and
WHEREAS, removing the requirement that the organizational meeting be held at 12:00 noon from the
current city ordinance gives council and the staff the ability to coordinate meeting times and to make
allowance for the impacts to the City Clerk’s office in an election month.
NOW, THEREFORE, BE IT ORDAINED by the Common Council of the City of Oshkosh as follows:
SECTION 1. That Sections 2-10(A) of the City of Oshkosh Municipal Code pertaining to Council Meetings –
Organizational Meeting is hereby repealed and recreated to read as follows:
SECTION 2-10 COUNCIL MEETINGS
(A) Organizational Meeting
Following a regular city election, the new Council shall first meet on the third Tuesday of April in each
election year at the Council Chambers in City Hall. [Statutory Reference §64.05(1) Wis. Stats.]
SECTION 2. This ordinance shall be in full force and effect from and after its passage and publication.
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh enacted ordinance AMEND
SECTION 2-10(A) OF THE CITY OF OSHKOSH MUNICIPAL CODE TO REMOVE THE REQUIREMENT THAT THE ANNUAL
COUNCIL ORGANIZATIONAL MEETING BE HELD AT 12:00 NOON (A GENERAL ORDINANCE OF THE CITY OF
OSHKOSH AMENDING SECTION 2-10(A) OF THE CITY OF OSHKOSH MUNICIPAL CODE PERTAINING TO THE
ORGANIZATIONAL MEETING OF THE COUNCIL TO REMOVE THE REQUIREMENT THAT THE ANNUAL COUNCIL
ORGANIZATIONAL MEETING BE HELD AT 12:00 NOON) on _____________, 2025. This ordinance removes the
ordinance requirement that the organizational meeting of the Common Council held on the third Tuesday in
April each year be held at 12:00 noon on that day.
The full text of the ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and
through the City’s website at www.oshkoshwi.gov. Clerk’s phone: 920/236-5011.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Rebecca Grill, City Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :*Ord 25-508 Amend Section 2-16(B) of the City of Oshkosh Municipal Code to eliminate the
requirement for two readings of ordinances prior to adoption
B A C K G R O U N DBACKGROUND
State law does n ot requ ire two readin gs of ordin an ces prior to adoption , bu t cu rren t m u n icipal
codes im pose th is requ irem en t locally. At th e Au g u st 2 6 , 2 0 2 5 m eetin g , Cou n cil approv ed an
ordin an ce th at allow s for th e establish m en t of an an n u al sch edu le of m eetin g s. Th is proposed
sch edu le, con sidered separately, in clu des m on th s du rin g th e year wh en Cou n cil m ay h old on ly
on e m eetin g per m on th . In an effort to m in im ize th e im pact of th is proposed sch edu le on
dev elopm en t an d th e prog ress of projects with in th e City, staff is recom m en din g rem ov al of th e
requ irem en t for two readin gs of ordin an ces. Th is ch an ge w ou ld n ot preclu de Cou n cil from
layin g an item ov er to a fu tu re m eetin g, sh ou ld th e n eed arise.
A t t a c h m e n t sAttachments
Ord 25-508
09/23/2025 25-508 ORDINANCE
FIRST READING
PURPOSE: AMEND SECTION 2-16(B) OF THE CITY OF OSHKOSH MUNICIPAL CODE TO ELIMINATE THE
REQUIREMENT FOR TWO READINGS OF ORDINANCES PRIOR TO ADOPTION
INITIATED BY : CITY ADMINISTRATION
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING SECTION 2-16(B) OF THE CITY OF OSHKOSH
MUNICIPAL CODE PERTAINING TO RULES OF ORDER AND PROCEDURE TO ELIMINATE THE REQUIREMENT FOR
TWO READINGS OF ORDINANCES PRIOR TO ADOPTION
WHEREAS, state law does not require two readings of ordinances prior to adoption, but current municipal
codes impose such a requirement locally; and
WHEREAS, council has established an annual schedule of meetings which includes months during the year
where council will hold only one meeting per month and seeks to limit the impact of fewer Council meetings
on development and progress of projects within the city.
NOW, THEREFORE, BE IT ORDAINED by the Common Council of the City of Oshkosh as follows:
SECTION 1. That Sections 2-16(B) of the City of Oshkosh Municipal Code pertaining to Rules of Order and
Procedure - Ordinances is hereby repealed and recreated to read as follows:
SECTION 2-16 RULES OF ORDER AND PROCEDURE
(B) Ordinances
Unless a request for reading the ordinance in its entirety is made by a member of the Council, reading by title
only shall be sufficient and reading in full shall not be required. Where an ordinance shall have the effect of
amending, altering or adding to the code of general ordinances, it shall so indicate, stating the section
number affected. All ordinances shall be open to any pertinent amendment at any time until their final
passage.
SECTION 2. This ordinance shall be in full force and effect from and after its passage and publication.
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh enacted ordinance AMEND
SECTION 2-16(B) OF THE CITY OF OSHKOSH MUNICIPAL CODE TO ELIMINATE THE REQUIREMENT FOR TWO
READINGS OF ORDINANCES PRIOR TO ADOPTION (A GENERAL ORDINANCE OF THE CITY OF OSHKOSH
AMENDING SECTION 2-16(B) OF THE CITY OF OSHKOSH MUNICIPAL CODE PERTAINING TO RULES OF ORDER
AND PROCEDURE TO ELIMINATE THE REQUIREMENT FOR TWO READINGS OF ORDINANCES PRIOR TO
ADOPTION) on _____________, 2025. This ordinance removes the requirement that ordinances receive two
readings before the Council prior to adoption.
The full text of the ordinance may be obtained at the Office of the City Clerk, 215 Church Avenue and
through the City’s website at www.oshkoshwi.gov. Clerk’s phone: 920/236-5011.
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kimberly Gierach, Planning Services Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-509 Approve General Development Plan and Specific Implementation Plan for a
building expansion at 2751 Universal Street (Plan Commission recommends approval)
B A C K G R O U N DBACKGROUND
Th e su bject site con sists of a fiv e-acre parcel located in th e Sou th west In du strial Park , on
Un iv ersal Street, ju st n orth of West Sou th Park Av en u e. Th e site is h om e to Millwork Distribu tors,
w h o m an u factu re an d sell fin ish ed w ood an d com posite m aterials. Th e site also con sists of sem i
loadin g/u n loadin g areas an d an associated park in g lot. Th e site an d su rrou n din g area are
zon ed Heav y In du strial District (HI) w ith a m ixtu re of differin g in du strial lan d u ses. Th e 2 0 4 0
Com preh en siv e Lan d Use Plan recom m en ds In du strial for th e su bject area.
A N A L Y S I SANALYSIS
Th e applican t h as su bm itted plan s to con stru ct a 2 3 ,0 6 7 sq. ft. bu ildin g expan sion , attach ed to
th e west side of th e existin g bu ildin g, an d in stall n ew pav em en t to accom m odate m ore
park in g stalls.
R E C O M M E N D A T I O NRECOMMENDATION
Th e Plan Com m ission recom m en ded approv al of th e requ ested G en eral Dev elopm en t Plan
an d Specific Im plem en tation Plan on Septem ber 2 , 2 0 2 5 . Please see th e attach ed staff report
for m ore in form ation .
A t t a c h m e n t sAttachments
Res 25-509
GDP.SIP 2751 Universal St
09/23/2024 25-509 RESOLUTION
PURPOSE: APPROVE GENERAL DEVELOPMENT PLAN AND SPECIFIC IMPLEMENTATION PLAN FOR A BUILDING
EXPANSION AT 2751 UNIVERSAL STREET
INITIATED BY : KELLER INC.
PLAN COMMISSION RECOMMENDATION: Approved
WHEREAS, the Plan Commission finds that the Specific Implementation Plan for a building expansion at
2751 Universal Street, is consistent with the criteria established in Section 30-387 of the Oshkosh Zoning
Ordinance.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that a Specific
Implementation Plan for a building expansion at 2751 Universal Street, per the attached, is hereby approved,
with the following findings:
The proposed Planned Development project is consistent with the overall purpose and intent of this
Chapter because the current land use is consistent with the HI zoning designation and Industrial 2040
Comprehensive Land Use Plan designation.
