HomeMy WebLinkAbout11-93FEBRUARY 22, 2011 11 -93 RESOLUTION
(CARRIED 6 -0 LOST LAID OVER WITHDRAWN
PURPOSE: APPROVE PRIVILEGE IN STREET TO UW- OSHKOSH TO
ALLOW IMPROVEMENTS WITHIN A PEDESTRIAN MALL ON
ELMWOOD AVENUE BETWEEN LINCOLN AVENUE AND
IRVING AVENUE
INITIATED BY: UW- OSHKOSH
PLAN COMMISSION RECOMMENDATION: Approved w /conditions
WHEREAS, UW- Oshkosh requests the Common Council to grant a privilege in
street to UW- Oshkosh to allow streetscape improvements within a pedestrian mall on
Elmwood Avenue, between Lincoln Avenue and Irving Avenue, to include, but not
limited to, emergency access, pedestrian /bike path, lighting, landscaping, and
sidewalks, per the attached; and
WHEREAS, Section 66.0425, Wis. Stats., provides for the granting of a privilege
in a right -of -way; and
WHEREAS, the Plan Commission has approved of this request with conditions.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of
Oshkosh that the proper City officials are hereby authorized and directed to grant UW-
Oshkosh a privilege in street to allow streetscape improvements within a pedestrian
mall on Elmwood Avenue, between Lincoln Avenue and Irving Avenue, to include, but
not limited to, emergency access, pedestrian /bike path, lighting, landscaping, and
sidewalks, per the attached, with the following conditions:
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 Avenue between
Elmwood Avenue and McKinley Street to provide for improved turning radius and
sidewalk and terrace.
3) Provide for an unobstructed 26 foot wide clear access for fire apparatus along
the fire lane except at entrances.
4) University executes a waiver of special assessment /development agreement to
install the necessary improvements.
5) City to grant final approval for all improvements within the pedestrian mall.
FEBRUARY 22, 2011 11 -93 RESOLUTION
CONTD
6) Removal of all improvements at University expense should the privilege be
revoked.
7) 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.
8) All appropriate permits be obtained prior to development of the pedestrian mall.
9) 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.
10) 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.
11) The petitioner /owner execute a hold harmless agreement with the City.
12) Any utilities placed be part of and documented with Digger's Hotline system.
FEBRUARY 22, 2011 11 -93 RESOLUTION
CONTD
6) Removal of all improvements at University expense should the privilege be
revoked.
7) 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.
8) All appropriate permits be obtained prior to development of the pedestrian mall.
9) 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.
10) 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.
11) The petitioner /owner execute a hold harmless agreement with the City.
12) Any utilities placed be part of and documented with Digger's Hotline system.
O..IHKOlH
ON THE WATER
TO: Honorable Mayor and Members of the Common Council
FROM: Darryn Burich o/lx
Director of Planning Services
DATE: February 17, 2011
RE: Approve Privilege in Street to UW- Oshkosh to Allow Improvements within a
Pedestrian Mall on Elmwood Avenue Between Lincoln Avenue and Irving Avenue
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.
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 2010 along with City officials to present the proposal to the public
with only one property owner that was in opposition to the plan. In December 2010 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.
ANALYSIS
When the University 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 alterations
of Algoma and High identified in the Campus Plan that a full street vacation may be premature and
thus the proposal for creation of a pedestrian mall which would allow the City to retain the rights to the
right -of -way and re -open the street should conditions warrant. This action would allow the University
some limited implementation of their plans for this area. With the installation of 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.
FISCAL IMPACT
None anticipated.
RECOMMENDATION
I'he Plan Commission approved of this request at its January 18, 2011 meeting.
Approved,
City Manager
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 TAKE FINAL ACTION ON CREATION OF A
PEDESTRIAN MALL AS WELL AS TAKE ACTION ON A PRIVILEGE IN
STREET REQUEST TO ALLOW STREETSCAPE IMPROVEMENTS IN
WITHIN THE PEDESTRIAN MALL
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 .Tune 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
ITEM — UWO ped mail; priv in street
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.
