HomeMy WebLinkAbout46. 12-215
APRIL 24, 2012 12-215 RESOLUTION
(CARRIED___7-0____ LOST _______ LAID OVER _______ WITHDRAWN _______)
PURPOSE: APPROVE WITZEL AVENUE LOCATION FOR CONSTRUCTION OF
NEW CENTRAL GARAGE (PLANNING COMMISSION RECOMMENDS
APPROVAL)
INITIATED BY: DEPARTMENT OF PUBLIC WORKS
WHEREAS, the existing City of Oshkosh Central Garage was constructed in the
1940’s with additions in 1964 and 1985 on the south side of Witzel Avenue between Ohio
Street and Idaho Street;
WHEREAS, because of space constraints at the Central Garage, the Sanitation
Division, as well as equipment / supply storage, salt sheds, and bulk storage are located at
various other properties throughout the City;
WHEREAS, the City retained Kueny Architects to perform a comprehensive space
analysis for the space necessary to consolidate and house existing operations and to allow
for future growth / expansion, and concluded that 14 acres was necessary to meet the
required space objectives;
WHEREAS, the City’s consultant evaluated two sites, the existing Witzel Avenue
Central Garage site and a site owned by the City in the Northwest Industrial Park south of
Fernau Avenue;
WHEREAS, the City’s consultant compared both sites using a number of criteria,
including Functionality Characteristics, Land Use, Property Characteristics, Budget Issues,
Physical Features, Sustainable Opportunities, Short Term Construction Issues, and
Other/Miscellaneous issues;
WHEREAS, the analysis of both sites resulted in similar scores, with each site having
strengths in different areas;
WHEREAS, after carefully reviewing and comparing the analysis of both sites, the
Department of Public Works is recommending approval of the Witzel Avenue site because of:
1) its proximity to the service area; 2) its proximity to the general public to be served by these
facilities; 3) the resulting central location for citizen disposal of brush, yard waste, and motor
oil; 4) the existing infrastructure at and around the site; 5) its proximity to other City and
governmental facilities; 6) more efficient operations for the Street and Sanitation Divisions; 7)
more efficient use of a common fueling station; and, 8) the ability to perform more convenient
APRIL 24, 2012 12-215 RESOLUTION
CONT'D
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of
Oshkosh that the new Central Garage Facility be located at the Witzel Avenue site and that
the Department of Public Works and City Administration is authorized to begin and take all
actions such as design, demolition, property acquisition, environmental remediation, planning,
construction and all other necessary tasks with a purpose of constructing a new Central
Garage at the Witzel Avenue site with the understanding that such further specific reviews
and approvals will be appropriately sought as necessary under the Wisconsin Statutes, the
City of Oshkosh Municipal Code and policies.
OfHKO.IH
ON THE WATER
TO: Honorable Mayor and Members of the Common Council
FROM: Darryn Burich (
Director of Planning Services /
DATE: April 19,2012
RE: Approve Witzel Avenue Site to Construct New Public Works Central Garage Complex(Plan
Commission recommends approval)
BACKGROUND
The Central Garage facility is currently located on approximately 12.3 acres of land along the south side of
Witzel Avenue between Ohio Street and Idaho Street and was constructed in the 1940's with building additions
in 1964 and 1985. The facility is not large enough to house the Sanitation Division and other equipment or
supplies necessitating the use of other facilities for these purposes. The Witzel Avenue site is located in a
mixed-use area with uses to the north, east, and west being a mixture of commercial and institutional uses and
light industrial uses to the south that borders the rear yard of residential uses. The Fernau Avenue site which is
also being considered for this use is a 36 acre property located adjacent to the Northwest Industrial Park on the
south side of Fernau Avenue with direct access to both Fernau Avenue and Vinland Street. The site is located in
a predominantly industrial area identified for expansion of the Northwest Industrial Park.
ANALYSIS
A comprehensive space analysis was performed by a consultant that indicates 14 acres of land is necessary to
house the existing operations and allow for future expansion. Both the Witzel Avenue and Fernau Avenue sites
were evaluated for the reconstruction of the Central Garage including functionality characteristics, land use,
property characteristics, budget issues, physical features, sustainability opportunities, short term construction
issues, and other miscellaneous issues. Both sites scored very similar with the largest advantage for the Fernau
site in budget issues with the existing location's largest advantages in functionality and property characteristics.
