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HomeMy WebLinkAboutItem 4 PLAN COMMISSION STAFF REPORT MARCH 3, 2026 ITEM 4: General Development Plan and Specific Implementation Plan for a Multi- Building Demolition and Parking Addition At 777 Algoma Boulevard (University of Wisconsin – Oshkosh) Applicant: Adam Krieger, P.E. (GRAEF-USA) Owner: Corey Finkelmeyer (UW-Oshkosh) Action Requested: The petitioner requests a General Development Plan (GDP) and Specific Implementation Plan (SIP) approval for a multi-building demolition (Radford Hall at 777 Algoma Boulevard; Webster Hall at 810 High Avenue; Donner Hall at 820 High Avenue), as well as a parking addition. Applicable Ordinance: Planned Development: Section 30-387 of the Zoning Ordinance. Property Location and Background Information: The subject area included in this request consists of one parcel totaling 16.09 acres, with frontage on Algoma Boulevard, High Avenue, Osceola Street, and Woodland Avenue. The site is zoned Institutional District with a Planned Development Overlay and a University Transition Overlay (I-PD-UTO). The surrounding area consists of institutional uses, and industrial uses to the west. Adjacent Land Use and Zoning Existing Uses Zoning North Institutional I-PD-UTO South Institutional I-PD East Institutional I-PD-UTO West Institutional & Industrial I-PD & UI-RFO Comprehensive Plan Land Use Recommendation Land Use 2040 Land Use Recommendation Community Facility Use/Site Design: The applicant is proposing to demolish three existing dormitory buildings along with existing utilities, concrete sidewalk, concrete pavement, several trees, and electrical/mechanical equipment located within the project site. The redevelopment area will then allow for construction of access sidewalks across the site with a new parking area located at the northwestern portion of the project site. The parcel area outside of the proposed demolition project area will maintain its current use. Page 1 ITEM 4 – GDP SIP – 777 Algoma Blvd The project site is located south of Clow Social Science Center and is directly adjacent to the western side of Pollock House. The proposed parking lot will include 41 uncovered parking spaces and will support students, faculty, and visitors at the UW- Oshkosh campus. This improvement will also allow for ADA-compliant parking spaces and travel routes from the parking lot. The proposed site will continue use of its driveway access off of High Avenue. The Institutional District requires a minimum front setback of 30 feet; however, the existing pavement is located approximately 15 feet from the property line. The applicant is requesting a Base Standard Modification (BSM) to allow a front setback of 15 feet for the new parking area. This is intended to allow sufficient parking on and around the site. Staff is supportive of this BSM request as there is existing pavement located in the same area, it abuts compatible institutional uses, and provides additional parking to support the overall campus. Site Plan Page 2 ITEM 4 – GDP SIP – 777 Algoma Blvd Landscaping: Code requires paved area and street frontage landscaping requirements to be met for the proposed site. The applicant has provided a landscaping plan for review. Landscape Plan 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 landscaping plan shows a combination of trees and shrubs around the parking lot to meet the requirement for the parking lot development, and includes trees at all parking row ends and intermediate parking row islands. Street Frontage: Street frontage landscaping requirements will be provided for the proposed parking area only. Code requires 100 landscaping points per 100 feet of right-of-way. Code further specifies that 50% of the required points shall be devoted to medium trees. The plan shows Jewel Bush Honeysuckle contributing toward this requirement; however, these are Page 3 ITEM 4 – GDP SIP – 777 Algoma Blvd considered medium deciduous shrubs. The plan will need to be modified during the Site Plan Review Process to include the required medium tree points. The total provided paved area and street frontage landscaping points exceed the point requirements for both categories. This serves to offset the BSM request for reduced front yard setback. Storm Water Management/Utilities: The final storm water management plans will be approved during the Site Plan Review Process. Site Lighting: The applicant has submitted a photometric plan for the parking lot and associated access sidewalks. The plan utilizies both 15 feet and 20 feet tall light poles, which is within the maxium light fixture height for the Institutional District. Lighting levels meet the minimum lighting requirement of 0.4 fc for all parking and drive areas and do not exceed the maximum of 0.5 fc at the property lines and 1.0 fc at the public right-of-way. 