HomeMy WebLinkAbout11-37FEBRUARY 8, 2011 11 -37 ORDINANCE
FIRST READING
(CARRIED LOST LAID OVER WITHDRAWN )
PURPOSE: AMEND CHAPTER 27 VEHICLES & TRAFFIC TO CREATE A
PEDESTRIAN MALL IN A PORTION OF ELMWOOD AVENUE
BETWEEN WEST LINCOLN AVENUE AND WEST IRVING
AVENUE WITHIN THE UW- OSHKOSH CAMPUS
INITIATED BY: UW- OSHKOSH
PLAN COMMISSION RECOMMENDATION: APPROVED
A GENERAL ORDINANCE OF THE CITY OF OSHKOSH AMENDING CHAPTER 27 —A-
10.2 PEDESTRIAN MALL
WHEREAS, it will benefit the health, safety, and welfare of the public to create a
pedestrian mall in a portion of Elmwood Avenue right -of -way between West Lincoln
Avenue and West Irving Avenue within the UW- Oshkosh campus.
The Common Council of the City of Oshkosh does ordain as follows:
SECTION 1. That Chapter 27, Vehicles and Traffic, Section A — 10.2 of the
Oshkosh Municipal Code is hereby amended by numbering the existing second and third
paragraphs as new paragraph (A) 400 Block East, North Main Street and creating new
paragraph (B) Elmwood Avenue, Between Lincoln Avenue and Irving Avenue, more fully
described as:
(B) Elmwood Avenue, between Lincoln Avenue and Irving Avenue
That part of Elmwood Avenue approximately 200 feet south of the southern right -of -way
line of the Elmwood Avenue and West Irving Avenue intersection, extending southerly to
the northern right -of -way line of the Elmwood Avenue and W. Irving Avenue intersection,
that is adjacent to Lots 18, 19 20, 21, 22 and 23, City's Replat #2; also vacated Capital
Court; and adjacent to Lots 23, 24 25 26 27 28 and 29, Doughty's Replat, all in the 5th
and 7th Wards, City of Oshkosh, Winnebago County, Wisconsin.
SECTION 2. This ordinance shall be in full force and effect from and after its
passage and publication.
FEBRUARY 8, 2011 11 -37 ORDINANCE
FIRST READING CONT'D
SECTION 3. Publication Notice. Please take notice that the City of Oshkosh
enacted ordinance #11 -XXX AMEND CHAPTER 27 VEHICLES & TRAFFIC TO CREATE A
PEDESTRIAN MALL IN A PORTION OF ELMWOOD AVENUE BETWEEN WEST
LINCOLN AVENUE AND WEST IRVING AVENUE WITHIN THE UW- OSHKOSH CAMPUS
on February 22, 2011. The ordinance creates a pedestrian mall in a portion of the
Elmwood Avenue right -of -way between Lincoln Avenue and Irving Avenue. 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.ci.oshkosh.wi.us Clerk's phone: 920/236 -5011.
Y_HKO.IH
ON THE WATER
TO: Honorable Mayor and Members of the Common Council
FROM: Darryn Burich
Director of Planning Services
DATE: February 3, 2011
RE: Amend Chapter 27 Vehicles & Traffic to Create a Pedestrian Mall in a Portion of
Elmwood Avenue between West Lincoln Avenue and West Irving Avenue / UW-
Oshkosh (Plan Commission Recommends Approval)
BACKGROUND
As part of its Campus Master Plan, the University has identified the closure of a segment of Elmwood
Avenue from 200 feet south of W. Lincoln Avenue to W. Irving Avenue for the creation of a
pedestrian style mall with the purpose of creating a safer pedestrian environment in this area of
campus. The City's Comprehensive Plan (2005) which was approved by both the Plan Commission
and Common Council and adopted as an ordinance included the University's Master Plan which
identified establishment of this pedestrian style mall. The Master Plan was included in the City's
Comprehensive Plan because of the broader land use and transportation implications that require City
approval and allows the University to move forward with implementing its plans with the assumption
that there will be some receptivity by the City.
ANAL NSIS
In 2004, the University and Plan Commission conducted a workshop on the Master Plan which was
subsequently included in the adopted Comprehensive Plan without any objections from the
community. The Master Plan includes two main sections -a Long Range Master Plan and a Phase I
Master Plan including new parking ramps, closing and reconfiguration of several streets and the
addition of some on- street parking. The closing of Elmwood was part of this approved plan.
Proposed Project improves pedestrian and bicycle safety
The advantage to creation of the pedestrian mall is that it will eliminate vehicular and pedestrian
/bicycle conflicts. Elmwood is the destination for thousands of pedestrian trips per day with the dorms
and academic buildings located along and across Elmwood. In addition, many vehicle trips destined
for parking lots or neighborhood on- street parking travel Elmwood creating conflict between these cars
and pedestrians. The Pedestrian Mall would remove the conflicts at the high volume pedestrian
crossing points and increase safety for the pedestrians.
Elmwood closing independent of other elements of the Master Plan
The requested vehicular closure of this segment of Elmwood Avenue is consistent with the
Comprehensive Plan and its implementation is not co- dependent on any other implementation actions.
This section of Elmwood Avenue is designated as a collector street and this traffic will be forced to
find alternative routing, most likely Wisconsin Street with some impacts on Cherry Street.
Closure will require establishment of a cul -de -sac 200 feet south of Lincoln Avenue which will require
the University to dedicate additional lands or easement to provide the area to construct the cul -de -sac.
Additional right -of -way is also required along the south side of Lincoln Avenue to provide an
improved turning radius and the creation of a terrace as this street will see some additional traffic flow.
Other elements of the Master Plan relating to Algoma, High and Pearl are not affected by this closing.
The rerouting and proposed changes to those streets can be examined and designed independent of the
Elmwood Pedestrian Mall.
Vehicle Traffic Impacts are minimal
The design of the mall has not yet been engineered but the concept identifies a 10 foot wide bike lane
through the area to connect the Elmwood Avenue cul -de -sac with Irving Avenue with an additional 16
foot width required to accommodate emergency vehicle access through the area. The University held a
neighborhood meeting in November 2009 along with City officials to present the proposal to the public
with only one property owner appearing in opposition to the plan.
Initially, Cherry Street and Wisconsin Street will see volume increases with traffic over time tending to
utilize Wisconsin Street and /or Algoma and High which could accommodate this traffic increase. In
December 2009 the City's Traffic Review Advisory Board reviewed and recommended approval of the
closure request and the Transportation Director concluded that the surrounding streets can
accommodate the additional traffic with no planned changes.
Police and Fire Department concerns have been addressed by adding an Emergency Lane
All City departments have reviewed this proposal and are not opposed to this request with conditions
especially relating to maintaining emergency access which is the primary reason why the area is being
maintained as right -of -way with the emergency access lane. There was some concern regarding an
increase in fire response time due to this closure however the Fire Chief has indicated that the concern
is not due to this closure, but would be if Algoma and High were altered without construction of the
Pearl Avenue bypass. The Police Chief has indicated that response time will not be impacted as they
can access situations from various directions. The maintenance of an emergency access lane is fully
supported and alleviates their original concerns.
Elmwood could be reopened if needed
When the University originally proposed vacating this segment of right -of -way to establish the
pedestrian mall, there was some concern by emergency responders relative to the other planned
closures or alternations of Algoma and High identified in the Campus Plan. It was thought that a full
street vacation may be premature and thus the proposal for creation of a pedestrian mall. This would
allow the City to retain the rights to the right -of -way and re -open the street should conditions warrant.
By not vacating the street, the City maintains control of the right -of -way and could modify or re -open
the right -of -way. The Pedestrian Mall and a Privilege in the Street would allow the University some
limited implementation of their plans for this area.
FISCAL IMPACT
None anticipated.
RECOMMENDATION
The Plan Commission recommended approval of the request at its January 18, 2011 meeting.
Approved,
"' L�`
City Manager
O.IHKOf H
ON THE WATER
TO: Honorable Mayor and Members of the Common Council
FROM: Darryn Burich
Director of Planning Services
DATE: February 3, 2011
RE: Amend Chapter 27 Vehicles & Traffic to Create a Pedestrian Mall in a Portion of
Elmwood Avenue between West Lincoln Avenue and West Irving Avenue / UW-
Oshkosh (Plan Commission Recommends Approval)
BACKGROUND
As part of its Campus Master Plan, the University has identified the closure of a segment of Elmwood
Avenue from 200 feet south of W. Lincoln Avenue to W. Irving Avenue for the creation of a
pedestrian style mall with the purpose of creating a safer pedestrian environment in this area of
campus. The City's Comprehensive Plan (2005) which was approved by both the Plan Commission
and Common Council and adopted as an ordinance included the University's Master Plan which
identified establishment of this pedestrian style mall. The Master Plan was included in the City's
Comprehensive Plan because of the broader land use and transportation implications that require City
approval and allows the University to move forward with implementing its plans with the assumption
that there will be some receptivity by the City.
ANAINSIS
In 2004, the University and Plan Commission conducted a workshop on the Master Plan which was
subsequently included in the adopted Comprehensive Plan without any objections from the
community. The Master Plan includes two main sections -a Long Range Master Plan and a Phase I
Master Plan including new parking ramps, closing and reconfiguration of several streets and the
addition of some on- street parking. The closing of Elmwood was part of this approved plan.
Proposed Project improves pedestrian and bicycle safety
The advantage to creation of the pedestrian mall is that it will eliminate vehicular and pedestrian
/bicycle conflicts. Elmwood is the destination for thousands of pedestrian trips per day with the dorms
and academic buildings located along and across Elmwood. In addition, many vehicle trips destined
for parking lots or neighborhood on- street parking travel Elmwood creating conflict between these cars
and pedestrians. The Pedestrian Mall would remove the conflicts at the high volume pedestrian
crossing points and increase safety for the pedestrians.
Elmwood closing independent of other elements of the Master Plan
The requested vehicular closure of this segment of Elmwood Avenue is consistent with the
Comprehensive Plan and its implementation is not co- dependent on any other implementation actions.
ITEM: DESIGNATE SEGMENT OF ELMWOOD AVENUE AS A PEDESTRIAN
MALL
PRIVILEGE IN THE RIGHT -OF -WAY TO PLACE PEDESTRIAN MALL
AND STREETSCAPE IMPROVEMENTS
Plan Commission meetings of January 4, 2011 & January 18, 2011
COUNCIL WILL HOLD A PUBLIC HEARING AT ITS FEBRUARY 8TH
MEETING ON THE REQUEST TO CREATE A PEDESTRIAN MALL.
FINAL COUNCIL ACTION ON THE PEDESTRIAN MALL AND THE
PRIVILEGE IN STREET REQUEST IS SCHEDULED FOR FEBRUARY
22ND
FOLLOWING IS INFORMATION ON BOTH REQUESTS
GENERAL INFORMATION
Applicant: University of Wisconsin — Oshkosh
Owner: City of Oshkosh Right of Way (Elmwood Avenue)
Action(s) Requested:
The University is making two requests in order to implement general vehicular closure of a portion of
Elmwood Avenue for a pedestrian mall. The first action is to designate Elmwood Avenue from
approximately 200 feet south of W. Lincoln Avenue to W. Irving Avenue as a pedestrian mall. The second
action is a request to install a pedestrian mall and streetscape improvements in the pedestrian mall.
Applicable Ordinance Provisions:
N/A but any location of a non -city or public utility use in city right -of -way requires the issuance of a
privilege in street permit. WI State Stats. 66.0905 regulate the establishment of pedestrian malls.
Background Information Property Location and Type:
As part of its Campus Master Plan, the University has identified the closure of this segment of Elmwood
Avenue and the creation of a pedestrian style mall. The purpose is to create a safer pedestrian environment
that connects the campus residence halls in this area (Evans, Stewart, and Fletcher), and the Student
Success Center with the Reeve Memorial Union and the rest of the campus.
The City's Comprehensive Plan (2005), which was approved by both the Plan Commission and Common
Council and adopted as an Ordinance, included the University's Master Plan map which identified
establishment of this pedestrian style mall. According to the Comprehensive Plan (Land Use Element, page
66):
"The UWO Campus Master Plan, originally prepared in 1998 and updated in 2003, outlines the future plans
of the campus. The updated plan has several land use related impacts including the construction of two new
parking ramps, closing of Elmwood Avenue and Algoma Boulevard, the reconfiguration of High Avenue
and Pearl Avenue, and the addition of some on- street parking spaces.
The Campus Master Plan includes two main sections: a Long -Range Master Plan and a Phase I Master Plan.
The key component of the Long -Range Plan is the rerouting of Algoma Boulevard and High Avenue
around the west side of the campus via a Pearl Avenue extended boulevard. The goal of this rerouting plan
is to make the campus more pedestrian- friendly by shifting the traffic away from the central portion of the
campus. The Phase I plan includes short -term recommendations for accomplishing the long -range plans."