1.
The proposed Planned Development project is consistent with the City’s Comprehensive Plan as
Industrial land uses are designated for this property in the 2040 Comprehensive Land Use Plan.
2.
The proposed Planned Development project would maintain the desired relationships between land
uses, land use densities and intensities, and land use impacts in the environs of the subject site because
the proposed industrial use is consistent with neighboring industrial uses along Universal Street.
3.
Project design does not detract from areas of natural beauty surrounding the site as the applicant
plans to install more trees, shrubs, and plants to the site.
4.
The proposed Planned Development project will produce significant benefits in terms of environmental
design and significant alternative approaches to addressing development performance that relate to
and more than compensate for any requested exceptions/base standard modifications variation of
any standard or regulation of this Chapter because increased landscaping points and increased
planting size will be provided to compensate for BSM requests.
5.
BE IT FURTHER RESOLVED by the Common Council of the City of Oshkosh that the following are conditions of
approval for a building expansion at 2751 Universal Street:
Base Standard Modification to allow increased impervious surface ratio to 76.6%.1.
Final landscaping plan shall be reviewed and approved by the Department of Community
Development.
2.
ITEM: Public Hearing: Zone Change from Heavy Industrial District (HI) to Heavy
Industrial District with a Planned Development Overlay (HI-PD) and
Approval of a General Development Plan and Specific Implementation Plan
for a Building Expansion at 2751 Universal Street
Plan Commission Meeting of September 2, 2025
Applicant: Keller Inc.
Property Owner: Millwork Distributors Inc.
Action Requested: The applicant requests approval of a zone change from Heavy Industrial
District (HI) to Heavy Industrial District with a Planned Development Overlay (HI-PD) for the
property at 2751 Universal Street. The applicant is also requesting General Development Plan
and Specific Implementation Plan approval for expansion and remodel of the existing facility.
Applicable Ordinance Provisions: Zoning map amendment standards are found in Section 30-
381 of the Zoning Ordinance. Planned Development standards are found in Section 30-387 of
the Zoning Ordinance.
Property Location and Background Information: The subject site consists of a five-acre parcel
located in the Southwest Industrial Park, on Universal Street, just north of West South Park
Avenue. The site is home to Millwork Distributors, who manufacture and sell finished wood
and composite materials. The site also consists of semi loading/unloading areas and an
associated parking lot. The site and surrounding area are zoned Heavy Industrial District (HI)
with a mixture of differing industrial land uses. The 2040 Comprehensive Land Use Plan
recommends Industrial for the subject area.
Existing Land Use Zoning
Industrial HI
Existing Uses Zoning
North Industrial HI
South Vacant HI
East Industrial/Professional Services/Commercial HI
West Industrial HI
The applicant is proposing to rezone the subject site to Heavy Industrial District with a Planned
Development Overlay (HI-PD) from Heavy Industrial (HI). The requested Planned
Development Overlay designation is intended to allow for flexibility in the zoning ordinance to
accommodate expansion of the existing facility at the property. The applicant has submitted
plans to construct a 23,067 sq. ft. building expansion, attached to the west side of the existing
building, and install new pavement to accommodate more parking stalls. Staff is supportive of
the proposed rezone as it will assist with accomplishing a building expansion and the need for
more employee parking, both related to the increased impervious surface ratio.
Use/Site Design/Access - The current use of the property is unchanged. The proposed building
expansion and new parking areas will be accessed by an existing drive lane off of Universal
Street as well as a new stormwater pond on the northeast side of the property.
Standards Required Provided
Front Setback (east) 30 ft. min. Existing building
Rear Setback (west) 25 ft. min. Expansion at 25 ft.
Side Setback (north) 20 ft. min. Existing building
Side Setback (south) 20 ft. min. Existing building
Impervious Surface 70% max. 76.6%
Parking Calculation 1 stall per employee = 60 73
Proposed site plan showing building expansion, new parking areas, and new stormwater pond
Zoning code allows for a 70% Maximum Impervious Surface Ratio in all Heavy Industrial
Zoning Districts. The applicant is requesting a Base Standard Modification (BSM) to allow for
76.6% of the property to be impervious. Staff is supportive of the BSM request to allow for an
increased impervious surface ratio as this will help accommodate needed employee parking,
ADA accessible stalls, and the building expansion. To offset this request the applicant is
proposing to install landscaping that exceeds zoning code requirements.
Landscaping - The Zoning Ordinance does not require any new landscaping points for this
project because the building expansion does not exceed 50 percent of the existing floor area, nor
does the new pavement exceed 50 percent of the existing pavement area. The applicant is
however improving the overall site by proposing to install more plantings than what code
would require to help offset their BSM request.
Proposed Landscaping Plan showing new plantings
Landscaping Calculations
Building Foundation - For new development, code requires 20 landscaping points per 100
linear feet of building foundation. According to the submitted landscape plan the applicant is
providing more than what would be required, which brings this property into compliance with
the current landscaping requirements.
Paved Area - For a new development, code requires 30 landscaping points per ten stalls or
10,000 sq. ft. of pavement. According to the submitted landscape plan, the applicant is
providing more than what would be required, bringing the property into compliance.
Street Frontage - For a new development, code requires 30 landscaping points per 100 linear
feet of street frontage. According to the submitted landscape plan the applicant is providing
more than what would be required, bringing the property into compliance.
Yards - For a new development, code requires ten landscaping points per 1,000 sq. ft. of gross
floor area. According to the submitted landscape plan the applicant is providing more than
what would be required, bringing the property into compliance.
According to the applicant, this property currently has a total of 1507.9 landscaping points. A
number of these plantings need to be removed due to being dead, in decline, overgrown, or
within one of the expansion areas. The proposed landscaping plan shows a total of 2271.9
landscaping points, which is the sum of all new plantings and the existing plantings that can be
saved. This increase in overall landscaping sufficiently compensates for the proposed BSM for
increased impervious surface ratio.
Storm Water Management/Utilities - The Department of Public Works has noted that final
submitted plans are required to be in full compliance with the requirements of the City of
Oshkosh Municipal Code Chapter 14 for storm water management and a Notice of Intent (NOI)
shall be filed with WDNR.
Site Lighting - The applicant submitted a photometric plan for the site. The lighting levels meet
the 0.4 foot-candle minimum requirement for new paved areas and driveway access, while not
exceeding the maximum of 0.5 foot-candles of light trespass at the property lines. The plan
shows light fixtures to be mounted at 25 ft. which is the maximum allowed height to mount a
light fixture in the HI District.
Building Facades – The applicant plans to improve exterior front façade by painting the
existing brick charcoal and gray colors and replacing window trims with a charcoal color. The
exterior material on the building expansion will match the existing metal siding, as shown
below, which is compliant with exterior design standards for an addition that is less that 50
percent of an existing building footprint.
North Façade
East Façade
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 because the
proposed Planned Development Overlay will allow for further review of
development on the site.
(b) Is in harmony with the Comprehensive Plan because the underlying zoning
designation (HI) is consistent with the 2040 Comprehensive Land Use Plan
designation of Industrial.
(c) Maintains the desired overall consistency of land uses, land use intensities, and land
use impacts within the pertinent zoning districts because the HI zoning designation
is the consistent zoning of neighboring properties.
(d) 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
because site expansion has been proposed that may need relief from the
bulk regulations of the current zoning ordinance.
In its review and recommendation to the Common Council on an application for a Planned
Development district, staff recommends the Plan Commission consider 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 this Chapter because the current land use is consistent with the HI
zoning designation and Industrial 2040 Comprehensive Land Use Plan designation.