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
ITEM — UWD ped mail; priv in street
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 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.
ITEM — UWO ped mail; priv in street
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:
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.
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:
I ) 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 (ac tion: 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
ITEM — UWO ped mail; priv in street
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.
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. Thorns 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. Thorns 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. Thorns 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, 1 139 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.
ITEM — UWO ped mail; priv in 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.
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 Elnwood 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
ITEM — UWO ped mail; priv in street
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.
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.
ITEM — UWO ped mail; priv in street
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.
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. Thorns 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.
ITEM — IIWO ped mail; priv in street
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 /Palmeri /McHugh /Vajgrt. Nays - Propp.
Abstained- Fojtik.) (Mr. Fojtik is employed by the University)
PLAN COMMISSION MINUTES OF JANUARY 18, 20 (action: both
aoaroved 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. Thorns 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.
10
ITEM — UWO ped mail; priv in street
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. Thoms 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.
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.
I1
ITEM — UWO ped mail; priv in street
Mr. Thorns 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.
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
12
ITEM — UWO ped mail; priv in street
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.
Motion by Nollenberger to approve the designation oj'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 jollowing 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 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.
Seconded by Thorns.
ITEM — UWO ped mail; priv in street 13
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. Thorns 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.
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.
14
ITEM — UWO ped mail; priv in street
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 layover denied 2 -6 -1. (Ayes - Palmeri /Nollenberger. Nays -
Borsuk/Bowen /Thorns /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 - Palmeri. Abstained - Fojtik.
15
ITEM — UWO ped mail; priv in street
0 City of Oshkosh SUBMIT TO:
Dept. of Community Development
o� �►corH General Application 215 Church Ave., P.O. Box 1130
ON TME WATER Oshkosh, WI 54901
PHONE: (920) 236 -5059
"PLEASE TYPE OR PRINT USING BLACK INK*
APPLICANT INFORMATION
Petitioner
University of Wisconsin Oshkosh Campus, JoAnn Rife
Petitioner's Address: 8 Algoma Boulevard
Telephone #: (920 ) 424 -2438
ci Oshkosh
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
Fax: ( 920) 424 -0259
F ax: ( 920) 236 -5053
Other Contact # or Email:
Ownership Status (Please Check): ❑Individual ❑Trust ❑Partnership ❑Corporation
State: W Zip: 54903 -1130
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 UEST:
Access Control Variance
Easement
✓ Privilege in Street (identify) 70 0 block 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
Land Uses Surrounding Your Site: North
UW Oshkosh Campus Buildings and Residential Prop erties
South: UW Oshkosh Campus Bu
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
Date:
Date: Oct 18, 2010
For more information please visit the City's website at www.ci.oshkosh.wi.us/ Community_Development /Planning.htrn
Staff _�) Date Rec'dr A r14_ +0
City: Oshkosh
Date:
Zoning:
J(�t
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 5490!
(920) 424 -2006, FAX (920) 424 -0259
An Equal Opportunity/Affirmative Action Institution, www.uwosh.edu , ! 7
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
0
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.
Iq
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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DISCLAIMER
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 discrepancies are found, please contact the
City of Oshkosh.
Created by - dff
PEDESTRIAN MALL
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W LINCOLN AV TO
W IRVING AV
Scale: 1" = 200'
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City of Oshkosh
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Community Development
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DISCLAIMER
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 discrepancies are found, please contact the
City of Oshkosh.
Created by - dff
U
PEDESTRIAN MALL
ELMWOOD AV FROM
W LINCOLN AV TO
W IRVINGAV
Sc ale: 1" = 1000'
N OfHKOfH
ON THE WATER
City of Oshkosh
Department of
Community Development
12/17/10
1
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