The University's Master Plan was included in the City's Comprehensive Plan because of the broader land
use and transportation implications that require City approval such as street vacations, street construction,
zone changes, site plan approvals, etc. Essentially, anything the University desires to do to implement its
plans require at a minimum Plan Commission and Council review and approval. The benefit of having an
approved Campus Master Plan speaks for itself and allows the community to anticipate and prepare for
planned growth and changes at the University. Conversely it allows the University to move forward with
implementing its plans with the assumption that there will be some receptivity by the City due to it's
inclusion in the City's Comprehensive Plan. The situation is analogous to approval of a preliminary
subdivision plat that approves the general concept for a subdivision that is followed up by staged final plat
approvals wherein if the final plat is consistent with the preliminary plat approval is generally granted.
In this case the University's Master Plan was not included in the City's Comprehensive Plan without
discussion. On June 1, 2004, the University and the Plan Commission conducted a workshop on the Master
Plan that was subsequently included in the adopted Comprehensive Plan (2005). At no time during
discussion of the Comprehensive Plan's adoption, did anyone from the community raise an objection to the
Campus Master Plan. Moreover, the Comprehensive Plan Update Committee, Plan Commission, and
Common Council felt strongly enough about the University Master Plan that it made the "Top 13"
Implementation Action item list (see Chapter 10, Implementation Element, Comprehensive Plan).
Specifically, under "Implementation of Existing Plans" section (page 210) the Comprehensive Plan states:
"Participating in the implementation of the "University of Wisconsin - Oshkosh Campus Master Plan ",
where those recommendations are consistent with this Master Plan ".
Additionally under the "Coordination with Other Plans" section of the Implementation Element (page 213),
the Comprehensive Plan states:
"Due to its proximity to the Central City area and along the Fox River and being one of the city's larger
employers, the UWO Campus has a major presence in the city being approximately 120 acres in size. The
UWO Campus Master Plan, originally prepared in 1998 and updated in 2003, outlines the future plans of
the campus. The Campus Master Plan includes two main sections: a Long -Range Master Plan and a Phase I
Master Plan. The updated plan has several land use related impacts including the construction of two new
parking ramps, closing of Elmwood Avenue and Algoma Boulevard, the reconfiguration of High Avenue
and Pearl Avenue, and the addition of some on- street parking spaces."
The requested vehicular closure of this particular segment of Elmwood Avenue is consistent with the
Comprehensive Plan. As with most plans, implementation is a phased process that occurs over several
years because instant and complete implementation of a Master Plan is simply not practicable. Thus,
individual implementation items must be viewed in the context of the overall plan with some items being
able to stand alone and others dependent on other actions. In this case the vehicular closure of Elmwood
Avenue is not co- dependent on any other street closing or opening action and the implementation request
can stand alone and on its own merits. If however, the University was requesting action related to closing
of Algoma Boulevard or High Avenue, that action is co- dependent on the establishment of the Pearl
Avenue bypass that would need to be constructed prior to any alteration of Algoma or High. These actions
do not relate to the Elmwood Avenue request under consideration at this time.
ITEM — UWO ped mail; priv in street
There has also been discussion of an updated Campus Master Plan and the need to approve that prior to
moving forward with this action. Staff would be in agreement if this action was inconsistent with the
updated plan draft or was now co- dependent on another action in the plan draft but it is not. Moving
forward at this point is consistent with the City's Comprehensive Plan and any planned updates the
University would like to make to its Campus Master Plan.
This section of Elmwood Avenue is designated as a collector street. Collector streets channel traffic into
the arterial street system from the local street system. Elmwood Avenue has generally been used as a
bypass for traffic desiring not to go through the heart of campus via Algoma Boulevard and this traffic
(approximately 3,000 trips daily) will be forced to find alternative parallel routing, most likely Wisconsin
Avenue over time with some initial impacts on Cherry Street until traffic adjusts.
The design of the pedestrian mall itself has not yet been engineered. The concept design identifies a 10 foot
wide designated bike lane that will allow for bicycle movement through the area to connect the Elmwood
Avenue cul -de -sac with Irving Avenue. In addition, there will be an additional 16 foot width required (not
20 as identified on the concept plan) to accommodate emergency vehicle access through the area. Twenty-
six (26) feet is required by the fire department due to the height and distance of the buildings from the lane.
The general concept plan will be what is constructed in Elmwood Avenue.
The University hosted a neighborhood meeting on November 22 at Reeve Memorial Union. Public officials
from the city (City Manager, Police Chief, Fire Chief, Transportation Director, Community Development
Director, and Planning Director) and University staff presented the proposal, took comments and answered
questions. A handful of residents attended and with the exception of one resident /property owner there was
not general opposition to the proposal as presented.
On December 14, the City's Traffic Review Advisory Board reviewed the closure request and
recommended approval. Attached is Transportation Director Strong's memo to the Board on the request.
Also included is a memo from Director Strong regarding the traffic impacts resulting from the proposed
pedestrian mall. His conclusion is that even with the worst case scenario that all the trips are through trips
(and they are not as there are almost 1,000 parking spaces in the area as well as several hundred campus
oriented dwelling units) that the streets can accommodate this traffic with no planned changes. In reality it
is anticipated that most of the through traffic will either utilize the one -way pair of Algoma and High or
stay on Wisconsin Street and use New York Avenue.
ANALYSIS
A. Designation of a Pedestrian Mall. The University had initially proposed vacating this segment of right -
of -way to establish the pedestrian mall but there was some concern by emergency responders relative to the
other planned closures or alterations of Algoma and High identified in the Campus Plan that a full street
vacation maybe premature at this time and thus the proposal for creation of a pedestrian mall. The
pedestrian mall allows the City to retain the rights to the right -of -way and re -open the street should
conditions warrant. The advantage to the University is that it generally will allow for some limited
implementation of their plans for this area. Limited meaning the University will be permitted to install the
paving and streetscape related items but will not be permitted to install stormwater management practices or
anything that can't easily be removed should the street have to be re- opened.
Closure will require the establishment of a cul -de -sac roughly 200 feet south of Lincoln Avenue between
Reeve Union and the Student Success Center. This cul -de -sac cannot fit in the existing 60 foot wide right -
of -way so the University will have to dedicate additional lands or easement to provide for the cul -de -sac.
The exact amount of land dedication or easement will not be known until the street is engineered so a
ITEM — UWO ped mail; priv in street
condition is recommended requiring the dedication per the Department of Public Works. The cul -de -sac
bulb is to be 100 feet in diameter. Additionally, as Lincoln Avenue will now see some additional traffic
and the turning radius needs to be improved, additional right -of -way is required along the south side of
Lincoln Avenue to provide the improved turning radius and the creation of a terrace. Lincoln is currently a
50 foot wide right -of -way.
This closure will have an impact on traffic currently using Elmwood (3,000 trips per day) and this traffic
will be forced to use an alternative route. Initially, Cherry Street and Wisconsin Street will likely see
volume increases with traffic overtime tending to utilize Wisconsin Street and /or Algoma and High, which
could accommodate this traffic increase.
The advantage to creation of the pedestrian mall is that it will lessen vehicular and pedestrian conflicts
through this area and thereby increase pedestrian safety. Additionally, as the street will be designed with
bicycle facilities, it will increase bicycle safety and provide for a bicycle arterial through campus that will
have less vehicular conflicts.
All City departments (including emergency service providers and Transportation) have reviewed this
proposal and are not opposed to this request with conditions, especially relating to maintaining emergency
access. Police and Fire have been included as part of this review and staff recommendation and is the
primary reason why the area is being maintained as right -of -way with the emergency access lane.
Emergency access providers typically like to maintain rights -of -way and like to keep them clear of any
obstructions, however, in this instance given what the University is trying to achieve for the campus, Police
and Fire are willing to be supportive of the request with the recommended conditions.
At the Plan Commission meeting there was some concern regarding an increase in fire response time due to
this closure. The Fire Chief has indicated that that concern is not due to this closure but would be if
Algoma and High were altered without construction of the Pearl Avenue bypass. Additionally, maintaining
a fire Lane provides access through and to the neighborhood. The Police Chief has indicated that response
time will not be impacted because their officers are typically on patrol and can access situations from
various directions. Again the maintenance of an emergency access lane is fully supported and alleviates
their original concern regarding a full closure of Elmwood Avenue.
B. Privilege in the Right -of -Way. The University is requesting to install a pedestrian mall and streetscape
improvements in the right -of -way. Basic improvements would be the installation of the 26 foot wide
emergency access easement, which includes a 10 foot wide pedestrian bike path. Other improvements may
include lighting, landscaping, sidewalks, etc. This will also include the creation of the curbed entrance at
Irving Avenue. As this is a privilege in street request all the standard conditions are recommended and also
additional conditions relating to the City having final review authority, through its site plan review process,
for design and construction of the pedestrian mall and waivers of special assessment requiring the
University to bear all costs for the construction.
RECOMMENDATION /CONDITIONS
A. Designation of the Pedestrian Mall. Staff recommends approval to designate the area of Elmwood
Avenue approximately 200 feet south of W. Lincoln Avenue to W. Irving Avenue as a pedestrian mall with
the following conditions:
ITEM — UWO ped mail; priv in street
I ) Provision of additional lands as dedication or easement to provide for a 100 foot cul -de -sac bulb.
Exact area of dedication /easement subject to approval by the Department of Public Works.
2) Dedication of additional lands on the south side of W. Lincoln Street between Elmwood Avenue
and McKinley Street to provide for improved turning radius and the sidewalk and terrace.
3) Provide for an unobstructed 26 foot wide clear access for fire apparatus along the fire lane except at
entrances.
B. Privilege in the Right -of -Way. Staff recommends approval of a privilege in the right -of -way to
create a pedestrian mall and to allow pedestrian and streetscape improvements with the following
conditions:
1) University executes a waiver of special assessment/development agreement to install the necessary
improvements.
2) City to grant final approval for all improvements within the pedestrian mall.
3) Removal of all improvements at University expense should the privilege be revoked.
4) Any problem that may arise as a result from the creation and improvement of the pedestrian mall be
the responsibility of the petitioner /owner to correct in coordination with the City.
5) All appropriate permits be obtained prior to development of the pedestrian mall.
6) The petitioner /owner secures and submits to the City Clerk a separate insurance policy which
names the City as an additional insured with a minimum coverage of $200,000 per person and
$500,000 in general aggregate.
7) It is the responsibility of the petitioner /owner to file in a timely manner a new insurance certificate
with the City Clerk upon expiration of an existing certificate. Failure to do so will result in the
revocation of the privilege in street within ten (10) days of notice.
8) The petitioner /owner execute a hold harmless agreement with the City.
9) Any utilities placed be part of and documented with Digger's Hotline system.
The Plan Commission approved of the designation of the pedestrian mall and the privilege in the right -of-
way as requested with conditions noted at its January 18th meeting. The following is the Plan
Commission's discussion on this item from both its January 4th and January 18th meetings
PLAN COMMISSION MINUTES OF JANUARY 4, 2011 (action: laid over)
Mr. Burich presented the item and reviewed the site and surrounding area and explained that the University
was requesting this action to create a safer pedestrian environment in the area that connects the campus
residence halls, the Student Success Center and Reeve Memorial Union with the rest of the campus. He
reviewed the land use in the surrounding area as well as a diagram of the University's layout and explained
that the pedestrian mall was not yet designed and discussed the conceptual plans and features for the
proposed mall. He also explained that the area would still remain as City right -of -way which would give
the City the ability to reopen the street at a later date. He also discussed the 26 foot lane which was
provided to support emergency vehicles through this area and the cul -de -sac to be created on Elmwood
Avenue. The Traffic Review Board approved this request and numerous meetings have been held to
discuss this issue. This would not be an actual street vacation as the City would still retain the rights to the
right -of -way and this request is consistent with the University's Master Plan. He also reviewed the
conditions recommended for both requests.
ITEM — UWO ped mail; priv in street
Mr. McHugh stated that he did not understand what the point of this was and voiced his concern with re-
routing traffic from Elmwood Avenue as he felt it would be a safety issue.
Mr. Burich replied that the point of the request for the pedestrian mall was to service the students by
eliminating the traffic in this area and making things safer for pedestrians. Both emergency services and the
Transportation Department have reviewed and approved of this request.
Mr. Borsuk questioned how the reconstruction of Elmwood Avenue would fit into this and the destination
of the vehicles that pass through this area.
Mr. Burich responded that Elmwood Avenue was scheduled to be reconstructed in this year's Capital
Improvement Program.
Chris Strong, Director of the Transportation, added that traffic counts had been completed on this area
however it would be difficult to determine the destination of the vehicles passing through this area.
Mr. Thoms asked where the traffic would be re- directed to and if those streets would be able to handle the
additional volume.
Mr. Strong responded that traffic would be re- routed to Algoma Boulevard or Elmwood Avenue to Cherry
Street or Wisconsin Street going northbound and Cherry Street and Wisconsin Street going southbound. He
did not feel there should be issues with the additional volume of traffic on these streets.
Mr. Thoms commented that he felt the additional traffic on Algoma Boulevard was going to be difficult.
Mr. Burich stated that Algoma Boulevard was more of a controlled environment as there are several traffic
lights on this street and a University bypass to the south was being considered in the future.
Mr. Thoms then questioned if crossings would be improved on Algoma Boulevard due to the increased
traffic volume.
Mr. Strong replied that he anticipated a 25% increase in traffic on Algoma Boulevard and he was not too
concerned with it at this point.
Mr. Hinz inquired why Elmwood Avenue was continuing on after the pedestrian mall area instead of
closing it off completely.