(b) The proposed Planned Development project is consistent with the City’s
Comprehensive Plan as Industrial land uses are designated for this property in the
2040 Comprehensive Land Use Plan.
(c) The proposed Planned Development project would maintain the desired
relationships between land uses, land use densities and intensities, and land use
impacts in the environs of the subject site because the proposed industrial use is
consistent with neighboring industrial uses along Universal Street.
(f) Project design does not detract from areas of natural beauty surrounding the site as
the applicant plans to install more trees, shrubs, and plants to the site.
(i) The proposed Planned Development project will produce significant benefits in
terms of environmental design and significant alternative approaches to addressing
development performance that relate to and more than compensate for any
requested exceptions/base standard modifications variation of any standard or
regulation of this Chapter because increased landscaping points and increased
planting size will be provided to compensate for BSM requests.
Recommendation/Conditions:
Staff recommends approval of the Zone Change, General Development Plan, and Specific
Implementation Plan with the findings listed above and the following conditions:
1. Base Standard Modification to allow increased impervious surface ratio to 76.6%.
2. Final landscaping plan shall be reviewed and approved by the Department of
Community Development.
The Plan Commission recommended approval of the requested General Development Plan and
Specific Implementation Plan on September 2, 2025. For a comprehensive record of the
proceedings, the official minutes can be obtained by contacting Planning Services.
Page 8
August 11, 2025
City of Oshkosh – Plan Commission
215 Church Avenue
Oshkosh, WI 54903
RE: Zoning Map Amendment & Planned Development Application for property located at 2751 Universal
Street, Oshkosh, WI 54904; further described as NE 1/4, SW 1/4 of Section 33, T.18N. - R.16E., CITY OF
OSHKOSH
Dear Plan Commission:
Thank you for your review of the proposed Zoning Amendment. We appreciate the Plan Commission’s willingness
to work together to improve the community by expanding business, improving the Industrial Park’s curb appeal,
and increasing handicap accessibility.
Millwork Distributors, Inc. is proposing a substantial $2,5000,000.00 expansion and remodel to their existing
facility. Project goals include:
Increased warehouse space to accommodate growth.
Remodel of restrooms and breakroom facilities for employee comfort and handicap accessibility.
Exterior facade updates for a modern curb appeal.
Additional parking for increased employment and handicap accessibility.
Major upgrades to the stormwater systems to meet today’s standards for retention and filtration.
* Please see included Architectural and Civil Engineered Plans that illustrate these facility improvements.
The project is scheduled to begin in September 2025 and will be completed in April 2026. Priority during
construction will be earthwork, including stormwater facility upgrades, interior and exterior concrete work for site
stabilization, and exterior facade work prior to frost conditions. This will allow for general building erection and
interior remodel throughout the winter months and prompt completion of landscaping features come springtime.
To accomplish the facility, handicap accessibility, and stormwater upgrades noted above, the site will require a
reduction of greenspace from 34.4% to 22.8% of the parcel. Current zoning standards call for 30% greenspace for
Heavy Industrial Zoning. As a result, Millwork Distributors is seeking the approval of a Planned Development
Overlay Zoning which would allow this project to move forward. In exchange for the reduction of greenspace
percentages, landscaping will be provided that will exceed the current requirements (list requirements and additional
provided) for Heavy Industrial Zoning. Additionally, the current dry pond will become a landscaped wet pond and
the front office facade, facing the roadway, will be refreshed.
We appreciate your consideration to allow these upgrades to this property and the Industrial Park overall.
Scott Ryback, President & CEO
Millwork Distributors, Inc.
2751 Universal Street
Oshkosh, WI 54904
Sam Winterfeldt
Keller, Inc.
N216 State Road 55,
Kaukauna, WI 54130
Page 9
BUILDING CODE ANALYSIS
PROJECT ADDRESS
2751 UNIVERSAL STREET, OSHKOSH, WI, 54904
APPLICABLE CODES
2015 International Building Code (w/ WI Amendments)
2015 IECC
2015 IEBC (Level 2 Alteration)
OCCUPANCY
S1
Accessory Use
NONE
Incidental Use
NONE
High-Piled Combustible Storage YES
Hazardous Materials NO
Multiple Control Areas NO
HEIGHT & AREA
Building Height: 27'-0" Maximum Allowed: 75'-0"
Number of Stories: 1 Maximum Allowed: 3
Total Building Area: 24,000 S.F. Maximum Allowed: 70,000 S.F.
Total Fire Area: 24,000 S.F. Maximum Allowed: 70,000 S.F.
Mixed/Separated Occupancies
Unlimited Area Building NO
CONSTRUCTION TYPE
Construction Classification IIB
Fire Separation Distance >10'-0"
FIRE PROTECTION SYSTEMS
Assumed Sprinkler Type NFPA 13
Fire Alarm System NO
MEANS OF EGRESS
Occupant Load 48
Panic Hardware NO
STRUCTURAL DESIGN
Risk Category II
Design Loads
Roof Live Load 20 psf
Walk-on IMP Ceiling Live Load N/A psf
Steel Framing
Collateral Load 5 psf
Wood Truss
Top Chord Dead Load N/A psf
Bottom Chord Load N/A psf
Mezzanine/Second Floor/Basemen
Live Load N/A psf
Point Load (Partition) N/A psf
Snow Load Criteria
Ground Snow Load (Pg) 35 psf
Exposure Factor (Ce) 1.0
Thermal Factor (Ct) 1.0
Wind Loads
Wind Load 115 MPH
Surface Roughness B
Exposure Category D
Earthquake Load Criteria
Soil Site Class D
Ss 0.296
S1 0.061
PLUMBING SYSTEMS
Mens WC Required 1
Womens WC Required 1
Drinking Fountain Required 1
Other Source YES
Ambulatory Stall Required YES
MECHANICAL SYSTEMS
NO SINGLE PIECE OF EQUIPMENT OVER 400,000 BTU
NO BOILERS OVER 15PSI AND 10 HORSEPOWER
SITE INFORMATION
SITE CONTENT
Building Size 96,826 S.F. 43.90%
Hard Surface 65,803 S.F. 29.84%
Green Space 57,929 S.F. 26.26%
Parcel Size (Approx.) 220,558 S.F. 5.06 Acres
Parking Provided -- Stalls
Area of Disturbance -,--- S.F.
ZONING
Property Zoning --
Setbacks FY -'--" SY -'--" RY -'--"
Hard Surface Setback -'--"
Coverage Limit --%
Greenspace Requirement --%
Parking Required -- Stalls
Refuse Enclosure YES/NO
RTU SCREENING YES/NO
FLOOR AREAS
SECOND FLOOR
BUILDING & FIRE AREA
SQUARE FOOTAGES
FIRST FLOOR
CANOPIES (COLUMN SUPPORTED)
BASEMENT
EXISTING NEW
N/A
SUB-TOTAL
BUILDING AREA SUB-TOTALS
MEZZANINES
FIRE AREA TOTALS
------ S.F. ------ S.F.
74,002 S.F. 24,000 S.F. 98,002 S.F.
77 S.F.------ S.F.
------ S.F. ------ S.F.
74,079 S.F. 98,079 S.F.
9,113 S.F. ------ S.F.
83,182 S.F.107,182 S.F.
N/A
24,000 S.F.
24,000 S.F.
77 S.F.
9,113 S.F.
UN
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20' BUILDING SETBACK
20' BUILDING SETBACK
30' BUILDING SETBACK
25' BUILDING SETBACK
EXISTING
BUILDING
120'-0"
EXPAND
EXISTING
CONCRETE
PAVING
30'-0"
20'-0"
ADDITIONAL CONCRETE
TO INCREASE PARKING
(14) -NEW EMPLOYEE PARKING STALLS
200'-0"
PROPOSED
ADDITION
24,000 S.F.72,002 S.F.