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 parking area and associated sidewalks on the site will not have negative impact on the public because it is compatible with the neighboring institutional uses and industrial use to the west. (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 parking area and associated sidewalks will support the UW-Oshkosh campus. (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 an increase in landscaping and greenspace to enhance the appearance of the site. 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. Based Standard Modification (BSM) to allow reduced front setback (High Avenue) to 15 feet. 2. Final landscaping plan shall be reviewed and approved by the Department of Community Development. Page 4 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 Adam Krieger, P.E. (GRAEF-USA)12/23/2025 116 S. Adams St, Suite 201 Green Bay WI 54301 405-3839920 adam.krieger@graef-usa.com 12/23/2025 Corey Finkelmeyer 12/23/2025 800 Algoma Blvd Oshkosh WI 54901 424-1442920 finkelmeyerc@uwosh.edu 820 High Ave, Oshkosh, WI 54901 Redevelopment TBD Institutional I-PD-UTO Institutional Institutional Institutional Institutional Corey Finkelmeyer 12/23/2025 (UW-Oshkosh) Page 5 March 2025 2 SUBMITTAL REQUIREMENTS – Must accompany the application to be complete. (Submit only digital files. If file size exceeds 10 mb, please send through a file transfer. Please note at the discretion of Community Development staff may request a hard copy) The following information must be provided in order for the application to be considered complete and able to be scheduled for Plan Commission Review. Please use the checklist below to determine the required information to be submitted at the time of application. If all information below cannot be provided at the time of application, please request a waiver in writing to the Division’s Director or designee. ❑ A General Development Plan (GDP) submittal, per Section 30-387(C)(4), shall include the following items (Submit only digital files. Please note at the discretion of Community Development staff may request a hard copy): ❑ General location map of the subject site depicting: • All lands for which the Planned Development is proposed and other lands within 100 feet of the boundaries of the subject property. • Current zoning of the subject site and abutting properties, and the jurisdiction(s) that maintains that control. • A graphic scale and north arrow. ❑ Generalized site plan showing the pattern or proposed land uses, including: • General size, shape, and arrangement of lots and specific use areas. • Basic street pattern and pattern of internal drives. • General site grading plan showing preliminary road grades. • Basic storm drainage pattern, including proposed on-site stormwater detention. • General location of recreational and open space areas, including designation of any such areas to be classified as common open space. ❑ Statistical data, including: • Minimum lot sizes in the development. • Approximate areas of all lots. • Density/intensity of various parts of the development. • Building coverage. • Landscaping surface area ratio of all land uses. • Expected staging. ❑ Conceptual landscaping plan. ❑ General signage plan. ❑ General outline of property owners association, covenants, easements, and deed restrictions. ❑ A written description of the proposed Planned Development, including: • General project themes and images. • The general mix of dwelling unit types and/or land uses. • Approximate residential densities and nonresidential intensities. • General treatment of natural features. • General relationship to nearby properties and public streets. • General relationship of the project to the Comprehensive Plan or other area plans. • Proposed exceptions from the requirements of the Zoning Ordinance and enhancements that will be provided to compensate for them. ❑ Traffic Impact Analysis (TIA), if deemed necessary by the Director of Planning Services, or designee. ❑ A Specific Implementation Plan (SIP) submittal, per Section 30-387(C)(5), shall include the following items. Note that the area included in an SIP may be only a portion of the area included in a previously approved GDP (Submit only digital files. Please note at the discretion of Community Development staff may request a hard copy): ❑ An existing