Mr. Strong responded that the University would have to comment on that matter.
Joan Mueller, 1139 Cherry Street, stated that she felt the additional traffic on Cherry Street would be
problematic as the student parking on the street is already heavy and that adequate emergency access was
important to the neighborhood. She voiced her concerns with if the city streets in the surrounding area had
the capacity to handle the additional traffic as backups occur now when school lets out and she felt that
additional stop signs may be considered on Cherry Street.
Joseph Malkowsky, 802 Vine Avenue, stated that if there were no pedestrian /vehicular crash data concerns
regarding this area, why we were considering closing off a part of Elmwood Avenue. He had concerns with
the two minute delay in fire response time mentioned by the Fire Department at a previous meeting. He
also commented on the future plans to close Algoma Boulevard and if Elmwood Avenue would be re-
opened in the future, he felt it would be a waste of money to construct the pedestrian mall at this time. He
also questioned how many pedestrians were crossing the street to justify this.
ITEM — UWO ped mail; priv in street
Don Tenor, 1202 Algoma Boulevard, stated that if traffic counts show that 3000 vehicles utilize Elmwood
Avenue daily and 6500 vehicles utilize Algoma Boulevard, pedestrians should be able to cross Elmwood
Avenue safely. He further commented that vehicles on Algoma Boulevard are passing Read Elementary
School and these students are much younger than the University students and although this proposal would
make things nicer for the University, it creates other problems for the rest of the community.
Mike Lyster, 612 Elmwood Avenue, stated that he has lived there for 30 years and drives Elmwood Avenue
every day to get to his shop on the north side of the city. He has seen many near misses on this street over
the years and felt that the corner of West Irving Avenue and Elmwood Avenue is very dangerous as there is
not good visibility at this intersection. He felt that Elmwood Avenue should be closed at Algoma
Boulevard all the way to West Lincoln Avenue instead although he noted that there are loading docks by
the library that are utilized for deliveries for the University that would no longer be accessible if this was
done. He concluded with the statement that he liked the idea of removing traffic from Elmwood Avenue;
he just did not feel that this was the best way to accomplish it.
Raymond Schmelter, 645 Amherst Avenue, stated that he has a hard time getting out of his driveway at
times due to the traffic and both he and his neighbor are in favor of this request.
Aaron Campbell, 424 Wisconsin Street, stated that the Oshkosh Student Association was supportive of this
plan and that both staff and students utilizing the counseling center and resident halls in this area would
benefit from it. Students are crossing this street numerous times daily and although there may not have
been pedestrian crashes in the past, there have been near misses and this proposal should slow traffic down.
He further commented that both staff and students support this request.
Bernard Pitz, 617 West Irving Avenue, stated that he has lived in this area for 46 years and also owns
apartments on Wisconsin Street and voiced his concerns with the increase of traffic on Irving Avenue and
Wisconsin Street due to closing a portion of Elmwood Avenue. He felt that the University should install
fencing along Elmwood Avenue instead restricting crossing the street to specific areas. He also stated that
there have not been any accidents on Elmwood Avenue to justify this action and he spoke with the Fire
Chief about the matter and he was not in favor of closing any streets. He also had concerns with emergency
response time to the neighborhood and commented about the disturbing music that can be heard from his
home coming from events at the University. He felt that the University's "land grab" had to stop and also
commented on his concerns that the designated emergency lane on the plans may be in use for an event at
such a time that emergency vehicles would need to access it.
Tom Sonnleitner, representing the University, 800 Algoma Boulevard, stated that this request was part of
the University's Master Plan and it was included in the City's Comprehensive Plan since 2005 and in the
University's planning process since 2001 or 2002. The reasoning for it was for the safety of the students,
and in a lightly traveled area such as this one, it makes sense. There are 1000 students living in the
residence halls and another 1000 visiting the Student Success Center daily as well as the students living in
the area surrounding it. Although there have not been any accidents in the past, safety was their primary
concern. A 26 foot path would be provided for a fire lane and the design of the pedestrian mall was not
completed at this time. He confirmed that loading docks were present in the rear area of Reeve Union and
discussed crash data statistics. He further stated that the University was willing to work with the Plan
Commission and Common Council to come up with an appropriate solution and that they wanted to create
safe passage for both students and vehicles in this area.
Mr. Hinz questioned if a greater plan existed to extend this further in the future.
Mr. Sonnleitner replied that the University's Master Plan calls for the closure of Algoma Boulevard from
Dempsey Hall to Woodland Avenue and turning both Algoma Boulevard and High Avenue into two -way
streets. Each of these actions will be brought back to the City for approval at the time the University was
prepared to implement this plan.
ITEM — UWO ped mail; priv in street
Mr. Hinz commented that Elmwood Avenue is a bypass for the University area and questioned what the
suggested route would be to bypass this area if Elmwood Avenue is closed off to through traffic.
Mr. Sonnleitner responded that most people use Algoma Boulevard or High Avenue through the University
area depending on where they live.
Mr. Palmeri inquired about the issues brought up by citizens regarding emergency access and activities
being held in the pedestrian mall.
Mr. Sonnleitner replied that they were not planning on using the pedestrian mall as a set up area for
University activities and that gatherings or events would be held on the lawn areas.
Mr. McHugh stated that issues always come down to safety and that students do not use the crossing
mechanisms on Algoma Boulevard to activate the traffic signals now. The closing of Elmwood Avenue
will be an inconvenience to citizens and is step one in the process to shut down High Avenue and Algoma
Boulevard and is a waste of money. We do not have a completed plan for the pedestrian mall or know the
consequences of this action and should not vote on this request today.
Quinn, a Taylor Hall student resident, attested to the safety benefits of closing Elmwood Avenue as
crossing this street is dangerous for pedestrians. He further commented that he uses the signal crossings on
Algoma Boulevard every day and that the creation of the pedestrian mall would benefit campus greatly.
Mr. Palmeri commented that if the Oshkosh Police and Fire Departments supported this request, he would
support it as well, however the staff report refers to the fact that emergency services providers "are not
opposed to this request" which leads him to inquire if that means they are in support of this request.
Mr. Burich responded that with emergency services providers, closing any street creates some concerns
however when looking at what the University is trying to achieve, they do not have issues with the closure
of Elmwood Avenue. The City is also retaining the rights for the 26 foot access for emergency providers.
Mr. Borsuk commented that he supports this issue as the University is the third largest in the state and
occupies the smallest piece of property. He wants to make the campus successful as the University is an
important industry in the community and for a variety of reasons this is a positive step.
Mr. Thorns stated that he did not feel there was enough information at this time such as the University's
long range plan. Pedestrians are heavily traveling the area on Elmwood Avenue but he would like to see
the entire plan before voting on one piece of it. He would also like to have the Fire Chief present to answer
questions regarding this matter. He further commented that he understands that the University is trying to
create a contained campus but he would need further information on the issue.
Ms. Propp commented that residents presented important points and although the University does have a
Master Plan for the campus, she felt that the proposed pedestrian mall should stand on its own. There will
be a ripple effect for neighboring streets but overall, it's a good plan.
Mr. Vajgrt stated that it had been mentioned that the response time for emergency services would
experience a two minute delay from the main station, however the Algoma and Murdock fire station would
probably be able to service this area quicker than the downtown station. He further commented that he felt
it was a good idea.
ITEM — UWO ped marl; priv in street
Motion by McHugh to lay over the designation of the area of Elmwood Avenue approximately 200
feet south of W. Lincoln Avenue to W. Irving Avenue as a pedestrian mall and the privilege in the
right -of -way to create said mall and to allow pedestrian and streetscape improvements.
Seconded by Hinz.
Mr. Palmeri questioned what would be the implications of laying this item over to a future meeting.
Mr. Gohde responded that Elmwood Avenue was the first street scheduled for reconstruction this year and
they were attempting to bid out the project in late February with construction to begin in March if possible.
Mr. Palmeri then questioned if the Common Council acted on this item at the second meeting in January, if
this would still leave adequate time to bid the project out.
Mr. Gohde replied that it would depend on if the item requires two readings before the Council would act
on it.
Mr. Burich stated that the Common Council could waive the second reading if necessary.
Mr. Thoms questioned what the intent of laying the item over was.
Mr. McHugh responded that the traffic problems by Lincoln School need to be addressed and we should do
a better job of alerting the public about this action. He also stated that we do not know what the concept is
for the proposed pedestrian mall.
Ms. Propp stated that she did not feel the need to lay the item over until the next meeting as the issues could
be addressed at the Common Council level.
Mr. Borsuk commented that questions may be outstanding in some people's minds however he felt that the
intent was not to lay the item over but to kill the project.
Mr. Thorns stated that the Plan Commission's duty was to make a recommendation to the Common Council
and he felt it was shirking their responsibility by not looking further into the matter before voting on the
item.
Mr. Hinz commented that he did not think that it was an attempt to kill the project and he would like to see
the University's Master Plan and hear from both the Police and Fire Chiefs regarding their opinion on the
matter.
Mr. Borsuk questioned if there was no timeline on the motion to lay the item over.
Mr. Thoms suggested that the motion be amended to lay the item over until the next meeting of the Plan
Commission.
Mr. Palmeri stated that he felt the issues regarding the public safety concerns needed to be addressed and he
thought the Police and Fire Chiefs need to be present to respond to these concerns.
Motion carried 6 -1 -1. ( Ayes- Borsuk/Thoms /Hinz /Paltneri /McHugh /Vajgrt. Nays - Propp.
Abstained - Fojtik.) (Mr. Fojtik is employed by the University)
ITEM — UWO ped matt; priv in street
PLAN COMMISSION MINUTES OF JANUARY 18, 2011 (action: both
approved with conditions)
Mr. Burich presented the item and explained that this request had been laid over from the last meeting and
additional information had been included in the staff report to address concerns raised at the previous
meeting. He again reviewed the site and surrounding area and explained that the University was requesting
this action to create a safer pedestrian environment in the area that connects the campus residence halls, the
Student Success Center and Reeve Memorial Union with the rest of the campus. He reviewed the land use
in the surrounding area as well as a diagram of the University's layout and explained that the pedestrian
mall was not yet designed and discussed the conceptual plans and features for the proposed mall. He also
explained that the area would still remain as City right -of -way which would give the City the ability to
reopen the street at a later date. He also discussed the 26 foot lane which was provided to support
emergency vehicles through this area and the cul -de -sac to be created on Elmwood Avenue. The Traffic
Review Board approved this request and numerous meetings have been held to discuss this issue. This
would not be an actual street vacation as the City would still retain the rights to the right -of -way and this
request is consistent with the University's Master Plan. He also reviewed the University's Master Plan and
the conditions recommended for both requests.
(Ms. Propp arrived at 4: 02 pm.)
Mr. Nollenberger questioned if anyone considered closing the remaining half a block of W. Irving Avenue
and Elmwood Avenue as well.
Mr. Burich responded that it was considered however it would negatively impact emergency services
responders' ability to maneuver through this area.
Mr. Thoms inquired if the long range plan of the University was with the intent to eventually close Algoma
Boulevard and High Avenue and re -route traffic.
Mr. Burich replied that this concept was in the 2003 University Master Plan and the re- routing of traffic
from these two streets would be concurrent with the construction of the Pearl Avenue bypass.
Mr. Thorns then inquired if the pedestrian mall request was a separate issue.
Mr. Burich responded that the pedestrian mall was a stand alone project and that the concerns from
emergency services responders regarding the delay of response time was in relation to the closure of
Algoma and High and the construction of the bypass on Pearl Avenue which would have to be completed
prior to the closures of the other two streets.
Mr. Borsuk questioned what the anticipated time line would be for the reconfigurations of Algoma, High
and Pearl Avenue.
Mr. Burich replied that those projects would be contingent upon financing and would be moving forward at
some point when funding was available which would possibly be ten years.
Mr. Thorns inquired if the areas were officially mapped for the proposed reconstruction of these streets.
Mr. Burich responded that the area was not officially mapped however most of the reconstruction would
take place in existing city right- of-way and he would have to look into the possibility if additional lands
would have to be acquired.
ITEM — UWO ped mail; priv in street 10
Mr. McHugh stated that he did not believe that the City and University have reached an agreement between
the University's Master Plan and the City's Comprehensive Plan for long range plans.
Mr. Burich replied that the University's most recent plan had not yet been reviewed by the City however
any modifications from the original plan were not of major consequence to his knowledge.
Tim Franz, Fire Chief, stated that response time cannot be calculated from one station only as the station on
Murdock would be the initial one to respond to emergencies in this area however the station on Court Street
could also be called out to respond to this area as well. At times, multiple vehicles may respond to a single
incident and the Fire Department needs to have the ability to respond from as many directions as possible
when necessary. The vehicles are large as well as related pieces of equipment and he did confirm that he
had stated that he was not in favor of closing any streets as it complicates matters for access purposes. The
width of the emergency lane being requested is 26 feet which is necessary due to the height of the structures
on campus and his concerns were with not only this area but areas north of Congress Avenue as well. He
was looking at the situation from the standpoint of not being able to go through both Elmwood Avenue and
Algoma Boulevard as a comprehensive long term concern. There could be a slight delay of 30 seconds to
one minute with the closure of just this portion of Elmwood Avenue however it may not be permanent as
the City will be retaining the right -of -way which provides the ability to reopen Elmwood Avenue if deemed
necessary. He also commented that the fire lane was necessary to respond to any incidents in the
neighborhood not just for the University and the maintaining of this emergency lane gives the Fire
Department the ability to respond tactically to other areas of the neighborhood as well.