5
'
-
0
"
ALT:
NEW CONCRETE
GENERATOR PAD
RECESSED LOADING DOCKS
75'-0"
25'-0"
TRUCK MANEUVERING SPACE
AT-GRADE
OVERHEAD
DOOR
(WILL-CALL
PICK-UP)
AT-GRADE
OVERHEAD
DOOR
150'-0"
CUSTOMER
CUSTOMER
CUSTOMER
CUSTOMER
CU
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(8) -EXISTING EMPLOYEE PARKING STALLS
(15) -EMPLOYEE PARKING STALLS
(11) -EMPLOYEE PARKING STALLS (1
2
)
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FIRE LANE
FIRE LANE
FIRE LANE
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FIRE LANE
NUMBER OF
SPACES
HANDICAP
EMPLOYEE
CUSTOMER
4
60
9
PARKING COUNTS
PRELIMINARY NO:
SUPERVISOR:
EXPEDITOR:
DRAWN BY:
CONTRACT NO:
DATE:
SHEET:
REVISIONS
"COPYRIGHT NOTICE"
This design, drawing and detail is the
copyrighted property of KELLER, INC.
No part hereof shall be copied, duplicated,
distributed, disclosed or made available to
anyone without the expressed written
consent of KELLER, INC.
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DESIGNER:
PROJECT MANAGER:
INTERIOR DESIGNER:
C1.0
10.15.2024
TDP
-------
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P24253
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MILLWORK DISTRIBUTORS INC.
PROPOSED FOR:
OSHKOSH,
S. WINTERFELDT
G. STRAUB
-------
NORTH
SHEET INDEX
C1.0 CONCEPTUAL SITE PLAN
EX1.0 EXISTING FLOOR PLAN
EX2.0 EXISTING ELEVATIONS
A1.0 FLOOR PLAN
A1.1 ENLARGED FLOOR PLANS
A2.0 ELEVATIONS
A3.0 SECTIONS
A3.1 SECTIONS
A7.0 REFLECTED CEILING PLAN
S1.0 FOUNDATION PLAN
THE LOT DIMENSIONS AND BEARINGS SHOWN ON THIS PLAN ARE INTERPRETED VALUES. BACKGROUND
INFORMATION TAKEN FROM LOCAL GIS DATE. AERIAL IMAGERY AND/OR CLIENT PROVIDED INFORMATION,
EASEMENTS, STREAMS AND ROADS ARE APPROXIMATE IN NATURE. FOLLOW UP INVESTIGATION WITH
STATE AND LOCAL AUTHORITIES AND/OR WITH CERTIFIED SURVEY MAP DATA WHEN AVAILABLE IS REQUIRED.
0'15'30'60'120'
1" = 30'-0"
CONCEPTUAL SITE PLAN
1 05.12.2025 KRW
2 05.21.2025 KRW
3 06.05.2025 KRW
4 06.13.2025 TDP
5
6
Page 10
UNIVERSALST
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·$91
·$44
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: 8/11/2025
1 in = 400 ft
1 in = 0.08 mi¯2751 UNIVERSAL STNOTICE 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
Page 11
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Prepared by: City of Oshkosh, WI
Printing Date: 8/11/2025
1 in = 400 ft
1 in = 0.08 mi¯2751 UNIVERSAL STZONING & 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
Page 12
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Kimberly Gierach, Planning Services Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-510 Approve General Development Plan 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 (Plan Commission recommends approval)
B A C K G R O U N DBACKGROUND
Th e su bject area con sists of fou r v acan t lots an d on e lot w ith an existin g sin gle-fam ily h om e
alon g West 8 th Av en u e an d fiv e v acan t lots alon g West 9 th Av en u e. All properties are zon ed
Tw o Flat R esiden tial-1 0 District (TR -1 0 ), w ith th e exception of th e western -m ost lot alon g West 8 th
Av en u e (parcel 9 0 3 0 1 0 1 0 0 0 0 ), w h ich is zon ed Cen tral Mixed Used District (CMU). Th e
su rrou n din g area con sists of residen tial u ses an d a ch u rch to th e sou th , residen tial u ses to th e
east, park in g lots to th e n orth , an d m ixed com m ercial u ses to th e west alon g O reg on Street. Th e
2 0 4 0 Com preh en siv e Lan d Use Plan recom m en ds Cen ter City u ses for th e su bject area.
A N A L Y S I SANALYSIS
Th e applican t is proposin g a m u lti-fam ily dev elopm en t con sistin g of tw o, ten -u n it town h om e
bu ildin gs an d tw o, tw o-u n it bu ildin g s; each bu ildin g is on a separate in div idu al lot. Th e
proposed ten -u n it tow n h om es are n ot perm itted in th e TR -1 0 District. Staff is su pportiv e of a Base
Stan dard Modification (BSM) to allow th e proposed dev elopm en t.
A n eig h borh ood m eetin g was h eld on Au g u st 1 3 th , 2 0 2 5 . Neigh bors in atten dan ce were
gen erally su pportiv e of th e proposed u se.
F I S C A L I M P A C TFISCAL I M P A C T
Approv al of th is m ay resu lt in an in crease in th e assessed property v alu e for th e site. Th e
applican t is an ticipatin g spen din g approxim ately $8 m illion on th e proposed project.
R E C O M M E N D A T I O NRECOMMENDATION
Th e Plan Com m ission recom m en ded approv al of th e requ ested G en eral Dev elopm en t Plan on
Septem ber 2 , 2 0 2 5 . Please see th e attach ed staff report for m ore in form ation .
A t t a c h m e n t sAttachments
Res 25-510
GDP Pangaea Development
09/23/2024 25-510 RESOLUTION
PURPOSE: APPROVE GENERAL DEVELOPMENT PLAN FOR A MULTI-FAMILY DEVELOPMENT LOCATED ON THE
SOUTH SIDE OF THE 100 BLOCK OF WEST 8TH AVENUE (PARCELS 90301010000, 90301040000, 90301050000,
90301060000, 90301070000, 90301100000, 90301110000, 90301120000, 90301130000 AND 90301150000)
INITIATED BY : JIBRIL ODOGBA
PLAN COMMISSION RECOMMENDATION: Approved
WHEREAS, the Plan Commission finds that the General Development Plan for a multi-family development
at parcels 90301010000, 90301040000, 90301050000, 90301060000, 90301070000, 90301100000, 90301110000,
90301120000, 90301130000 and 90301150000, is consistent with the criteria established in Section 30-387 of
the Oshkosh Zoning Ordinance.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that a multi-family
development at parcels 90301010000, 90301040000, 90301050000, 90301060000, 90301070000, 90301100000,
90301110000, 90301120000, 90301130000 and 90301150000, per the attached, is hereby approved, with the
following findings:
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.
1.
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.
2.
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.
3.
BE IT FURTHER RESOLVED by the Common Council of the City of Oshkosh that the following are conditions of
approval for a multi-family development at parcels 90301010000, 90301040000, 90301050000, 90301060000,
90301070000, 90301100000, 90301110000, 90301120000, 90301130000 and 90301150000:
Base Standard Modification (BSM) to allow two, ten-unit townhomes in the TR-10-PD Zoning District.1.
All other BSMs will be addressed as part of the Specific Implementation Plan application.2.
ITEM: 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)
Plan Commission Meeting of September 2, 2025
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
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.
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.
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.
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.
The Plan Commission recommended approval of the requested General Development
Plan on September 2, 2025. For a comprehensive record of the proceedings, the official
minutes can be obtained by contacting Planning Services.
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 appli cation,
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)
Page 7
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 pro perty 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
Page 8
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.
Page 11
2
CONCEPTUAL RENDER - FRONT
Page 12
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
T
.
