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.
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Revisions:
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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
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GENERAL NOTES
5
C700
REMOVAL NOTES
Page 11
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As Indicated
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12/12/2025
No.Date Description
NOT FOR
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www.graef-usa.com
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LAYOUT NOTES
GENERAL NOTES
Page 12
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U NIO N AV
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W
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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
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R O C K W E L L A V
SCOTT AV
MC KINLEY ST
P
E
A
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L A
V
JOHN AV
A
L
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A
B
L
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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
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I-PD
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I-PD-UTO
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MR-20-UTO
RMU
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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
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