Scott Greuel, Chief of Police, stated that his concerns were relating to the long range plans for the closure
of Algoma and High as well and that a tactical response for the Police Department was less of a concern
than the Fire Department due to the large apparatus necessary to maneuver through these areas for response
to fires. The emergency lane provided would allow adequate access when necessary.
Ms. Lohry asked how vehicles would be prevented from utilizing the emergency lane provided for
emergency services providers only.
Mr. Franz responded that the entrance to this area could be narrowed down to prevent such access.
Mr. Thoms inquired if the emergency lane was to be utilized by both Police and Fire Departments and if the
two minute delays in response time was only applicable with the closure of Algoma and High as well as this
segment of Elmwood Avenue.
Mr. Franz responded affirmatively to both inquiries.
Mr. Thorns then questioned if a delay in response time may occur due to use of the emergency lane.
Mr. Franz replied that pedestrian traffic could potentially slow movement however it would be less of a
delay to use the fire lane than alter the route and take Cherry Street instead.
Mr. Palmeri asked if based on a typical year for the Fire Department, was there any way to predict how
many times the emergency lane would be utilized.
Mr. Franz responded that he could review calls and make some prediction however it would be difficult to
speculate. He felt that several times a week would be a safe assumption.
ITEM — UWO ped mail; priv in street 11
Joann Rife, Planning Director for the University, 800 Algoma Boulevard, reviewed the map of the proposed
pedestrian mall and stated that this was presented at the neighborhood meeting held in November. She also
discussed the purpose of the cul -de -sac to service the resident halls and food deliveries to the campus as
well as student traffic, bike lanes and the emergency lane. She stated that there were 2589 students in the
neighboring residence halls, 7500 visitors to the Reeve Memorial Union annually, 275 staff at the Student
Success Center with 728 students who frequent the center daily. She also discussed the Bicycle /Pedestrian
Plan that was currently being developed.
Quinn, a student at the University representing the Oshkosh Student Association, stated that he was
committed to the safety and well being of both students and faculty and was in favor of the pedestrian mall.
He discussed the services provided at the Student Success Center and the number of trips taken on a daily
basis to and from the residence halls to various locations on campus. He commended the Plan Commission
and Common Council for their efforts to improve the conditions on Elmwood Avenue and also discussed
the amount of student rental properties in the area and the impact the new residence hall will have on this
situation. He commented on the fact that there has not been any pedestrian /vehicle crashes in this area to
date however there have been numerous near misses as the vehicles traveling Elmwood Avenue are moving
at a high rate of speed through the campus.
Joan Mueller, 1139 Cherry Street, stated that she attended the meeting at the University last November and
discussed the traffic volume numbers of 3000 trips daily through Elmwood Avenue. She further stated that
she was open to the idea at first of closing this portion of the street however after further investigation; she
was opposed to it now. She felt that the density of occupancy was an issue and that access for Fire and
Police Departments was important as most of the neighborhood consisted of older homes. She also felt that
the density of the population and on street parking in the neighborhood makes approving this request a
mistake. The University is a part of the fabric of the community and should have to deal with the traffic
traveling through the campus particularly as Elmwood Avenue was a designated bypass through the
University property.
Bernard Pitz, 617 W. Irving Avenue, stated that he lives in the neighborhood and also owns rental property
on Wisconsin Street and Church Avenue which is already a very busy intersection. The closing of this
segment of Elmwood Avenue will contribute to making this intersection even busier than it currently is and
he felt that the pedestrian issues were due to the fact that students cross the street on Elmwood Avenue in
areas that are not designated crosswalks. The re- routing of traffic off of Elmwood Avenue will result in
more traffic passing his home and referenced the information on page 47 of the staff report relative to
crashes at the intersection of Wisconsin and W. Irving Avenue. He stated that safety was not the issue here
but the convenience for the University. He also discussed false alarms in the area in the past, outdoor uses
at the University, resident requirements for the University, and the lack of police response in the
neighborhood. He felt that the citizens of the community should be safe and voiced his concerns with the
designated emergency lane being impeded by students at times when it would be necessary to be utilized.
He also commented about the student who spoke in favor of the issue at the last meeting and that he would
no longer be living in Oshkosh as of August and that he also worked for the University.
Tom Sonnleitner, 800 Algoma Boulevard, representing the University, stated that the proposal of the
pedestrian mall was a separate action and a long thought out Comprehensive Plan for the University and the
City. The four lane boulevard to be considered in the future has nothing to do with the pedestrian mall
request for Elmwood Avenue and the emergency response times will not be effected by this action alone.
He also commented that the final design of the mall will not have any obstructions placed in the fire lane.
Mr. Nollenberger commented that he felt that the pluses out weigh the minuses relating to this request.
ITEM — UWO ped mail; priv in street 12
Motion by Nollenberger to approve the designation of a segment of Elmwood Avenue as a
pedestrian mall and the privilege in the right -of -way to place the pedestrian mall and streetscape
improvements with the following conditions for the pedestrian mall designation:
1) Provision of additional lands as dedication or easement to provide for a 100 foot cul -de -sac bulb.
Exact area of dedication /easement subject to approval by the Department of Public Works.
2) Dedication of additional lands on the south side of W. Lincoln Street between Elmwood Avenue and
McKinley Street to provide for improved turning radius and the sidewalk and terrace.
3) Provide for an unobstructed 26 foot wide clear access for fire apparatus along the fire lane except
at entrances.
And the following conditions for the privilege in the right -of -way:
1) University executes a waiver of special assessment /development agreement to install the necessary
improvements.
2) City to grant final approval for all improvements within the pedestrian mall.
3) Removal of all improvements at University expense should the privilege be revoked.
4) Any problem that ma arise as a result from the creation and improvement of the pedestrian mall
be the responsibility of the petitioner /owner to correct in coordination with the City.
5) All appropriate permits be obtained prior to development of the pedestrian mall.
ITEM — UWO ped mail; priv in street 13
6) The petitionerlowner secures and submits to the City Clerk a separate insurance policy which
names the City as an additional insured with a minimum coverage of $200,000 per person and
$500, 000 in general aggregate.
7) It is the responsibility of the petitionerlowner to file in a timely manner a new insurance certificate
with the City Clerk upon expiration of an existing certificate. Failure to do so will result in the
revocation of the privilege in street within ten (10) days of notice.
8) The petitionerlowner execute a hold harmless agreement with the City.
9) Any utilities placed be part of and documented with Digger's Hotline system.
Seconded by Thoms.
Mr. Palmeri stated that at the last Common Council meeting, he thought that everyone agreed that there
should be a joint meeting with the Common Council and Plan Commission regarding the University's
Master Plan. He requested that Allen Davis confirm this.
Allen Davis, Director of Community Development, confirmed this discussion and stated that the
Department of Public Works had wanted to remain on schedule with the plans to reconstruct Elmwood
Avenue this year.
Mr. Palmeri commented that the joint meeting was to be held in February and he felt that it would not be a
problem if the Plan Commission did not vote on this item today. He stated that he would like to make a
motion to lay over this request to a future meeting if acceptable.
Mr. Thoms stated that he served on the Bicycle /Pedestrian Plan Steering Committee and discussed traffic
and the basic premise of the Bike /Ped Plan was to reduce the amount of pedestrian incidents and how it
relates to this issue. He also discussed the concerns raised at the last meeting and the comprehensive issues
relating to the closing of Algoma Boulevard. From the standpoint of the City's Comprehensive Plan, the
proposal for the pedestrian mall has been in the plans for five years and according to the Police and Fire
Chief, the response times will be only somewhat limited from the installation of the proposed pedestrian
mall. He agreed that a joint meeting on the entire University Master Plan was necessary however he felt
that this piece of the plan could move forward today.
Ms. Propp agreed that the joint meeting on the overall Master Plan was a good idea but does not have to
affect the issue on Elmwood Avenue as it was a limited and appropriate closure. She felt the Commission
should move ahead today on this request so the reconstruction of Elmwood Avenue was not delayed. She
also commented that Mr. Palmeri's request to make a motion to lay over the request would take precedence
over the previous motion.
Motion by Palmeri to lay over the request for the designation of a segment of Elmwood Avenue as a
pedestrian mall and the privilege in the right -of -way to place pedestrian mall and streetscape
improvements.
Seconded by McHugh.
Mr. Palmeri stated that it did seem to be in wide agreement at the Common Council meeting that before
action is taken on any part of the University's plans, a joint meeting between Plan Commission and the
Council would be held first. He did not feel that it would present problems for bidding out the
reconstruction of Elmwood Avenue although change orders would have to be processed to accommodate
any change to the construction plans.
ITEM — DWO ped mail; priv in street 14
Mr. Borsuk commented that the basis of the lay over from the last meeting was to have questions answered
from both the Police and Fire Departments regarding response times and the, long range plans are in a 5 -10
year horizon. The Common Council can still hold the joint meeting discussed but he felt that the Plan
Commission had addressed the issues raised at the last meeting. He felt this proposal was good planning
and consistent with the Comprehensive Plan and this body had no reason to delay the request any longer.
Ms. Lohry agreed and stated that the request should move forward tonight. She further commented that as
the University grows there will have to be some changes implemented and she felt Elmwood Avenue was a
dangerous street to cross. She also felt the joint meeting would be beneficial to see what the University has
in mind for future needs in their Master Plan.
Mr. Thorns stated that he had mixed emotions about the matter but felt that the Common Council could
delay the action on the item at their level if they deemed it necessary. He would not support a motion to lay
the item over.
Mr. Hinz commented that he is always in favor of more information but felt that the concerns from the last
meeting had been addressed. He felt that the Plan Commission could move forward with the item tonight
and the Council could delay voting on it if they so chose. He did question if the right -of -way was being
maintained, would the City be responsible for snow removal from the area.
Mr. Burich responded that it would most likely be maintained by the campus but that matter would have to
be addressed in the agreement between the City and the University.
Mr. Palmeri stated that if the Plan Commission would delay voting on this request until after the joint
meeting, it would give the community a chance to view the meeting and possibly change people's position
on their support or opposition to this request.
Motion for the lay over denied 2 -6 -1. (Ayes- Palineri/Nollenberger. Nays -
Borsuk/Bowen /Thoms /Hinz /Propp/Lohry. Abstained - Fojtik.) (Mr. Fojtik is employed by the
University)
Motion for the request approved 7 -1 -1. ( Ayes - Borsuk /Bowen /Thoms /Hinz /Propp/Lohry/
Nollenberger. Nays- Paltneri. Abstained- Fojtik.
ITEM — UWO ped mail; priv in street 15
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Comprehensive Plan UW Campus Master Plan
Excerpts
Coordination with Other Plans
Two major benefits to comprehensive planning include coordinating all planning activities in the
community and promoting intergovernmental cooperation. Several existing plans have been
referenced not only in the Land Use Element, but also throughout the Comprehensive Plan.
These plans are listed below.
East Central Wisconsin Regional Planning Commission
The East Central Wisconsin Regional Planning Commission (East Central) is the
official comprehensive planning agency for counties of Calumet, Fond du Lac,
Green Lake, Marquette, Menominee, Outagamie, Shawano, Waupaca, Waushara
and Winnebago. East Central is in the process of preparing their regional plan in
accordance with the state's comprehensive planning legislation. City staff has and
will continue to be involved in their planning processes. Estimated time of adoption
of their plan is 2005.
Winnebago County Comprehensive Plan
Winnebago County is in the process of finalizing their comprehensive plan
"Winnebago County Comprehensive Plan: 2004 ". This plan was developed in ac-
cordance with the State of Wisconsin's comprehensive planning legislation ( "Smart
Growth" law), with extensive input from local citizens and municipal representa-
tives. The County estimates having the plan adopted in fall of 2004. County -wide
data was used in the preparation of the city's Comprehensive Plan.
Town of Oshkosh Comprehensive Plan
The Town of Oshkosh Board adopted their "Town of Oshkosh Smart Growth Com-
prehensive Plan" in June 2003. They developed their plan in accordance with the
State of Wisconsin's comprehensive planning legislation ( "Smart Growth" law).
Data about the town and land use planning information was incorporated into the
city's future land use plans.
Town of Nekimi Comprehensive Plan
The Town of Nekimi Board adopted their "Town of Nekimi Comprehensive Plan" in
December 2003. This plan was developed in accordance with the State of Wiscon-
sin's comprehensive planning legislation ( "Smart Growth" law). Data about the
town and land use planning information was incorporated into the city's future land
use plans.
Town of Black Wolf Comprehensive Plan
The Town of Black Wolf adopted their Comprehensive Plan in March 1998. The
plan was prepared by the East Central Wisconsin Regional Planning Commission
Data about the town and land use planning information was incorporated into the
city's future land use plans.
University of Wisconsin- Oshkosh (UWO) Campus Master Plan
Due to its proximity to the Central City area and along the Fox River and being one
of the city's larger employer, the UWO Campus has a major presence in the city
being approximately 120 acres in size.