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
'
-
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
'
-
0
"
26' - 6"191' - 0"
35
'
-
0
"
42
'
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6
"
35' - 6"
24' - 6"
45
'
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0
"
58
'
-
6
"
24' - 6"35' - 0"
39
'
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0
"
39' - 0"
35
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"
191' - 0"
35
'
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"
30' - 6"
58
'
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"
20
'
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0
"
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
Page 14
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 ft
1 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
Page 15
NEBRASKA
ST
NE
BRAS
KA
S
T
W 8TH AV
W 7TH AV
N
E
B
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A
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A 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
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ASKA ST
W 9TH AV
OREGON ST CMU
CMU-PD
CMU-PD
I
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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 ft
1 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
Page 16
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Rebecca Grill, City Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-511 Adopt 2026 calendar of Council meetings
B A C K G R O U N DBACKGROUND
Wiscon sin Statu tes requ ire Cou n cils to establish by ordin an ce a tim e for h oldin g regu lar
m eetin gs. For m an y years th is regu lar m eetin g tim e for th e City of O sh k osh Com m on Cou n cil
h as been th e secon d an d fou rth Tu esdays of each m on th . In th e past, th ere h av e been
in stan ces w h ere th is m eetin g sch edu le w as altered becau se of election s or h olidays, lack of
qu oru m or oth er reason s. Th e city h as also recen tly u pdated th e city w ebpag e to in clu de a
m on th ly calen dar of m eetin gs wh ich prov ides access to th e calen dar ou t in to fu tu re m on th s
an d years. With th e n ew electron ic calen dar form at an d in lig h t of th e an n u al n eed to
ch an g e certain dates, Cou n cil approv ed an ordin an ce ch an ge at th eir Au g u st 2 6 , 2 0 2 5 ,
m eetin g th at w ill allow for th e an n u al establish m en t of m eetin gs for th e u pcom in g year.
A N A L Y S I SANALYSIS
Attach ed is a proposed calen dar for Cou n cil's approv al to establish th e m eetin g dates for
2 0 2 6 . Th e ch an ges from th e h istorically observ ed Cou n cil dates are m ean t to address election
m on th s (to allev iate dem an ds on Clerk 's office staff), an d to av oid week s wh en qu oru m m ay
be an issu e (EAA's AirVen tu re, h olidays, etc.). In order to lim it an y poten tial n egativ e im pact on
dev elopm en t an d oth er projects in th e city, staff is also ask in g Cou n cil to separately con sider a
ch an g e to ou r code requ irin g tw o readin g s of ev ery ordin an ce.
A t t a c h m e n t sAttachments
Res 25-511
Draft 2026 Council Calendar
9/23/2025 25-511 RESOLUTION
PURPOSE: APPROVE 2026 COMMON COUNCIL CALENDAR OF MEETINGS
INITIATED BY : CITY ADMINISTRATION
WHEREAS, Section 2-10(b) of the City of Oshkosh Municipal Code allows for the establishment of an annual
calendar of meetings.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the attached
calendar is hereby approved for the establishment of meeting dates for the Common Council of the City of
Oshkosh for 2026.
DRAFT
COMMON COUNCIL CALENDAR
Holidays
SUN MON TUE WED THU FRI SAT SUN MON TUE WED THU FRI SAT Elections
1 2 3 1 2 3 4 5 6 7
4 5 6 7 8 9 10 8 9 10 11 12 13 14 Common Council Meetings
11 12 13 14 15 16 17 15 16 17 18 19 20 21
18 19 20 21 22 23 24 22 23 24 25 26 27 28
25 26 27 28 29 30 31 OASD Spring Break
EAA AirVenture
SUN MON TUE WED THU FRI SAT SUN MON TUE WED THU FRI SAT
1 2 3 4 5 6 7 1 2 3 4
8 9 10 11 12 13 14 5 6 7 8 9 10 11
15 16 17 18 19 20 21 12 13 14 15 16 17 18
22 23 24 25 26 27 28 19 20 21 22 23 24 25
29 30 31 26 27 28 29 30
SUN MON TUE WED THU FRI SAT SUN MON TUE WED THU FRI SAT
1 2 1 2 3 4 5 6
3 4 5 6 7 8 9 7 8 9 10 11 12 13
10 11 12 13 14 15 16 14 15 16 17 18 19 20
17 18 19 20 21 22 23 21 22 23 24 25 26 27
24 25 26 27 28 29 30 28 29 30
31
SUN MON TUE WED THU FRI SAT SUN MON TUE WED THU FRI SAT
1 2 3 4 1
5 6 7 8 9 10 11 2 3 4 5 6 7 8
12 13 14 15 16 17 18 9 10 11 12 13 14 15
19 20 21 22 23 24 25 16 17 18 19 20 21 22
26 27 28 29 30 31 23 24 25 26 27 28 29
30 31
SUN MON TUE WED THU FRI SAT SUN MON TUE WED THU FRI SAT
1 2 3 4 5 1 2 3
6 7 8 9 10 11 12 4 5 6 7 8 9 10
13 14 15 16 17 18 19 11 12 13 14 15 16 17
20 21 22 23 24 25 26 18 19 20 21 22 23 24
27 28 29 30 25 26 27 28 29 30 31
SUN MON TUE WED THU FRI SAT SUN MON TUE WED THU FRI SAT
1 2 3 4 5 6 7 1 2 3 4 5
8 9 10 11 12 13 14 6 7 8 9 10 11 12
15 16 17 18 19 20 21 13 14 15 16 17 18 19
22 23 24 25 26 27 28 20 21 22 23 24 25 26
29 30 27 28 29 30 31
2026
JANUARY FEBRUARY
MARCH APRIL
NOVEMBER DECEMBER
MAY JUNE
JULY AUGUST
SEPTEMBER OCTOBER
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Tim Heiman, Fire Chief
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Res 25-512 Approve Ambulance Service Agreement for 2026 with the Town of Algoma
B A C K G R O U N DBACKGROUND
Th e City of O sh k osh h as a sm all residen tial n eigh borh ood on its western border th at does n ot
offer am bu lan ce serv ices. Th is ag reem en t en su res th e deliv ery of h ig h -qu ality param edic
em ergen cy m edical serv ices to th e residen ts. Am bu lan ce serv ices in th is area wou ld
n ecessitate th e respon se of a City of O sh k osh param edic am bu lan ce as th e Tow n of Algom a is
a v olu n teer fire departm en t with n o tran sport am bu lan ce serv ice.
A N A L Y S I SANALYSIS
A seam less tran sition is cru cial to en su re u n in terru pted am bu lan ce serv ices as th e Town of
Algom a Fire Departm en t does n ot h av e tran sport am bu lan ce serv ices th at wou ld
au tom atically respon d w h en n eeded. Sh ou ld an am bu lan ce be n eeded, an O sh k osh Fire
Departm en t param edic am bu lan ce crew wou ld au tom atically respon d with tw o train ed
param edics.
F I S C A L I M P A C TFISCAL I M P A C T
Th e agreem en t delin eates a cost-sh arin g m odel sim ilar to prior am bu lan ce arran g em en ts,
facilitatin g bu dget predictability for both th e City of O sh k osh an d th e Tow n of Algom a. Th e
fin an cial projection s in dicate a m odest in crease in operation al costs, prim arily du e to in flation
adju stm en ts an d tech n ological u pgrades.
R E C O M M E N D A T I O NRECOMMENDATION
I recom m en d th at th e Com m on Cou n cil approv e th e am bu lan ce serv ice agreem en t w ith th e
Tow n of Algom a so th at we can best serv e ou r respectiv e com m u n ities.
A t t a c h m e n t sAttachments
Res 25-512
Ambulance Service Agreement_Algoma - Draft
09/23/2025 25-512 RESOLUTION
PURPOSE: APPROVE AMBULANCE AGREEMENT BETWEEN THE CITY OF OSHKOSH AND TOWN OF ALGOMA FOR
AMBULANCE SERVICES FOR 2026
INITIATED BY : OSHKOSH FIRE DEPARTMENT
WHEREAS, the Oshkosh Fire Department would provide ambulance services through contract with the
Town of Algoma to provide delivery of high-quality paramedic emergency medical services to the residents;
and
WHEREAS, the Town of Algoma Fire Department does not have transport ambulance services that would
automatically respond when needed. Should an ambulance be needed, an Oshkosh Fire Department
paramedic ambulance crew would automatically respond with two trained paramedics. The Town of
Algoma has requested the Oshkosh Fire Department provide services within the contract for calendar year
2026.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the attached
Agreement with Town of Algoma from January 1, 2026 through December 31, 2026 is hereby approved and
the proper City officials are hereby authorized to execute and deliver the agreement in substantially the
same form as attached hereto, any changes in the execution copy being deemed approved by their
respective signatures, and said City officials are authorized and directed to take those steps necessary to
implement the terms and conditions of the Agreement.