conditions map of the subject site depicting the following: • All lands for which the Planned Development is proposed and other lands within 100 feet of the boundaries of the subject site. • Current zoning of the subject property and all abutting properties, and the jurisdiction(s) that maintains that control. • Existing utilities and recorded easements. • All lot dimensions of the subject site. • A graphic scale and a north arrow. ❑ An SIP map of the proposed site showing at least the following: • All property lines and existing and proposed right-of-way lines with bearings and dimensions clearly labeled • All required and proposed building setback and offset lines • Impervious surface ratio (percentage) x x x Page 6 March 2025 3 • All existing and proposed buildings, structures, and paved areas, including building entrances, walks, drives, decks, patios, fences, walls • Location of all outdoor storage and refuse disposal areas and the design and materials used for construction • Location and dimension of all on-site parking (and off-site parking provisions if they are to be utilized), including a summary of the number of parking stalls provided per the requirements of Section 30-175 City of Oshkosh Zoning Ordinance • Location and dimension of all loading and service areas on the subject property • Location, height, design, illumination power and orientation of all exterior lighting on the property including a photometrics plan • Location of all exterior mechanical equipment and utilities and elevations of proposed screening devices where applicable (i.e. visible from a public street or residential use or district). Mechanical equipment includes, but is not limited to; HVAC equipment, electrical transformers and boxes, exhaust flues, plumbing vents, gas regulators, generators ❑ Proposed grading plan. ❑ Specific landscaping plan for the subject site, specifying the location, species, and installation size of plantings. The landscaping plans shall include a table summarizing all proposed species and required and provided landscaping points for all applicable landscaping components (building foundation, paved areas, street frontages, yards, bufferyards). ❑ Architectural plans for any nonresidential buildings, multi-family structures, or building clusters, other than conventional single-family or two-family homes on individual lots, in sufficient detail to indicate the floor area, bulk, and visual character of such buildings. The architectural plans shall include a percentage breakdown of exterior materials applied to each building façade. ❑ Conceptual Engineering plans for all water and sewer systems, stormwater systems, roads, parking areas, and walkways. ❑ Signage plan for the project, including all project identification signs, concepts for public fixtures and signs, and group development signage themes that may or may not vary from City standards or common practices. ❑ Any other necessary information as determined during pre-submittal meeting with City staff. ❑ Specific written description of the proposed SIP including: • Specific project themes and images. • Specific mix of dwelling unit types and/or land uses. • Specific residential densities and nonresidential intensities as described by dwelling units per acre, and landscaping surface area ratio and/or other appropriate measures of density and intensity. • Specific treatment of natural features, including parkland. • Specific relationship to nearby properties and public streets. • Statistical data on minimum lot sizes in the development, the precise areas of all development lots and pads; density/intensity of various parts of the development; building coverage, and landscaping surface area ratio of all land uses; proposed staging; and any other plans required by Plan Commission. • A statement of rationale as to why PD zoning is proposed. This statement shall list the standard zoning requirements that, in the applicant’s opinion, would inhibit the development project and the opportunities for community betterment that are available through the proposed PD project. • A complete list of zoning standards that would not be met by the proposed SIP and the location(s) in which such exceptions/base standard modifications would occur and enhancements that will be provided to compensate for them. • Phasing schedule, if more than one development phase is intended. ❑ Agreements, bylaws, covenants, and other documents relative to the operational regulations of the development and particularly providing for the permanent preservation and maintenance of common open areas and amenities. ❑ A