City of Oshkosh Comprehensive Plan - Chapter 4, Land Use Element n
Page 65
o
The LIWO Campus Master Plan, originally prepared in 1998 and updated in 2003,
outlines the future plans of the campus. The updated plan has several land use
related impacts including the construction of two new parking ramps, closing of
Elmwood Avenue and Algoma Boulevard, the reconfiguration of High Avenue and
Pearl Avenue, and the addition of some on- street parking spaces.
The Campus Master Plan includes two main sections: a Long -Range Master Plan
and a Phase I Master Plan. The key component of the Long -Range Plan is the
rerouting of Algoma Boulevard and High Avenue around the west side of the cam-
pus. The goal of this rerouting plan is to make the campus more pedestrian -
friendly by shifting the traffic away from the central portion of the campus. The
Phase I plan includes short -term recommendations for accomplishing the long -
range plans.
Theplan is shown below. The city will continue to work with the university during
implementation of the plan.
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/17
University of Wisconsin- Oshkosh (UWO)
The UWO Campus Master Plan was originally prepared in 1998 and updated in
2003 outlines the future plans of the campus. Given the UWO's location to the
west of the Central City, the size of the campus, and it being one of the larger non -
manufacturing employer in the it, the Campus Plan plays a major role in the city's
planning efforts and should strive to be consistent as possible with each other.
The Campus Master Plan includes two main sections: a Long -Range Master Plan
and a Phase I Master Plan. The key component of the Long -Range Plan is the
rerouting of Algoma Boulevard and High Avenue around the west side of the cam-
pus. The goal of this rerouting plan is to make the campus more pedestrian -
friendly by shifting the traffic away from the central portion of the campus. The
Phase I plan includes short -term recommendations for accomplishing the long -
range plans.
Since preparation of the Campus Master Plan, some updates have been made to
the Long -Range Plan regarding traffic circulation. The most updated plan is shown
on the following page. The city will continue to work with the university during the
implementation of their plan. The updated plan includes the location of the new
Recreation and Wellness Center, two new parking ramps, closing of Elmwood Ave-
nue and Algoma Boulevard, the reconfiguration of High Avenue and Pearl Avenue,
and the addition of some on- street parking spaces.
Page 88
n City of Oshkosh Comprehensive Plan — Chapter 5, Transportation Element
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The HBPEP is not connected with the public school system and no financial assis-
tance is available from either the OASD or from the state. The OASD is required,
space permitting, to allow children who are enrolled in a private school or a HBPEP
to take up to two courses per semester at the high school. Continued coordination
between the OASD and those enrolled in the HBPEP is important in order to plan
properly for adequate facilities.
Fox Valley Technical College: The Fox Valley Technical College District is com-
prised of five counties — Calumet, Outagamie, Waushara, Waupaca, and Winne-
bago and is one of sixteen technical college regions in the state. There are two
main campus locations in Oshkosh. The Riverside campus is located on Campbell
Road (since 1980) and the S.J. Spanbauer campus on South Oregon Street (since
1989). Each technical college district is governed by a board of nine who are ap-
pointed according to a state mandated representation formula so as to include both
employers and employees from each of the five counties served.
FVTC offers over 70 programs and serves approximately 53,000 people annually
(5,500 full -time equivalent students) through its full and part time programs, con-
tinuing education and apprenticeship offerings, with about 17 percent of its stu-
dents served in Oshkosh. Approximately 20 percent of area high school graduates
enter directly from high school while 31 percent attend FVTC within 3 years of high
school graduation.
FVTC's recently updated its `strategic directions' plan, which identifies continuous
improvement, enhanced value, growth, and life -long ties to students and graduates
as its four key initiatives over the next 3 to 5 years. Consistent with the FVTC
goals, the city should partner with FVTC in relation to initiatives related to eco-
nomic development and should work to coordinate any future expansion or general
facility issues.
In the greater Oshkosh area, FVTC offers its services through the Oshkosh Senior
Center, Senior Center Annex, at the EAA Lodge and through a small Omro based
facility, all in addition to the Riverside and Spanbauer campuses.
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University of Wisconsin- Oshkosh (UWO) — Originally founded as the Oshkosh
State Normal School in 1871, the university campus has had a presence in Osh-
kosh for over 130 years. In 1971, the school became part of the University of Wis-
consin system and today, it is one of 13 four -year and universities within the UW
system. Enrollment is approximately 11,000 students.
In June 1998, a draft report, "Campus Exterior Master Plan ", was completed by a
private consultant for the UWO. The plan identifies long range improvements to
the campus, and specifically identifies those improvements to be done within the
first phase of plan implementation. The plan also includes design components to
improve and unify the appearance of the campus.
Because of the campus size, its proximity to the central city business district, and
the surrounding neighborhood, the city will continue to work closely with the univer-
sity as they finalize and begin to implement their plan. Additional information about
the Campus Plan is in the Land Use Element and the Transportation Element of
this Plan.
The following map shows the location of the public and private educational facili-
ties.
Page 156
n City of Oshkosh Comprehensive Plan — Chapter 7, Utilities & Community Facilities
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City of Oshkosh Comprehensive Plan — Chapter 7, Utilities & Community Facilities Element (0
Page 157
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City of Oshkosh Comprehensive Plan — Chapter 7, Utilities & Community Facilities Element (0
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Educational Facilities
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City of Oshkosh Comprehensive Plan — Chapter 7, Utilities & Community Facilities Element (0
Page 157
a3 . .
were viewed as most significant were listed with these two documents. Updating
the zoning and subdivision regulations are commonly the first activities undertaken
after the adoption of a comprehensive plan, as they regulate the use and division
of land. The city's Department of Community Development/Planning Services Divi-
sion will be the lead agency responsible for updating these documents.
For the Zoning Ordinance the revisions that were viewed as most important to
conduct include:
a. Creating minimum requirements for open space area and/or recreation
facilities for high- density residential development (or require a deposit to a
park development fund).
b. Creating Landscaping requirements for new developments and parking
lots.
c. Reviewing the minimum lot sizes and setback standards for residential,
commercial, and industrial properties.
d. Reviewing and reducing parking space requirements.
e. Reviewing minimum lot sizes and setback standards for shorelands and
other natural features.
For the Land Subdivision Ordinance, the revisions that were viewed as most im-
portant to conduct include:
a. Creating cluster development requirements for protecting environmentally
sensitive areas.
b. Addressing tree retention and tree replacement during development.
c. Eliminating conflicts between stormwater management and development
requirements.
d. Updating the parkland dedication fees and land dedication requirements.
Implementation of Existing Plans
Four "high- priority" actions address the need for continuing implementation of exist-
ing plans in order to achieve the goals of the Comprehensive Plan. These include:
A. Continuing to implement the recommendations of the "Downtown Action
Plan ". This plan was adopted in October 2000 and is currently being imple-
mented with the completion of Opera House Square and the expansion of Riv-
erside Park. The Downtown Action Plan will continue to be implemented with
the streetscaping projects during the reconstruction of North Main Street and
with the implementation of the South Shore Redevelopment Area.
B. Participating in the implementation of the "University of Wisconsin- Oshkosh
Campus Master Plan ", where those recommendations are consistent with this
Comprehensive Plan. The UW- Oshkosh plan was shown and referenced in
various places in this document, as the Campus Master Plan relates to trans-
portation, neighborhood development, and land uses on a significant portion of
the central city area and along the Fox River.
Page 210
n City of Oshkosh Comprehensive Plan — Chapter 10, Implementation Element
'24
Implementation Schedule
Per the state's requirements, this Plan is required to identify any revisions to applicable docu-
ments and when those revisions will take place, in order to implement the goals, objectives,
plans and programs that have been identified throughout the Plan, including zoning ordinances,
official maps, and subdivision regulations.
The table below summarizes the revisions of these documents that are needed to implement
the Plan:
Document
Timeframe
0 -2 1 3 -6 1 7 -10
years I years I years
Zoning Ordinance (General Provisions) x
• Land Subdivision Ordinance x
Official Map x x x
For the documents described in this section, the Common Council grants final approval/
adoption. Groups and persons participating in the review, revision, and creation of these docu-
ments described will include city staff, boards and commissions, citizens, special interest
groups, state and federal agencies, local units of government, non - profit economic develop-
ment organizations, private sector employers and employees, utility providers, and educational
institutions.
Coordination with Other Plans
Several plans have been adopted since the 1993 Comprehensive Plan was prepared. It is not
the intent of this plan to replicate those documents within the framework of this update, but
those plans that have been adopted are incorporated by reference into this Comprehensive
Plan.
Capital Improvements Program (CIP)
As presented in this Plan, the CIP includes the street, water, sanitary, sidewalk,
and stormwater construction projects in addition to major equipment purchases and
property improvements that will occur each year and also plans the projects for the
next four years. The implementation actions as outlined in this document should
be compared on an annual basis when preparing the CIP. Where applicable, im-
plementation actions of this Plan should be included in the CIP.
University of Wisconsin- Oshkosh (UWO) Campus Master Plan
Due to its proximity to the Central City area and along the Fox River and being one
of the city's larger employer, the UWO Campus has a major presence in the city
being approximately 120 acres in size. The UWO Campus Master Plan, originally
prepared in 1998 and updated in 2003, outlines the future plans of the campus.
The Campus Master Plan includes two main sections: a Long -Range Master Plan
and a Phase I Master Plan. The updated plan has several land use related im-
pacts including the construction of two new parking ramps, closing of Elmwood
Avenue and Algoma Boulevard, the reconfiguration of High Avenue and Pearl Ave-
nue, and the addition of some on- street parking spaces.
City of Oshkosh Comprehensive Plan — Chapter 10, Implementation Element n
Page 213
,2S
1)4
CHAPTER THREE: Street Network and Traffic
Review of Proposed Master Plan Transportation Projects
The Master Plan proposes two primary transportation projects that will significantly impact
vehicular travel patterns on and around the UW- Oshkosh campus:
• Closure of Elmwood Avenue between Irving Avenue and Lincoln Avenue;
• Closure of Algoma Boulevard north of Dempsey Hall and rerouting of traffic from the
one -way pair of High Avenue (southbound) and Algoma Boulevard (northbound) to a
reconstructed Pearl Avenue
The intent of these projects is to create a more pedestrian - friendly campus by providing better
connectivity and fewer major street crossings and pedestrian /vehicle conflicts within the
central campus area. The following sections discuss each of these primary projects and
associated secondary projects in detail.
A. Elmwood Avenue Closure Pro/ect (City Coordination Required)
Elmwood Avenue is a two -way street that begins at Algoma Boulevard just north of Wisconsin
Street, angles to the northwest at Irving Avenue, and continues north along the east campus
boundary past New York Avenue and Congress Avenue to the north of campus. Elmwood
Avenue is currently classified by the City of Oshkosh as a collector street. Traffic counts
obtained from the City indicate that the Average Daily Traffic Volume (ADT) on Elmwood
Avenue is between 3,000 and 4,000 vehicles per day.
Between Irving Avenue and John Avenue, there is a cluster of campus buildings including
residence halls on the east side of Elmwood Avenue. The intent of the Elmwood Avenue
closure is to create a pedestrian mall that connects these buildings to Reeve Union and the
central campus area. Closure of Elmwood Avenue would require City of Oshkosh coordination
and approval.
If implemented as proposed, and as an independent project with other parts of the campus
street system remaining unchanged, this project is unlikely to have a serious negative impact on
access and circulation around campus. Current traffic is light and a portion of it is campus -
related. There are alternative parallel routes available, especially Wisconsin Street, which will
be just as convenient for most Elmwood users and only a minor detour for those with
destinations immediately north or south of the proposed closure.
It is very important to note that the proposed closure of Algoma Boulevard could increase
traffic on Elmwood Avenue dramatically if Elmwood is not closed or restricted in some way.
Many northbound drivers would see Elmwood as a convenient alternate route, more
convenient that the proposed Pearl Avenue route. If Algoma is closed and becomes a two -way
street, southbound traffic on Elmwood may also increase, as there would then be direct access
to Wisconsin Street via Algoma. If both street closure projects are to be undertaken, it is
2010 UW- Oshkosh Master Plan Update - Parking & Transportation Review 4'
strongly recommended that the Elmwood Avenue closure occur first to prevent a diversion of
traffic from an existing arterial system (High /Algoma) to a collector street (Elmwood).
Proposed Elmwood Avenue Closure
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Given the multiple generators of pedestrian traffic along both sides of the proposed closure of
Elmwood, we recommend a redesign of this street to better accommodate and balance all
transportation modes in this area, including pedestrians, bicyclists, service and maintenance
vehicles, and other vehicular traffic needs. Should the University and City choose not to close
Elmwood Avenue, traffic calming devices should be installed to help discourage and slow
through traffic on this route and improve pedestrian safety, especially in anticipation of the
proposed Algoma closure. Types of calming devices the City of Oshkosh has previously
implemented or considered include curb bump -outs, narrowing the cross section, speed
humps, speed tables with pedestrian crossings, and traffic circles within existing intersections.
Depending on right -of -way availability, the intersection of Elmwood Avenue and Irving Avenue
� 2010 UW- OSHKOSH CAMPUS MASTER PLAN - Parking & Transportation Review
may be an appropriate location for a small traffic circle, which would help to reduce speeds and
could serve as a secondary "gateway" entrance to the east side of campus.