AMBULANCE SERVICE AGREEMENT
2026
This AGREEMENT for AMBULANCE SERVICE is made and entered into by and
between the CITY OF OSHKOSH, a Wisconsin municipality with its principal offices
located at 215 Church Avenue, Oshkosh, Winnebago County, Wisconsin 54903-1130
("CITY"), and the TOWN OF ALGOMA, a political subdivision and body politic of the
State of Wisconsin, with its principal offices located at 15 n. Oakwood Road, Oshkosh,
Winnebago County, Wisconsin 54904. ("TOWN").
WHEREAS, TOWN, being without its own emergency medical services, desires to
provide emergency medical services to its citizens, pursuant to Chapter 256, of the
Wisconsin Statutes, and Chapters DHS 110 of the Wisconsin Administrative Code, as
amended from time to time, through contract with CITY; and
WHEREAS, CITY has indicated a desire and willingness to provide such services to
TOWN; and
WHEREAS, TOWN is authorized by Section 60.565 of the Wisconsin Statutes to contract
for ambulance services and municipalities are authorized by Section 66.0301 of the
Wisconsin Statutes to contract with other municipalities for the provision of services.
NOW, THEREFORE, for and in consideration of the mutual agreements herein
contained and other good and valuable consideration, CITY and TOWN agree as
follows:
1.DESCRIPTION OF SERVICES. TOWN hereby appoints the City of Oshkosh Fire
Department as the TOWN’s emergency medical services provider for the term of
this Agreement. CITY shall provide emergency ambulance service in TOWN. For
purposes of this agreement, "emergency ambulance service” shall be defined as
that ambulance service which is necessary to respond to a condition that in the
opinion of the person, his/her family or whoever calls for and/or attends to the
person, requires immediate medical attention, but shall specifically exclude non-
emergency transfer calls. Dispatch shall be through the Winnebago County
Emergency Dispatch System.
2. TERM. The term of this agreement shall commence at 12:00 a.m. on January 1,
2026, and shall continue until 11:59 p.m. on December 31, 2026, unless terminated
as provided in this agreement.
3.EQUIPMENT AND STAFFING OF AMBULANCE. CITY shall be responsible to
obtain, house and maintain a sufficient number of fully equipped and staffed
ambulances to reasonably assure response to requests for emergency medical
services covered by this Agreement or to request mutual aid for response as
required. All ambulances shall be equipped to provide Advanced Life Support
Services. For purposes of this Agreement, a one-level system of emergency
ambulance service, staffed by paramedics as defined by Sec. 256.01 (14) Wis.
Stats., shall apply.
4.RESPONSE TO TOWN. The CITY shall respond to the TOWN as promptly as
practicable, with a response time of twenty (20) minutes or less achieved in no
fewer than ninety percent (90%) of all instances.
TOWN recognizes that CITY is not providing a dedicated ambulance to TOWN
and CITY may also provide ambulance service to other municipalities on a similar
contractual basis.
5.FIRST RESPONDER PROGRAM. The TOWN will maintain a first responder
program to assist CITY response in the TOWN. The program will follow the State
of Wisconsin emergency medical service training guidelines, as may be amended
from time to time, and shall include an automatic defibrillator program.
6.SERVICES, SUPPLIES, AND BILLING OF AMBULANCE SERVICE
USERS/PATIENTS. CITY shall provide services and supplies for emergency use
as hereinafter defined as necessary, and may establish a reasonable charge to the
ambulance user/patient for providing such services and supplies. For purposes
of this agreement, supplies for emergency use shall be defined as those medical
supplies which are essential for the personnel who are staffing ambulances used
by Provider to provide adequate care for the critical emergency scene and during
transport to medical facilities, including, but not limited to the following: (a)
Intravenous infusions, (b) Medications, (c) Heart Monitoring, (d) Oxygen, (e)
Disposable blankets, (f) Universal dressing, (g) Sterile gauze pads, (h) soft roller-
type bandages, (f) adhesive tape. City shall replace those supplies used by first
responders to treat patients. City shall bill patients for such supplies.
The CITY shall be solely responsible for invoicing and collection of all fees for
ambulance service from patients pursuant to its schedule of costs, including
mileage.
7.PER CAPITA FEE TOWN. TOWN shall pay the CITY, an annual per resident fee,
based on population as indicated by the most recent Wisconsin Department of
Administration Municipality Population Estimate. The per resident fee shall be
calculated annually based on the net operating cost of ambulance service, divided
by the total population of the service area (City and TOWN or all Towns
contracting for services should CITY enter into additional service agreements
with other towns) as is shown on attached Exhibit A.
The estimated fee for calendar year 2026 is $40.40.
The final fee amount shall be calculated based upon actual expenditures and
revenues from January through September 2026 and an estimate of the
expenditures and revenues for the remaining 3 months of 2026 and shall be
invoiced by CITY to TOWN in October, 2026. The fee contains an estimate for
payroll based upon an anticipated pay increase for employees. CITY and the
International Association of Fire Fighters Local 316 are currently in negotiations
for a contract, if the contract is not settled by the time of invoicing the increase
shall remain estimated and included in the invoiced amount. If contract
negotiations have concluded the actual pay increase shall be included in the
annual charge.
The TOWN shall pay the invoice on or before February 15, 2027. Any unpaid
amounts on and after February 15, 2027 shall accrue interest in the same manner
as CITY may charge for other outstanding invoices.
8.RECORDS AND REPORTING. At the end of the calendar year, or upon request
of TOWN, but not less than quarterly, the CITY shall submit incident response
data to include but not limited to; response times, average response times, and
transport information to each of the TOWN.
9.INSURANCE PROVISIONS - LIABILITY AND HOLD HARMLESS. Each party
shall maintain liability, errors and omissions, motor vehicle collision, workers’
compensation, and liability coverage for that party’s employees, agents, and
public officials as each party may determine is necessary and appropriate.
Subject to any limitations contained in Secs. 893.80, 893.83, 345.05, and any similar
statute, of the Wisconsin Statutes, the CITY agrees to hold TOWN, its officers,
officials, employees and agents harmless from any and all liability, including
claims, demands, losses, costs, damages, and expenses of every kind and
description (including death), or damages to person or property arising out of the
terms of this Agreement where such liability is founded upon or grows out of the
acts or omission of any of the City's officers, employees or agents while acting
within the scope of their employment.
Subject to any limitations contained in Secs. 893.80, 893.83, 345.05, and any
similar statute, of the Wisconsin Statutes, TOWN agrees to hold CITY, its officers,
officials, employees and agents harmless from any and all liability, including
claims, demands, losses, costs, damages, and expenses of every kind and
description (including death), or damages to person or property arising out of the
terms of this Agreement where such liability is founded upon or grows out of the
acts or omission of any of TOWN's officers, employees or agents while acting
within the scope of their employment.
It is the intention of the parties to this Agreement that each party shall be solely
responsible for its own actions and activities and the actions and activities of its
own officers, employees and agents while acting within the scope of their
employment. Further, it is the intention of the parties to this Agreement that each
party shall be entitled to rely upon the municipal limitations and immunities
available under Wisconsin law, including but not limited to section 345.05, 893.80
and 893.83 of the Wisconsin Statutes and that such damage limits, caps and
immunities shall be used to govern all disputes, contractual or otherwise, as they
apply to the parties, their agents, officers and employees.
10.NO THIRD-PARTY BENEFICIARIES. This agreement is solely for the benefit of
the parties to this agreement, and it is not intended to benefit any third party.
11.TERMINATION. If either party shall fail to fulfill in timely and proper manner
any of the material obligations under this Agreement, the other party may, at its
discretion, terminate this Agreement by written notice of the intent to terminate
given not less than 60 days prior to the termination date.