written description that demonstrates how the SIP is consistent with the approved GDP and any and all differences between the requirements of the approved GDP and the proposed SIP. Planning Staff may waive certain requirements if deemed not applicable to the project review. I hereby certify that to the best of my knowledge all required application materials are included with this application. I am aware that failure to submit the required completed application materials may result in denial or delay of the application request. Applicant’s Signature (required): _________________________________ Date: _____________________ 12/23/2025 x x x x xx Page 7 UWO Demolition SIP 12/23/2025 2025-0008.00 Page 1 of 3 I. Introduction A. Site Overview The University of Wisconsin-Oshkosh is planning to demolish three existing dormitory buildings along with existing utilities, concrete sidewalk, concrete pavement, several trees, and electrical/mechanical equipment located within the project site. This redevelopment will then allow for the construction of access sidewalks across the site with a new parking area located at the northwestern area of the project site. The site is located in the SW quarter of the SE quarter of Section 14, T 18 N, R 16 E in the City of Oshkosh, Winnebago County, Wisconsin. The 3.03-acre site is located at 820 High Avenue, Oshkosh, WI 54901. It is south of Clow Social Science Center and directly adjacent to the western side of Pollock House. The project site currently consists of three dormitory buildings with parking areas and pedestrian walkways and table areas. B. Parcel Overview The project site is located within a larger 16.09-acre parcel (Parcel 90506650000). It is currently zoned I-PD-UTO. The remaining parcel area consists of University of Wisconsin- Oshkosh education, common area, and residence buildings, parking areas, and the University Police Department. Parcel area outside of the proposed demolition project will maintain its current use and will not be affected as part of this project. II. Development Information A. Intent of Proposed Development The intent of the proposed development is to remove existing dormitory buildings and utility service connections that have exceeded their serviceable life and remove existing pavement in poor condition. These facilities will be replaced with a new parking area and access walks across the site. Stormwater facilities will be constructed to comply with City and State regulations. Significant green space will also be added as compared to the existing conditions. No new buildings are proposed on the site at this time. See Tables 1 and 2 below for a comparison of land use and impervious coverage respectively between the existing and proposed sites. See Figure 1 and Appendix A for site plans of the proposed design. Table 1: Existing Land Use Land Use Type Existing Area (ac) Proposed Area (ac) Percent Change (%) Building 0.65 --- -100.00% Parking 0.57 0.31 -45.61% Sidewalk 0.39 0.19 -51.28% Landscaped Area/Green Space 1.42 2.53 +78.17% Total 3.03 3.03 --- Page 8 UWO Demolition SIP 12/23/2025 2025-0008.00 Page 2 of 3 Table 2: Impervious Surface Coverage Condition Impervious Area (ac) Pervious Area (ac) Total Area (ac) Impervious Coverage (%) Existing 1.61 1.42 3.03 53.21% Proposed 0.50 2.53 3.03 16.22% B. Planned Development Rationale & Zoning Standard Deviations Planned development (PD) zoning is proposed as this project site is a part of the University of Wisconsin-Oshkosh campus. Specific requirements are needed to maintain the look and functionality of space within the campus. The project site in question is bordered on all sides by other University of Wisconsin-Oshkosh buildings and facilities. The primary regulations that would inhibit the proposed development are as follows: • Section 30-50(G) o A minimum front setback of 30 ft set in Section 30-50(G) for the Institutional District would directly affect the proposed development. This requirement extends to the minimum pavement setback. However, the existing pavement is located approximately 15-ft from the lot line. Under the proposed conditions, the pavement setback will be approximately 19-ft. We are proposing a pavement setback of 15-ft to allow for sufficient parking area on and around this site. This will provide accessibility for more students, faculty, and visitors within the UW-Oshkosh campus to nearby university buildings. This improvement will also allow for ADA-compliant parking spaces and travel routes from the parking lot as well. • Chapter 30 – Article X - Landscaping Requirements o All landscaping