B. High /Algoma Street System Proiect (City & WisDOT Coordination Required)
High Avenue and Algoma Boulevard are a one -way pair system. Each street features two lanes,
with southbound traffic using High Avenue and northbound traffic using Algoma Boulevard.
This one -way pair system is currently continuous from Main Street in downtown Oshkosh
through campus to the north, ending at Congress Avenue. This one -way pair system is
currently classified by the City of Oshkosh as an arterial. Traffic counts obtained from the City
indicate that the ADT on each street is between 6,000 and 7,000 vehicles per day, making the
ADT of the one -way pair between 12,000 and 14,000 vehicles per day. The cross section of
High Avenue is approximately 37 feet from face of curb to face of curb, while Algoma Boulevard
is approximately 32 feet from face of curb to face of curb.
The intent of the High /Algoma street system project is similar to the purpose for closing
Elmwood Avenue: to reduce through vehicle traffic in the central campus area and enhance
pedestrian and bicycle connectivity and safety. Due to the significant vehicle traffic carried by
the High /Algoma one -way pair, any adjustments would again need to be coordinated with the
City of Oshkosh. In addition, because Wisconsin Avenue is a state highway (WIS 44), there may
be coordination required with the Wisconsin Department of Transportation (WisDOT) regarding
changes to the traffic signals on WIS 44 at any of the intersections access the campus area.
There are a number of project components necessary to achieve the full scope of the
High /Algoma street system project. These include:
• Closure of Algoma Boulevard from Dempsey Hall to Woodland Avenue, and rerouting of
Algoma Boulevard to connect to High Avenue between Donner Hall and Clow Hall.
• Reconstruction of Pearl Avenue to a four -lane divided roadway with on- street bike lanes
from Wisconsin Avenue to High Avenue near the Axle Tech property.
• Conversion of Algoma Boulevard and High Avenue to two -way facilities between
Wisconsin Avenue and the roundabout.
• Reconnection of High Avenue and Algoma Boulevard into the existing transportation
system at the north end of campus.
We are considering these four projects as a single project, because each is necessary to achieve
the goals of the larger project. The following evaluation considers several issues of concern
related to this project.
1. Pearl Avenue /High Avenue Roundabout (City Coordination Required)
The construction of a roundabout at this location as indicated on the plan is an
acceptable alternative to designs that require the removal of the Axle Tech building.
The design of this roundabout will play a crucial role in determining if the reroute of
traffic from the High /Algoma one -way pair to Pearl Avenue is successful. The primary
benefit of a roundabout at the Pearl /High Avenue intersection is that it slows traffic in a
location where space limitations prohibit safe and efficient design for a singular
continuous route through the campus area.
2010 UW- Oshkosh Master Plan Update - Parking & Transportation Review
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ITEM
DESIGNATE SEGMENT OF ELMWOOD AVENUE
AS A PE DESTRIAN MALL
City of Oshkosh
G1R General Application
ON THE WATER
* *PLEASE TYPE OR PRINT USING BLACK INK **
APPLICANT INFORMATION
Petitioner: University of Wisc onsin Oshkosh Campus, JoAnn Rife
Petitioner's Address: 800 Algoma Boulevard cit Oshkosh
Telephone #: (920 ) 424 -2438
Status of Petitioner (Please Check):
Petitioner's Signature
OWNER INFORMATION
Owner(s): City of Oshkosh
Fax: (920) 424 -0259
Owner(s) Address: 215 Church Avenue
Telephone #: ( 920 ) 236 -5000
Fax: ( 920) 236 -5053
Other Contact # or Email:
Ownership Status (Please Check): ❑Individual ❑Trust ❑Partnership ❑Corporation
Date:
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:
TYPE OF RE VEST:
Access Control Variance
Easement
Privilege in Street (identify) _
✓ Other (identify) Street vacation
SITE INFORMATION
Address/Location of Proposed Project: Elmwood Avenue from approximately 200 feet S of W. Lincoln to West Irving
Proposed Project Type: Street Vacation to create Pedestrain Mall between UWO Residence Halls and the balance of the car
Current Use of Property: City Street
Land Uses Surrounding Your Site: North: UW Oshkosh Campus Buildings and Residential Properties
South: UW Oshkosh Campus Buildings and Residential Properties
East: UW Oshkosh Campus Residence Halls
West: UW Oshkosh Campus Buildings including residence halls
➢ 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 www.ci.oshkosh.wi.us/ Community _Development /Planning.htm
Staff Date Rec'd O� V t
SUBMIT TO:
Dept. of Community Development
215 Church Ave., P.O. Box 1130
Oshkosh, WI 54901
PHONE: (920) 236 -5059
Date: Oct 18, 2010
State: Wl Zip: 54901
Other Contact # or Email: rife @uwosh.edu
❑Tenant ❑ Prospective Buyer
City: Oshkosh
Date: fl ' it0
Date: Oct 18, 2010
State: W1 Zip: 54903 -1130
Zoning:
Ae
The University of Wisconsin Oshkosh campus is requesting the vacation of Elmwood Avenue
right of way from approximately 200 feet south of West Lincoln Avenue to West Irving Avenue.
The intent of this it to allow for a safer pedestrian environment between the campus residence
halls (Evans Hall, Stewart Hall and Fletcher Hall) and the Student Success Center which houses
Counseling, Advising, Center for Academic Advising, Writing Study Center located to the east
of Elmwood Avenue with the new suite -style residence hall (under construction), Reeve
Memorial Union and the rest of the campus on the west side of Elmwood Avenue.
As part of the UW Oshkosh Campus Master Plan update, MSA Professional Services, Inc. was
hired as a sub - consultant to Ken Saki, Inc to conduct a review of the parking and transportation.
This review evaluated the proposed changes for their impact on parking, transportation and
traffic on and around the UW Oshkosh campus. Chapter 3 of this report focuses on the
functionality of the street network, both on and off the UW Oshkosh campus so any potential
safety or level of service problems associated with the proposed changes to the street grid, both
for campus- related traffic and through traffic could be identified. Exhibit A is the excerpt from
this report specifically addressing an Elmwood Avenue Closure project.
Similar to other pedestrian mall areas already developed around the UW Oshkosh campus, this
would include planting beds to reduce the storm water run -off. This pedestrian mall would be
designed and constructed to ensure Police and Fire Department access to campus building and
accomplished in such a manner as to accommodate the weight of public safety vehicles and
incorporation of break -a -way bollards and drivable curbs.
At the northern end of this vacation, a cul -du -sac to address the need for a turn around as well as
for drop -off and pick -up is included. The southern end of this vacation incorporates the
connection of Elmwood Avenue directly onto West Irving. Refer to the exhibits B and C for the
current design of this section of Elmwood as well as the proposed design developed thru the
Campus Master Plan update process. We are asking the City of Oshkosh to incorporate these
within their reconstruction of Elmwood Avenue, scheduled to begin in spring of 2011.
Thank you for your consideration of this request.
37 . -
Exhibit A
CHAPTER THREE: Street Network and Traffic
Review of Proposed Master Plan Transportation Projects
The Master Plan proposes two primary transportation projects that will significantly impact
vehicular travel patterns on and around the UW- Oshkosh campus:
❑ Closure of Elmwood Avenue between Irving Avenue and Lincoln Avenue;
❑ Closure of Algoma Boulevard north of Dempsey Hall and rerouting of traffic from the
one -way pair of High Avenue (southbound) and Algoma Boulevard (northbound) to a
reconstructed Pearl Avenue
The intent of these projects is to create a more pedestrian - friendly campus by providing better
connectivity and fewer major street crossings and pedestrian /vehicle conflicts within the
central campus area. The following sections discuss each of these primary projects and
associated secondary projects in detail.
A. Elmwood Avenue Closure Project (City Coordination Required)
Elmwood Avenue is a two -way street that begins at Algoma Boulevard just north of Wisconsin
Street, angles to the northwest at Irving Avenue, and continues north along the east campus
boundary past New York Avenue and Congress Avenue to the north of campus. Elmwood
Avenue is currently classified by the City of Oshkosh as a collector street. Traffic counts
obtained from the City indicate that the Average Daily Traffic Volume (ADT) on Elmwood
Avenue is between 3,000 and 4,000 vehicles per day.
Between Irving Avenue and John Avenue, there is a cluster of campus buildings including
residence halls on the east side of Elmwood Avenue. The intent of the Elmwood Avenue
closure is to create a pedestrian mall that connects these buildings to Reeve Union and the
central campus area. Closure of Elmwood Avenue would require City of Oshkosh coordination
and approval.
If implemented as proposed, and as an independent project with other parts of the campus
street system remaining unchanged, this project is unlikely to have a serious negative impact on
access and circulation around campus. Current traffic is light and a portion of it is campus
related. There are alternative parallel routes available, especially Wisconsin Street, which will
be just as convenient for most Elmwood users and only a minor detour for those with
destinations immediately north or south of the proposed closure.
It is very important to note that the proposed closure of Algoma Boulevard could increase
traffic on Elmwood Avenue dramatically if Elmwood is not closed or restricted in some way.
Many northbound drivers would see Elmwood as a convenient alternate route, more
convenient that the proposed Pearl Avenue route. If Algoma is closed and becomes a two -way
street, southbound traffic on Elmwood may also increase, as there would then be direct access
to Wisconsin Street via Algoma. If both street closure projects are to be undertaken, it is
39
strongly recommended that the Elmwood Avenue closure occur first to prevent a diversion of
traffic from an existing arterial system (High /Algoma) to a collector street (Elmwood).
Proposed Elmwood Avenue Closure
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Given the multiple generators of pedestrian traffic along both sides of the proposed closure of
Elmwood, we recommend a redesign of this street to better accommodate and balance all
3�1
transportation modes in this area, including pedestrians, bicyclists, service and maintenance
vehicles, and other vehicular traffic needs. Should the University and City choose not to close
Elmwood Avenue, traffic calming devices should be installed to help discourage and slow
through traffic on this route and improve pedestrian safety, especially in anticipation of the
proposed Algoma closure. Types of calming devices the City of Oshkosh has previously
implemented or considered include curb bump -outs, narrowing the cross section, speed
humps, speed tables with pedestrian crossings, and traffic circles within existing intersections.
Depending on right -of -way availability, the intersection of Elmwood Avenue and Irving Avenue
may be an appropriate location for a small traffic circle, which would help to reduce speeds and
could serve as a secondary "gateway" entrance to the east side of campus.
410,
Exhibit B
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ITEM II -B.
PRIVILEGE IN THE RIGHT -OF -WAY TO PLACE
PEDESTRIAN MALL AND STREETSCAPE
IMPROVEMENTS
�3
0 City of Oshkosh
QlHKQIH General Application
ON THE WATER
* *PLEASE TYPE OR PRINT USING BLACK INK **
APPLICANT INFORMATION
Petitioner: University o f Wisconsin Oshkosh Campus, JoAnn Rife
Petitioner's Address: 800 Algoma Boulevard Cit Oshkosh
Telephone #: (920 ) 424 -2438
Fax: ( 920) 424 -0259
SUBMIT TO:
Dept. of Community Development
215 Church Ave., P.O. Box 1130
Oshkosh, WI 54901
PHONE: (920) 236 -5059
Date: Oct 18, 2010
State: Wi Zip: 54901
Other Contact # or Email: rife @uwosh.edu
Status of Petitioner (Please Check): ❑Owner ❑✓ Representative ❑Tenant ❑ Prospective Buyer
Petitioner's Signature (required):
OWNER INFORMATION
Owner(s): City of Oshkosh
Owner(s) Address: 215 Church Avenue
Telephone #: ( 920 ) 236 -5000
City: Oshkosh
Fax: ( 920 ) 236 -5053 Other Contact # or Email:
Ownership Status (Please Check): ❑Individual [ ❑Partnership ❑Corporation
Date:
Date: Oct 18, 2010
State: Wi Zip: 54903 -1130
Property Owner Consent: (required)
By signature hereon, l /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:
TYPE OF REQUEST:
Access Control Variance
Easement
✓ Privilege in Street (identify) 700 b lock of Elmwood Avenue
Other (identify) street Vacation
SITE INFORMATION
Address /Location of Proposed Project: Elmwood Avenue from approximately 200 feet S of W. Lincoln to West Irving Avenue
Proposed Project Type: Creation of Pedestrain Mall between UWO Residence Halls and the central campus.
Current Use of Property: City Street Zoning:
Land Uses Surrounding Your Site: North: UW Oshkosh Campus Buildings and Reside Properties
South: UW Oshkosh Campus Buildings and R esidential Properties
East: UW Oshkosh Campus Residence Halls
West: UW Oshkosh Campus Buildings including residence halls
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 www.ci.oshkosh.wi.us/ Cormunity_Development/Planning.htm
Staff ) Date Rec'd
Date:
�/.
OSHKOSH
December 13, 2010
City of Oshkosh
Attn.: Planning Department
315 Church Street
Oshkosh, WI 54901
RE: Privilege in Street — 700 Block of Elmwood Avenue, Creation of Pedestrian Mall
Planning Department;
The University of Wisconsin Oshkosh under authority of the University of Wisconsin System
Board Of Regents, is requesting a privilege in street in the 700 block of Elmwood Avenue from
approximately 200 feet south of West Lincoln Avenue to West Irving Avenue to create a
pedestrian mall. The current use of this property is a City of Oshkosh connector street which
bisects student housing on the UW Oshkosh campus. Refer to Exhibits A and B which reflect the
existing site plan and the 26,555 square feet (0.61 acre) City of Oshkosh right of way area
affected with this request.