TOWN may terminate this Agreement prior to the termination date at its
convenience by providing written notice of the intent to terminate not less than 3
months prior to the termination date.
In the event of termination prior to the termination date, CITY shall be entitled to
compensation for the period of contract service up to the date of termination on a
prorated basis.
12.AMENDMENTS, FULL TEXT OF AGREEMENT. All agreements and
understandings have been embodied in this Agreement and no changes will be
made herein except in writing and duly signed by the authorized representatives
of the respective parties.
13.ENTIRE AGREEMENT. This Agreement, constitutes the entire agreement
between the parties, and any other prior understandings or representations made
by any party shall not be binding on any other party unless incorporated within
this document or a written amendment thereto.
14. ASSIGNMENT. Neither party to this Agreement shall transfer, sublet or assign
any rights under or interest in this Agreement (including, but not limited to,
monies that are due or monies that may be due) without the prior written consent
of the other party.
15. AGREEMENT NOT TO BE CONSTRUED AGAINST ANY PARTY. This
Agreement is the product of negotiation between all parties and therefore no term,
covenant or provision herein or the failure to include a term, covenant or provision
shall be construed against any party hereto solely on the basis that one party or the
other drafted this Agreement or any term, covenant or condition contained herein.
16. NO WAIVER. Failure of either party to insist upon the strict performance of terms
and provisions of this Agreement, or any of them, shall not constitute or be
construed as a waiver or relinquishment of that party’s right to thereafter enforce
such term or provision, and that term of the provisions shall continue in full force
and effect.
17. SEVERABILITY. If any term, covenant, condition or provision of this Agreement
shall be adjudged invalid or unenforceable by a court of competent jurisdiction,
the remainder of this agreement shall not be affected thereby and the remainder of
the agreement shall be valid and enforceable to the fullest extent permitted by law.
18. CHOICE OF LAW, VENUE, AND DISPUTE RESOLUTION. The laws of the State
of Wisconsin shall govern the interpretation and construction of this Agreement.
Winnebago County shall be the venue for all disputes arising under this
Agreement. The parties agree that it may be beneficial to undertake an initial
mutually agreeable mediation to resolve a dispute. However, unless otherwise
agreed to by the parties, all disputes shall be resolved by the judiciary. Under no
circumstance shall any dispute be subject to arbitration.
19. SIGNATURES. By placing their signatures below, each individual affirms that the
entity they represent is authorized to enter into this Agreement, and further affirm
that they are authorized by the entity they are representing to bind their respective
parties to the terms and conditions of this Agreement.
(Signature Pages to Follow)
TOWN OF ALGOMA
By: _______________________________
Joel Rasmussen, Town Chairperson
And: ______________________________________
Katherine Reinbold, Town Clerk/Treasurer
CITY OF OSHKOSH
By: _______________________________
Rebecca Grill, City Manager
And: _______________________________
Cheryl Pionke, Interim City Clerk
Approved as to form:
_____________________________
Lynn A. Lorenson, City Attorney
TO:Honorable Mayor and Members of the Common Council
FROM:James Rabe, Director of Public Works
DATE:September 23, 2025
SUBJECT:Res 25-513 Approve Utility Undergrounding Policy
BACKGROUND
Th e City of O sh k osh (City) requ ires all n ew su bdiv ision dev elopm en ts to h av e u tilities, su ch as
electric an d com m u n ication , in stalled u n dergrou n d (cu rren tly located in Section 30-444(F)(1)
of th e Mu n icipal Code of th e City of O sh k osh ) in easem en ts ou tside of th e pu blic righ t-of-way.
Electrical distribu tion lin es of tw elv e th ou san d (1 2 ,0 0 0 ) v olts (1 2 k V) or m ore are exem pt from
th e u n dergrou n d in stallation requ irem en t. Th ere are n o requ irem en ts for th e redev elopin g
areas of th e City, n or for street recon stru ction projects th at are bein g m an ag ed by th e City.
ANALYSIS
Mov in g u tilities from aerial to u n dergrou n d h as m an y ben efits in clu din g: im prov in g safety,
im prov in g clim ate ch an g e resilien cy, im prov in g aesth etics, an d redu cin g ov erall cost of
operation an d m ain ten an ce.
Th ere are also ch allen g es associated w ith m ov in g th ese u tilities u n derg rou n d in clu din g :
con gested righ t-of-way, in su fficien t terrace w idth s, a lack of u tility easem en ts ou tside of th e
righ t-of-way, an d stru ctu res bu ilt close to th e righ t-of-way. Th ere is an im pact to priv ate
property own ers as w ell, as th ey h av e to pay sev eral th ou san d dollars to con v ert th eir
ov erh ead serv ices to u n dergrou n d. If serv ices are n ot con v erted, th e u tilities m ay en d u p
placin g poles at each h ou se th at does n ot con v ert, an d brin g th e u n dergrou n d u tilities
ov erh ead to th e h ou se.
Utility com pan ies requ ire twelv e foot (1 2 ') wide easem en ts ou tside of th e pu blic rig h t-of-w ay
(on both sides of th e righ t-of-way) to in stall u tilities u n derg rou n d. If th ere are stru ctu res
(bu ildin g s) located w ith in fifteen feet (1 5 ') of th e righ t-of-way, it will be in feasible to obtain th e
requ ired twelv e foot (1 2 ') wide easem en t.
Arterial streets carry th e h igh est v olu m e of traffic, wh ich prov ides m ore ch an ces for acciden ts
to dam age aerial u tilities. Th e h igh er traffic on arterial streets also creates a g reater aesth etics
im pact with aerial u tilities. Collector streets carry th e n ext h ig h est v olu m e of traffic, w h ile local
streets carry th e low est v olu m e of traffic. Street classification is an im portan t factor for th e
Com m on Cou n cil to con sider w h en allocatin g av ailable fu n din g an d determ in in g w h ich
streets to m ov e forw ard on u tility u n dergrou n din g.
FISCAL IMPACT
Th ere is n o im m ediate fiscal im pact to approv in g th is policy; h owev er, fu tu re Com m on
Cou n cil's will n eed to ev alu ate th e fiscal im pact of projects th at con tem plate u n dergrou n din g
aerial u tilities.
RECOMMENDATION
Staff recom m en ds approv al of th e policy.
Atta chments
Res 25-513
Utility undergrounding policy
09/23/2025 25-513 RESOLUTION
PURPOSE: APPROVE UTILITY UNDERGROUNDING POLICY
INITIATED BY : DEPARTMENT OF PUBLIC WORKS
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of Oshkosh that the attached "Utility
Undergrounding Policy" is hereby approved and the proper City officials are hereby authorized and
directed to take those steps necessary to implement the Policy.
Street Reconstruction Utility Undergrounding Policy
The City of Oshkosh requires all new subdivision developments to have utilities such as
electric and communication installed underground (currently located in Section 30-444(F)(1) of
the Municipal Code of the City of Oshkosh) in easements outside of the public right-of-way.
Electrical distribution lines of twelve thousand (12,000) volts (12kV) or more are exempt from
the underground installation requirement. There are no requirements for the redeveloping
areas of the city, nor for street reconstruction projects that are being managed by the City of
Oshkosh.
As both the city and private property owners continue to reinvest in previously developed
parts of the city, it becomes important to consider where it is feasible to have aerial utilities
installed underground.
Moving these utilities from aerial to underground has many benefits including: improving
safety, improving climate change resiliency, improving aesthetics, and reducing overall cost of
operation and maintenance.
There are also challenges associated with moving these utilities underground including:
congested right-of-way, insufficient terrace widths, a lack of utility easements outside of the
right-of-way, and structures built close to the right-of-way.
Another challenge to moving utilities from aerial to underground is the impact on private
property owners. Property owners will have to pay several thousand dollars to convert their
overhead services to underground. If services are not converted, the utilities may end up
placing poles at each house that does not convert, and bring the underground utilities
overhead to the house.