requirements related to paved area will be satisfied as part of this project. o Landscaping requirements related to street frontages specified in Section 30- 253(C) will be satisfied for the parking lot area only. These landscaping elements are to be owner furnished and installed by the University within one year of completion of the current proposed project. o Additional street frontage landscaping for the remainder of the site will be completed at a later date, as this area of the site is intended to be further developed in the near future. This will allow the University of Wisconsin- Oshkosh to thoroughly review the placement of landscaping elements on site that will correspond with the long-term vision University leaders have. o Please see the attached sheet L100 (Landscape Plan) for associated landscaping calculations. The remainder of the project will be in compliance with City of Oshkosh Zoning Code. Page 9 UWO Demolition SIP 12/23/2025 2025-0008.00 Page 3 of 3 C. Consistency with the Approved General Development Plan. 1. Upon coordination with City of Oshkosh Principal Planner, Brian Slusarek, there was not a record of an existing general development plan or specific implementation plan on file. Therefore, comparisons were made and differences discussed between the proposed design and current City of Oshkosh standard zoning requirements in Section II(B) above. III. Conclusion We ask that on behalf of the University of Wisconsin-Oshkosh that you please begin the processing of this Specific Implementation Plan Amendment report and attached documents. Page 10 X X X X X X XX X X XXXX X X X X X X X X X X X XXX XXXXXXXXXX XXXXXXXXX X XX XXXXX X XXX X XX X X X W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W G G G G T T T T T T T T T T T T T T T T T T S A N SAN 24F9Z-02 St a t e o f W i s c o n s i n De p a r t m e n t o f A d m i n i s t r a t i o n Di v i s i o n o f F a c i l i t i e s D e v e l o p m e n t UW O M U L T I - B U I L D I N G DE M O L I T I O N Un i v e r s i t y o f W i s c o n s i n - O s h k o s h Os h k o s h , W i s c o n s i n Un i v e r s i t y o f W i s c o n s i n - O s h k o s h Sh e e t T i t l e : Ag e n c y / I n s t i t u t i o n : Pr o j e c t T i t l e : Consultant: Sheet Number Date Issued Set Type DFD Number Graphic Scale Scale Revisions: 10987654321 1098765432 A B C D E F G H J K 1 As Indicated FR 12/12/2025 No.Date Description NOT FOR CONSTRUCTION Key Plan: N 275 West Wisconsin Avenue, Suite 300 Milwaukee, WI 53203 414 / 259 1500 www.graef-usa.comX LEGEND C200 SI T E D E M O L I T I O N P L A N X X X X X X X X X X X X GENERAL NOTES 5 C700 REMOVAL NOTES Page 11 W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W W T T T T T T T T T T T T T T T T T T S A N SAN C702 8 C702 7 C702 6 C702 9 24F9Z-02 St a t e o f W i s c o n s i n De p a r t m e n t o f A d m i n i s t r a t i o n Di v i s i o n o f F a c i l i t i e s D e v e l o p m e n t UW O M U L T I - B U I L D I N G DE M O L I T I O N Un i v e r s i t y o f W i s c o n s i n - O s h k o s h Os h k o s h , W i s c o n s i n Un i v e r s i t y o f W i s c o n s i n - O s h k o s h Sh e e t T i t l e : Ag e n c y / I n s t i t u t i o n : Pr o j e c t T i t l e : Consultant: Sheet Number Date Issued Set Type DFD Number Graphic Scale Scale Revisions: 10987654321 1098765432 A B C D E F G H J K 1 As Indicated FR 12/12/2025 No.Date Description NOT FOR CONSTRUCTION Key Plan: N 275 West Wisconsin Avenue, Suite 300 Milwaukee, WI 53203 414 / 259 1500 www.graef-usa.com C400 SI T E L A Y O U T & P A V I N G P L A N LEGEND C702 4 C702 5 C702 2 C702 3 LAYOUT NOTES GENERAL NOTES Page 12 SCOTT AV W L I N C OLN AV N C A M P B E L L R D CHERRY ST R O C K W E L L A V MC KINLEY ST OSCEOLA ST PEARLAV JOHN AV V I N E A V WOODLAND AV PROSPECT AV HIGH AV W IRVINGAV ALGOMABLVD WISCONSINST U NIO N AV E L M W O O D A V ELMWOOD AV U W-O Riverfront/Jacob Shapiro Pa 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: 1/12/2026 1 in = 400 ft1 in = 0.08 mi¯Notice 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 13 R O C K W E L L A V SCOTT AV MC KINLEY ST P E A R L A V JOHN AV A L G O M A B L V D W IRVINGAV E L M W O O D A V HIGH AV HIGH AV R O C K W ELL A V SCOTT AV W L I N C O L N A V MC KINLEY ST OSCEOLA ST W O O D L A N D A V PEARLAV OSCEOLA ST JOHN AV ALG O M A BLVD EL M W O O D A V ELMWOOD AV HIGHAV I I-PD I-PD I-PD I-PD I-PD-UTO I-UTO MR-20-UTO RMU SR-5 TR-10-PD TR-10-UTO TR-10PDUTO UI-RFO 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: 2/23/2026 1 in = 300 ft1 in = 0.06 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 SUBJECTSITE Page 14