This creation of a pedestrian mall is in keeping with the University's Campus Master Plan
included in the approved 2005 City of Oshkosh Comprehensive Plan. The pedestrian mall is also
in keeping with the campus master plan 2010 update which was presented and approved by the
Board of Regents in their October 2010 meeting. The intent of the Elmwood Avenue closure is
to create a pedestrian mall that connects the student housing to Reeve Memorial Union, the
Student Success Center and the central campus area. Refer to Exhibit C for the pedestrian mall
design included in the 2010 UW Oshkosh Campus Master Plan Update.
In advance of this request, our campus held a neighborhood meeting on Nov 22 in Reeve
Memorial Union to present options and acquire feedback. Both public officials as well as the
general public were in attendance. We invited the neighborhood from Congress Avenue south to
Wisconsin and from the Fox River east to Jackson Street. An overview of the existing conditions
of the campus was presented. Our campus is currently truncated by High, Algoma and Elmwood
Avenue and we desire the ability to create a pedestrian friendly campus with more defined
campus boundaries. As shown by Exhibit C, we presented a design option which would create a
cul -de -sac at east entrance to Reeve Union which could accommodate a drop off for residents of
student housing, the newly renovated Student Success Center as well as Reeve Memorial Union.
Closure of this section of Elmwood Avenue would increase the pedestrian safety between
student housing (New Residence Hall, Fletcher Hall, Evans Hall and Stewart Hall), food service
facilities (Blackhawk Commons and Reeve Memorial Union), student assistance programs
(Student Success Center) and the central academic campus.
PLANNING & CONSTRUCTION
FACILITIES MANAGEMENT
UNIVERSITY OF WISCONSIN OSHKOSH, 800 ALGOMA BLVD, OSHKOSH, WISCONSIN 54901 7
(920) 424 -2006, FAX (920) 424 -0259
An Equal Opportunity /.Affirmative Action Institution, www.uwosh.edu
Traffic considerations which were evaluated by MSA Professional Services as part of the
Campus Master Plan update were presented. This included a discussion on how High Avenue
and Algoma Boulevard would remain open as a one -way pair through the campus until such a
time as Pearl Avenue could be developed into a four lane boulevard. Traffic counts, provided
from City of Oshkosh records, reflected the amount of vehicles utilizing Elmwood Avenue as a
through street in this part of the City. This closer would likely route traffic over to the High
Avenue /Algoma Boulevard one -way pair, to Cherry Street, or more likely to Wisconsin Street.
While this would slightly impact the traffic flow through the neighborhood, the majority of the
traffic in this area is from students trying to find a place to park "off- campus" or campus
personnel and commuter students making their way to and from the campus parking lots.
Another consideration for the timing is the fact that the city of Oshkosh will have Elmwood
Avenue closed for redevelopment including the upgrading of the storm and sewer and concrete
paving inclusive of curb, gutter and sidewalks. UW Oshkosh has had discussion with the
Oshkosh Public Works department on this endeavor.
Several concerns arose from this public meeting. First, there was a concern with the change in
the traffic flow and how it may impact the residents in the neighborhood. We acknowledge that
this will mean a change for traffic habits currently developed but with the closure of Elmwood
Avenue for the redevelopment by the City, alternative habits may be developed thus minimizing
the long term affect of this change.
Second, there was a concern from Police and Fire (Public Safety) regarding the response time.
To alleviate this concern, the design of the pedestrian mall will allow a minimum of 20 foot
unobstructed path thru for emergency vehicles (26 foot minimum where within 35 feet of any
building exceeding 35 feet in height); have entrances at each end of the mall which are 10 feet
wide openings to discourage traffic while allowing for smooth as possible transition for bicycles
and emergency vehicles; and will have no curbs within right of way so it will be "barrier- free ".
Third, there were questions regarding the numbers of students in the resident halls on either side
of the street, visitors to Reeve Memorial Union and Student Success Center. This information
can be found in the following tables:
Resident capacity by building:
Evans Hall
240
Stewart Community
240
Fletcher Hall
520
East side of Elmwood Sum:
1000
New Residence Hall
349
N. Scott Hall
656
S. Scott Hall
584
West side of Elmwood Sum:
1589
46-1
Reeve Memorial Union visitors:
Per Week
Per Day
Fall Term: M -F
30,544
6,109
Spring Term: M -F
39,836
7,967
170
100
Writing Center
Student Success Center:
Full & Part-
time staff
Student
Visitors Daily
Academic Advising
50
400
Center for Academic Resources
170
100
Writing Center
12
18
Career Services
21
160
Counseling Center
22
50
SUM:
275
728
As a result of the neighborhood meeting, UW Oshkosh contracted MSA Professional Services to
develop a conceptual design. With the input from City Staff and the neighborhood, MSA
developed the design attached as Exhibit D. This design is conceptual to illustrate the general
idea — the final configuration could vary. Core elements of this design include:
1.) Closure to all traffic except bikes, emergency vehicles and UWO service vehicles.
2.) An unobstructed 20 -feet path thru the plaza for emergency vehicles. Some of this width
may utilize a different material and /or pavement markings to designate a two -way bike
path, but the whole 20 feet would be built to handle fire trucks.
3.) Driveway -style entrances (10 feet width) at either end of the "plaza" to emphasize the
fact it is not a road.
4.) Provision of bicycle facilities consistent with the City's bicycle and pedestrian plan,
which is currently under development.
5.) No curbs within the plaza — it would be "barrier- free"
6.) Stormwater management will still need to be worked out as this is an important detail to
assist in meeting the Total Suspended Solids reduction requirements.
This information was then shared with the City of Oshkosh Community Development, Public
Works, Fire Department, Police, and Transportation for their input prior to this submittal. The
university is in agreement to the following general conditions /parameters for the design of the
pedestrian mall:
1.) Elmwood would remain a public right of way.
2.) Additional right of way to be agreed upon on the south side of Lincoln between
Elmwood and McKinley to improve the turning radius for traffic turning onto Lincoln,
and to create a sidewalk on this side of the street.
3.) A minimum of 20' of clear space for fire apparatus through the site and 26' of clear
space to be provided when the street is within 35' of any building that exceeds 35' in
height.
4-7
4.) The entrance at each end of the pedestrian mall may be 10' wide at the opening to
discourage traffic.
5.) Additional easement to be agreed upon at the north end of the pedestrian mall to
construct the cul de sac to accommodate the bulb and walkway.
6.) No storm water management practices will be allowed in the right of way. Campus
biofiltration measures may be incorporated but not within the public right of way.
7.) Mall shall be functional for fire with no median in place to break up the unobstructed
path of travel for emergency vehicles.
8.) The unobstructed path of travel for emergency vehicles may include walkway and /or
bike lane(s).
9.) Details on materials for construction of plaza will be discussed in the development of a
final design with one thought being the use of brick pavers or color concrete to
distinguish it from a street.
10.) Privilege permit may be revoked by the city, in the future, with respect to other traffic
changes on streets around the university.
Thank you for consideration of this request.
Sincerely,
JoAnn L. Rife
Planning Director, IIDA, WRID
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Transportation Department
TO: TRAFFIC REVIEW ADVISORY BOARD
FROM: CHRISTOPHER STRONG, TRANSPORTATION DIRECTOR
DATE: DECEMBER 3, 2010
SUBJECT: MEETING NOTICE FOR DECEMBER 14, 2010
A meeting of the Traffic Review Advisory Board will be held on Tuesday, December 14, 2010
at 4:00 p.m. in room 404, City Hall.
The following items will be considered:
Approval of Minutes
New Business:
1. A request to install stop signs for Central Street at its intersection with Melvin Avenue.
(Current condition: Yield sign.)
2. A request to install a stop sign for Central Street at its intersection with Scott Avenue.
(Current condition: Uncontrolled intersection.)
3. A request to allow right turns on red on northbound Main Street at Washington Avenue.
(Current condition: Right turns on red are prohibited.)
A request to convert Elmwood Avenue between Irving Avenue and Lincoln Avenue to
a pedestrian mall. (Current condition: Collector street.)
5. A request for no parking on the west side of Harrison Street from Libbey Avenue to
180 feet north of Libbey Avenue. (Current condition: Unrestricted parking.)
Staff Statements
Agenda Items for the Next Meeting
Adjournment
If unable to attend the meeting, PLEASE call my Administrative Assistant, Jennifer Weigand at
232 -5342 or email her at jweigandCaD_ci.oshkosh.wi.us and let her know, so we are assured of
having a quorum.
� 02
E More than three right- turn -on -red accidents reported in a 12 -month perio or the
part cular approach; or
F. The skew angle of the intersecting roadways creates difficulty for delvers to see traffic
approachingfrom.their left."
,f
As the only conflicting traffic movement (a southbound left) would be clearly visible to the
northbound motorist, it would seem that sight distance would not be an issue. The restriction
may have been due to the lane layout that'used to exist on Washington Avenue. Prior to this
year's reconstruction, there were three lanes forwestbound traffic, with the stop bar for the
westbound left being set back from the otherJdnes Perhaps the restriction was in effect to
protect westbound cars waiting to turn
It
from being lilt by wide turns from northbound right -
turning vehicles. (Crash records fro 2007 -09 indicate that there was one accident involving a
northbound right - turning vehic whose wide turn contributed to mash with westbound left -
turning vehicles.) Washin n Avenue at its reconstructed approach wiMain Street has only
two lanes, which allo or a wider eastbound lane to accommodate turnin ehicles, so this
should be less of issue.
Since t does not appear to be a compelling reason to keep this prohibition, I recomm"
app al of this request.
4. A request to convert Elmwood Avenue between Irving Avenue and Lincoln Avenue to a
pedestrian mall. (Current condition: Collector street.) +_
This is a University request.
As a part of its Campus Master Plan, the University of Wisconsin - Oshkosh wishes to close
Elmwood Avenue between Irving Avenue and Lincoln Avenue. This closure is indicated in the
UWO Campus Master Plan included in the approved 2005 City of Oshkosh Comprehensive Plan.
According to the 2010 UW- Oshkosh Master Plan Update: Parking & Transportation Review,
"The intent of the Elmwood Avenue closure is to create a pedestrian mall that connects these
buildings to Reeve Union and the central campus area." The request is being made now since
Elmwood Avenue is scheduled for reconstruction in 2011.
Recent plans submitted by the University indicate that the proposed pedestrian mall will be
designed to allow access to emergency vehicles and University service vehicles. (Please see
Figure 1.) It will also provide bicycle facilities consistent with the City's bicycle and pedestrian
plan, which is currently under development.
This section of Elmwood Avenue is designated as a collector street. According to the 2005
Comprehensive Plan, "Collector streets provide both land access service and traffic circulation
within residential neighborhoods, commercial areas, and industrial areas. Collector streets
channel traffic into the arterial street system from the local street system." With this definition,
collector streets play an important role in the community's overall street network.
S3
Figure 1: Proposed Elmwood Avenue Closure
� `7
The proposed street closure would require traffic to divert onto other streets. How much traffic
will divert and to which streets is impossible to know with precision. Estimated daily traffic
volumes at the intersections of Elmwood Avenue with Lincoln Avenue and Irving Avenue are
shown in Figure 2.
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vehicles per day vehicles per day (0 0
Figure 2: Estimated Daily Traffic Volumes at Elmwood Avenue & Lincoln Avenue and
Elmwood Avenue & Irving Avenue Intersections
The proposed street closure will have a major impact on traffic which currently uses Elmwood
Avenue as a through street in this part of the City. With this closure, the traffic would likely
prefer to use a route that minimizes the number of stop and yield signs. Some traffic will shift
over to the High Avenue /Algoma Boulevard one -way pair, but likely more traffic will shift over
to Cherry Street (a 36 -foot wide local street) or Wisconsin Street (a 40 -foot wide collector).
While this would result in an increase in traffic on these alternate streets, it shouldn't be
necessary to modify traffic control devices or parking regulations. However, it should be noted
that previous accident analyses have shown that the intersection of Irving Avenue and Wisconsin
Street has had a relatively high number of crashes. Increased traffic at the intersection will
increase the number of potential vehicle conflicts, and potentially increase the number of
crashes.
The proposed street closure will also have a major impact on people living in this immediate
neighborhood who use Elmwood Avenue as a local street. It is likely that this would increase the
time it takes for residents to access these properties. The increase in time may be negligible,
depending on the time of day.
These impacts on vehicle traffic would be offset by the potential pedestrian safety benefits
associated with this proposal. There is likely significant pedestrian traffic which goes between
the campus buildings on either side of this section of Elmwood Avenue. The creation of the
pedestrian mall would essentially eliminate potential vehicle - pedestrian conflicts on this section
of street.
_5
Street closures can create concerns for emergency response. As the University's request allows
emergency vehicles to continue to use this street if necessary, any response time impacts should
be relatively negligible.