Given the number of benefits and challenges, it is important to establish a policy to guide the
review of circumstances to determine where it is, or is not, feasible to underground utilities.
Gateway Corridors are the “entryways” into the City of Oshkosh. These corridors all start
with an interchange on Interstate Highway 41 (I-41). There has long been a focus on cleaning
up these Gateway Corridors to provide a more appealing and welcoming entrance into the
City of Oshkosh. For the purposes of this policy, the Gateway Corridors are defined as:
South Park Avenue from I-41 to South Main Street
9th Avenue from I-41 to South Main Street
Oshkosh Avenue from I-41 to Fox River
Algoma Boulevard from I-41 to Congress Avenue
Jackson Street from I-41 to Fox River
Department of Public Works staff will annually evaluate streets that appear in years four
through ten (4-10) of the annual Capital Improvement Program (CIP) Plan to determine
feasibility for potential utility undergrounding. This feasibility review will look at a number
of different criteria to determine if the street reconstruction project should be further evaluated
for utility undergrounding. If the feasibility review indicates that there is the potential for
utility undergrounding, Public Works staff will begin design work so that utility coordination
and easement acquisition can begin. The City design work will need to be completed 2-3 years
prior to planned construction, to allow time for the utilities to complete their design work.
Criteria for evaluating feasibility:
Gateway Corridor
Street Classification: Arterial, Collector, Local
Proximity of structures to ROW (greater than, or less than 15’)
Voltage of electrical distribution (12kV and higher infeasible)
Review of outage history with utilities
Terrace width
Presence of green space boulevards within the public right-of-way
Number of utilities present on poles
Due to the increased risk and visibility along Gateway Corridors, these streets will
automatically warrant additional review and exploration. Even if other factors limit or restrict
the ability to install utilities underground, staff will explore additional options to improve
these corridors.
Electrical distribution lines of 12,000 volts (12kV) are deemed to be infeasible for
undergrounding. On streets with electrical distribution lines of 12kV or higher, the feasibility
of undergrounding other aerial utilities will be evaluated in an effort to provide some of the
benefits of undergrounding of utilities.
Utility companies require twelve foot (12’) wide easements outside of the public right-of-way
(on both sides of the right-of-way) to install utilities underground. If there are structures
(buildings) located within fifteen feet (15’) of the right-of-way, it will be infeasible to obtain the
required 12’ wide easement.
Arterial streets carry the highest volume of traffic, which provides more chances for accidents
to damage aerial utilities. The higher traffic on arterial streets also creates a greater aesthetics
impact with aerial utilities. Collector streets carry the next highest volume of traffic, while
local streets carry the lowest volume of traffic. Street classification is an important factor for
the Common Council to consider when allocating available funding and determining which
streets to move forward on utility undergrounding.
During the utility coordination phase, Public Works staff will work with the utility companies
to determine if any of the streets in the CIP Plan have a history of outages, or have a
connectivity issue that can be addressed during the reconstruction project. The number of
utilities present on the poles will be evaluated during this coordination phase to assist in
determining if there is adequate space to move forward with an undergrounding project.
Public Works staff will update the CIP Plan Project sheets to include information regarding the
evaluation of streets for utility undergrounding. For streets that are feasible for utility
undergrounding, the project cost estimates will be updated to include easement acquisition
costs and utility underground costs in years prior to the street being reconstructed. This will
allow the cost and benefit to be weighed by Common Council when approving the CIP. These
costs will reduce the number of streets that can be reconstructed as the CIP budget is balanced
annually.
Neither the Department of Public Works, nor the City of Oshkosh as an organization currently
have property acquisition specialist staff. An acquisition specialist will be retained with work
with adjacent property owners to attempt to secure the necessary easements for projects that
are deemed feasible for utility undergrounding. Property owners must agree to grant the
easements, eminent domain may not be utilized to obtain these easements.
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Budget Workshops:
Tu esday, O ctober 1 4 , 2 0 2 5 , 4 -6 pm
Wedn esday, O ctober 1 5 , 2 0 2 5 , 5 -7 pm (if n eeded)
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :2026 Operations Budget Public Hearing, October 28, 2025, 5pm
T O :T O :Honorable Mayor and Members of the Common Council
F R O M :F R O M :Rebecca Grill, City Manager
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Removal of 1915 Fire Engine from Municipal Collection
B A C K G R O U N DBACKGROUND
Du e to a tim e sen sitiv e sale, form er O sh k osh Mayor Pau l Esslin ger pu rch ased a h istoric 1 9 1 5 Fire
En gin e form erly u sed by th e O sh k osh Fire Departm en t from a priv ate party in order to en su re its
preserv ation for fu tu re g en eration s. At th eir Nov em ber 1 0 th , 2 0 0 9 m eetin g, th e O sh k osh
Com m on Cou n cil approv ed th e acqu isition of th e 1 9 1 5 Fire En gin e an d v oted to approv e th e
reim bu rsem en t in an am ou n t n ot to exceed $1 1 ,0 0 0 to Esslin ger. At th e tim e of th e acqu isition
th e 1 9 1 5 Fire En gin e w as operation al, requ ired low m ain ten an ce, an d cou ld be stored at th e
O sh k osh Fire Departm en t for th e pu rposes of display, edu cation al ou treach activ ities, an d u se
in pu blic ev en ts.
A N A L Y S I SANALYSIS
Followin g years of u se an d m ain ten an ce th e 1 9 1 5 Fire En g in e h as ceased its ability to operate
in th e m an n er for wh ich it was in ten ded an d th ere are n o fu n ds dedicated to its u pk eep. Th e
O sh k osh Fire Departm en t n o lon ger h as th e capacity to store th e v eh icle n or can it be m ade
accessible to th e pu blic for edu cation al ou treach activ ities an d u se in pu blic ev en ts.
Th e 1 9 1 5 Fire En gin e w ill be rem ov ed from th e City's own ersh ip an d disposed of in a m an n er
con sisten t with existin g processes, as well as with th e requ irem en ts ou tlin ed in th e City of
O sh k osh G ift an d Don ation Policy.
F I S C A L I M P A C TFISCAL I M P A C T
No lev y fu n ds are bein g requ ested.
D A T E :D A T E :September 23, 2025
S U B J E C T :S U B J E C T :Current Initiatives
A t t a c h m e n t sAttachments
09.23.2025 Current Initiatives
City of Oshkosh
Status of Current Initiatives
Date of Initial
Request
Affected
Department(s)
(if applicable)
Initiative Current Status Next Status
Report/Update Other Notes
1/10/2023 DPW/Legal Sanitary District Negotiations
Tentative agreement reached, which will be
presented to Council at the September 23rd
meeting.
9/23/2025
4/16/2024 DPW & Community
Development Undergrounding Utilities
The draft policy was updated following
Council discussion on July 8th and is
appearing on the September 23rd meeting
for Council consideration.
9/23/2025
11/26/2024 Public Works /
Finance / Legal
Special Assessment Deferral Policy
A draft policy was discussed at the 7/8/25
Council meeting and some modifications
given with regard to early payments and
length of deferal.
10/14/2025
Related ordinance changes are also being
drafted, which may incorporate all of the
policy items discussed. This item will be
referred to Long Range Finance Committee
for a recommendaton (next meeting
10/1/25), at which point the policy and/or
ordinance changes will come to Council for
consideration.
8/12/2025 Legal / Police /
Transportation ATV/UTV Ordinance
At their August 12th meeting, Council
discussed the possibility of adding an
ordinance allowing ATVs and UTVs to
operate in the city at their August 12th
meeting. It was referred to the Transportation
Committee for a recommendation, using the
Winnebago County ordinance as a starting
place for their discussion.
10/28/2025
Transportation Committee (TC) discussed at
their September 9th meeting and requested
some public input on the matter before
proceeding with a recommendation. Public
survey went live on September 19th, and the
item will return to TC with this input at their
October 14th meeting.
9/23/2025