The Board has supported closures of streets in the past, but these have typically related to
creating dead -end streets, such as the closure of Spruce Street at its intersection with Murdock
Avenue and Vinland Road in 1995; and Mt. Vernon Street at its intersection with Harrison Street
in 1996.
I have attached, for the Board's reference, a copy of the current campus master plan layout
proposed by the University. The University's long -term goal is to significantly change traffic
patterns on Algoma Boulevard and High Avenue to create more of a campus environment. These
requests are not being proposed at this time.
5. A request for no parking on the west side of Harrison Street from Libbey Avenue to 80
feet nort h ibbey Avenue. (Current condition: Unrestricted parking.)
This is a citizen re est. (Jeanie Klinker, 2407 Harrison)
The citizen reports that tru are legally parking on this section of Harrison street, in relatively
close proximity to her drivew which makes it difficult to see whether there is a sufficient gap
in traffic. The citizen is concerne hat the continued parking of trucks hire could result in a
crash when she leaves her property. is request would create a no patting zone from Libbey
Avenue to the utility pole just north of citizen's property's driveway.
I would not recommend prohibiting parking. ply because it is too close to a residential
driveway, as this could set a bad precedent for er areas in the City. In addition, the street
width is measured at about 44' wide, which is ade ate to handle parking on both sides of the
road.
There are at least two factors which makekiis situation a 'ttle unusual from most cases where
on -street parking restrictions are considered. First, the citize is concerned particular with high -
profile vehicles that may obstruct view more than the sizes of hicles which typically park in
residential neighborhoods. Second, it would not be inconsistent 'th the Comprehensive Plan to
restrict parking in this area. The Comprehensive Plan designates rison Street as a minor
arterial. For minor arterials, the Comprehensive Plan proposes four 1 es for moving traffic, with
on- street parking removed as needed to provide additional lanes for mo 'ng traffic. (It should be
noted that current tr4.ffic volumes do not support the need to remove on -s et parking. Recent
traffic counts sug Est that there are 4,000 to 5,000 vehicles per day on this s tion of Harrison
Street, whiss than the 6,000 vehicles per day threshold which would be ical of a minor
arterial.) ch i e
The citizen indicates that trucks are parking in this area as a staging area before proceeding to
Oshkosh Corporation for delivery and pick -up of materials. It is likely that enacting this no
!S�
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Of HKOIH
City of Oshkosh - Transportation Department ON T HE WATER
926 Dempsey Trail, Oshkosh, WI 54902 (920) 232 -5342 (920)232 -5343 fax
MEMORANDUM
TO: Darryn Burich, Director of Planning Services
FROM: Christopher Strong, P.E., Director of Transportation
DATE: January 13, 2011
RE: TRAFFIC IMPACTS FOR PROPOSED PEDESTRIAN MALL ON
ELMWOOD AVENUE
The purpose of this memo is to present an analysis of the potential traffic impacts of the
pedestrian mall proposed for Elmwood Avenue. This memo will focus entirely on vehicular
traffic impacts as 1) the City has no data on existing pedestrian traffic volumes in this area, and
2) the pedestrian mall will only serve to improve pedestrian and bicycle mobility in this area.
The proposed pedestrian mall will close Elmwood Avenue to vehicle traffic (except emergency
responders and UWO service vehicles) between Irving Avenue and Lincoln Avenue. Therefore,
the vehicle traffic volume impacts of the pedestrian mall will be highest at these intersections,
and will be lower in magnitude at more distant intersections.
Estimated traffic volume data at these intersections, as collected when UWO classes were in
0 0 >t
LU LO
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Q V `L 1�
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l4
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o LINCOLN AVE
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XXX = Estimated 0 0 0 0
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Figure l: Estimated Daily Traffic Volumes at Elmwood Avenue & Lincoln Avenue and
Elmwood Avenue & Irving Avenue Intersections
City of Oshkosh — Department of Transportation 1 5
Traffic Impacts for Proposed Pedestrian Mall on Elmwood Avenue
session in 2010, is shown in Figure 1. The number of vehicles approaching the intersection from
each direction is based on data collected from pneumatic tubes. The percentage of vehicles
turning from each approach was estimated by extrapolating data collected during a short interval
in 2010. If these data are estimated correctly, the volume of traffic on Elmwood Avenue in this
area is between 3,300 and 3,700 vehicles per day. It is assumed that, for the most part, the traffic
would be evenly split between northbound and southbound flow.
It is assumed that the creation of the pedestrian mall will not reduce the number of vehicle trips
in this area. Therefore, these vehicle trips will be relocated to other streets in the area. It is
impossible to know, without reliable origin- destination data for all vehicles using the street, how
traffic will be re- distributed to other streets in the network. (The area streets are shown in Figure
2.) To try to better define the potential impacts, a worst case scenario will be considered. The
worst case assumptions will then be relaxed in order to find what might happen under a set of
more likely conditions.
Worst Case Scenario
From the perspective of traffic impacts, a worst case scenario is defined as follows:
• All of the traffic on Elmwood Avenue is a through movement; i.e. it is not going to or from
UWO or the surrounding neighborhoods.
City of Oshkosh — Department of Transportation
Figure 2: Location of Traffic Count Data
Traffic Impacts for Proposed Pedestrian Mall on Elmwood Avenue
• All of this through traffic is diverted to a single street. The competing alternative routes for
this traffic diversion would seem to be: the Algoma Boulevard /High Avenue one -way pair;
Irving Avenue to Cherry Street to New York Avenue; Irving Avenue to Cherry Street to
Lincoln Avenue to Elmwood Avenue; or'Irving Avenue to Wisconsin Street to New York
Avenue.
The following is an assessment of how well each of these streets might be expected to serve this
traffic.
Algoma Boulevard/High Avenue
This one -way pair of principal arterials has two lanes of moving traffic in each direction. The
combined average daily traffic (ADT) volume on this pair of streets ranges from 10,100 at New
York Avenue to 14,100 at Vine Avenue. Assuming all traffic from Elmwood Avenue uses these
streets, the diversion of traffic from Elmwood Avenue would increase traffic volumes by 23 -37
percent.
The increased traffic volumes would not be enough to require the installation of new traffic
signals at intersections, as cross - street volumes are not adequate to satisfy the relevant warrants.
Algoma Boulevard currently has two pedestrian- activated traffic signals to help create gaps for
pedestrians to cross the street. Similar signals have been discussed as a possibility in the context
of the University's new academic building to be located on the south side of High Avenue. It is
possible that a pedestrian- activated traffic signal might be warranted on High Avenue, even
without the diversion of traffic from Elmwood Avenue, depending on how pedestrian and vehicle
traffic navigate through the area after the building is open.
Parking restrictions are in effect in various places on both streets. Given that two through lanes of
acceptable width are already available on both streets, it is unlikely further parking restrictions
would be required.
Among the intersections that would be affected by this traffic, only the intersection of High
Avenue and New York Avenue has been identified as a high -crash location. A typical crash type
at that location involves southbound vehicles failing to use High Avenue as a one -way street and
making inappropriate turning movements. It is possible that increased traffic would increase the
number of crashes at this intersection, but no more so than increased traffic might do for any
intersection in the City. In summary, no special safety or capacity problems are foreseen.
Irving Avenue /Cherry Street /New York Avenue
Irving Avenue and Cherry Street are both local streets in this area, while New York Avenue is a
collector. ADT volumes on Irving Avenue are approximately 3,000 to 3,200 vehicles per day.
For the most part, parking is prohibited in daytime hours on this street.
Cherry Street is a local street, which is also a through street; i.e. it has no yield or stop signs
between Irving and New York Avenues. No ADT volume data is available for Cherry Street.
Parking is prohibited on the east side of the street, whereas parking is allowed on the west side of
the street. At 36 feet in width, the street is sufficiently wide that on- street parking regulations are
City of Oshkosh — Department of Transportation
Traffic Impacts for Proposed Pedestrian Mall on Elmwood Avenue
generally not required from a safety perspective. Therefore, it is unlikely additional parking
restrictions would be necessary, even if all the Elmwood Avenue traffic diverted to this street.
New York Avenue is a collector street, with an approximate ADT of 5,400 vehicles per day west
of Wisconsin Street and 4,600 vehicles per day east of Elmwood Avenue. It is also a through
street from Wisconsin Street to Elmwood Avenue. Parking is prohibited on the north side of the
street and is generally allowed on the south side of the street. At 34 feet in width, additional
restrictions in parking regulations would likely not be necessary.
The City's practice is to recommend against the use of traffic control devices for speed control or
traffic calming. If traffic volumes were to increase on Cherry Street due to a diversion of traffic
from Elmwood Avenue, the City would not recommend installation of yield or stop signs on
Cherry Street. Instead, if cut - through traffic and /or speeding were an issue, the Transportation
Department would recommend that traffic calming measures involving enforcement, signage or
potential roadway modification be investigated. Similarly, no changes in traffic control on New
York Avenue would be anticipated.
It is unlikely that traffic volumes at any intersection along this route would result in a traffic
signal being warranted.
None of the intersections along this path have been identified as high -crash locations in recent
years.
Irving Avenue /Cherry Street /Lincoln Avenue /Elmwood Avenue
This alternative would have traffic driving around the boundary of the proposed pedestrian mall,
adding as little distance as possible. The only intersections which would see additional traffic
would be Cherry Street's intersections with Irving Avenue and Lincoln Avenue; the impacts at
these locations would likely be similar to those discussed under the other Cherry Street
alternative. Intersection safety at the Elmwood Avenue intersections at either end of the
pedestrian mall would arguably be improved, as there would be a reduced number of conflicting
turn movements.
Irving Avenue /Wisconsin Street /New York Avenue
Wisconsin Street is a 40 -foot wide collector street (to New York Avenue), with parking
prohibited on much of the east side of the street. As it is a little wider than Cherry Street,
Wisconsin Street would seem to provide drivers with perhaps a more attractive alternative for a
through street.
The intersection of Irving Avenue and Wisconsin Street is a four -way stop which serves over
10,000 vehicles per day, which means that (under a worst case scenario) there could be a 35
percent increase in traffic through this intersection. The crash rate at this intersection is higher
than at other all -way stop intersections in the City, and the addition of traffic to this intersection
would increase the number of potential vehicle - vehicle conflicts. It is possible that the additional
traffic might merit consideration of a traffic signal at this location. Since this intersection is on
the state trunk highway system, the installation of a traffic signal would need to be approved by
City of Oshkosh — Department of Transportation 4
Traffic Impacts for Proposed Pedestrian Mall on Elmwood Avenue
the Wisconsin DOT. The intersection has tight geometrics, which may constrain the ability to
improve this intersection's capacity.
The intersection of New York Avenue and Wisconsin Street serves over 11,000 vehicles per day,
with relatively equal traffic flows on each street. Parking restrictions on Wisconsin Street south
of New York Avenue should have ample clearance for increased turning movements that may
occur between these streets.
Like Cherry Street, Wisconsin Street is a through street between Irving Avenue and New York
Avenue, so traffic control changes would not be recommended on this street.
Summary of Worst Case Impacts
In general, these alternative routes appear to have enough capacity to handle the "worst case"
scenario for potential traffic diversion. There are a couple of intersections which have higher
crash histories than other intersections, but it does not appear that a worst case scenario would
create any new safety problems. It is possible, but not certain, that traffic diversion could support
the installation of new traffic signals; however, the fact that a signal warrant is satisfied does not
mean that a signal must be installed.
Likely Scenario
The worst case scenario is used to establish what the worst outcome might be for traffic
diversion. A more likely scenario would relax the assumptions made earlier, as follows.
• Not all of the traffic on Elmwood Avenue is a through movement. Hundreds of vehicles park
in UWO lots and on- street in this vicinity, and other vehicles are destined for residences near
campus. These vehicles would not be using Elmwood Avenue as a through street. Some of
this traffic may continue to use Elmwood Avenue north of Lincoln Avenue or south of Irving
Avenue, which would reduce the amount of traffic diverted to other streets.
• Not all of this through traffic will be diverted to a single street. It is likely that the variety of
origins and destinations will result in traffic choosing to divert to different streets. This would
reduce the percentage increase in traffic on these other streets.
• It is possible that the pedestrian mall may result in a decrease in vehicle trips. One such
scenario is that vehicles which are circling the neighborhood in search of on- street parking
may find it less convenient to do so, reducing the number of times they drive around.
Given these considerations, it does not appear that the proposed pedestrian mall would have an
impact on adjacent streets that would require immediate remediation in parking regulations or
traffic control. Nonetheless, it would be appropriate to monitor the impacts of the pedestrian
mall. Subsequent traffic data collection would be advised to help see how traffic volumes are
shifting. In addition, the City's annual accident analysis will continue to look at all intersections
of the City to identify high crash locations. High crash locations identified in the accident
analysis would be reviewed for mitigation measures, for intersections near the pedestrian mall as
well as those elsewhere in the City.
City of Oshkosh — Department of Transportation
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This map is neither a legally recorded map nor
a survey and it is not intended to be used as one.
This drawing is a compilation of records, data
and information located in various city, county
and state offices and other sources affecting
the area shown and it is to be used for reference
purposes only. The City of Oshkosh is not re-
sponsible for any inaccuracies herein contained.
If discrepencies are found, please contact the
City of Oshkosh.
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City of Oshkosh
Department of
Community Development
1211711C
61