The Department of Public Works is recommending the Central Garage be rebuilt at its existing location with
additional adjacent properties needing to be acquired. A neighborhood meeting held in February with adjacent
property owners also supported the upgrade at the Witzel Avenue site. By remaining in this location,the
Central Garage remains near other municipal-type operations and allows for more efficient operations for both
City Departments and citizens utilizing the site for disposal of yard waste.
FISCAL IMPACT
No additional service costs are expected by remaining at the existing location at Witzel Avenue. Expansion of
the site onto adjacent privately owned properties will remove those properties from the tax rolls.
RECOMMENDATION
The Plan Commission approved of the Witzel Avenue site at its April 3, 2012 meeting.
Approved,
City Manager
ITEM: CENTRAL GARAGE LOCATION RECOMMENDATION
Plan Commission meeting of April 3, 2012
GENERAL INFORMATION
Petitioner: City of Oshkosh Department of Public Works
Owners: City of Oshkosh Department of Public Works
Action Requested:
The Department of Public Works is requesting a recommendation regarding the location of the
Central Garage relative to the two locations that it has previously presented to the Plan
Commission; Witzel Avenue or Fernau Avenue.
Applicable Ordinance Provisions:
N/A
Property Location and Type:
Witzel Avenue Site
The Central Garage facility is currently located on approximately 12.3 acres of land along the
south side of Witzel Avenue between Ohio Street and Idaho Street. The facility was originally
constructed in the 1940's and has had building additions in 1964 and 1985. The facility currently
is not large enough to house the Sanitation Division and other equipment or supplies. The
Sanitation Division is currently operating out of a facility at 508 W. 4th Avenue. In addition,
equipment/supplies are stored at the Oshkosh Senior Center and at salt sheds rented at the former
Winnebago County Highway Department facility on Osborn Avenue. An existing bulk storage
yard is also located on the north side of Fernau Avenue adjacent to the old Winnebago County
Landfill.
The property is located in a mixed-use area with the uses to the north, east, and west being a
mixture of commercial and institutional uses. The area to the south across Third Avenue is light
industrial that borders the rear yard of residential uses along 4th Avenue.
Witzel Avenue Subject Site
Existing Land Use Zoning
Institutional-Central Garage site M-2
Adjacent Land Use and Zoning
Existing Uses Zoning
North Institutional and Commercial M-2
South Light Industrial and Institutional M-2
East Commercial C-2PD
West Institutional (Parks Dept.) and residential C-2
Comprehensive Plan
Land Use Recommendation Land Use
10 Year Land Use Recommendation Public and Institutional
20 Year Land Use Recommendation Public and Institutional
Fernau Avenue Site
The Fernau Avenue site is approximately a 36 acre site located adjacent to the Northwest
Industrial Park. The site is located on the south side of Fernau Avenue and has direct access to
both Fernau Avenue and Vinland Street. The site is located in a predominantly industrial area and
is in a location identified for expansion of the Northwest Industrial Park.
Fernau Avenue Subject Site
Existing Land Use Zoning
Undeveloped M-3
Adjacent Land Use and Zoning
Existing Uses Zoning
North Industrial M-3
South Undeveloped (future industrial) M-3
M-1 and R-1, R-2 County
East Industrial and residential Zoning
West Manufacturing and Institutional (cemetery) M-3 and R-1
Comprehensive Plan
Land Use Recommendation Land Use
10 Year Land Use Recommendation Industrial
20 Year Land Use Recommendation Industrial
ANALYSIS
A comprehensive space analysis was performed by the City's consultant, Kueny Architects. The
analysis indicates that approximately 14 acres of land are needed to house the existing operations
and allow for future growth/expansion. Two sites were evaluated for the Central Garage
reconstruction, one at the existing location and one on city-owned land in the Northwest Industrial
Park south of Fernau Avenue.
The two sites were compared on several aspects. These include Functionality Characteristics,
Land Use, Property Characteristics, Budget Issues, Physical Features, Sustainability Opportunities,
Short Term Construction Issues, and Other/Miscellaneous Issues. Upon final evaluation, both sites
were scored very similar to each other by Department of Public Works staff and our architect. The
largest advantage for the Fernau site was in Budget Issues as this site has no contamination to deal
with and does not require phased construction. The score did not account for costs to remediate
the existing site for private or other public redevelopment. The existing location's largest
advantages are in Functionality Characteristics and Property Characteristics. These include such
items as proximity to service area, proximity to users (general public), and existing infrastructure
to serve the facility.
Item-Central Garage 2
The Department of Public Works is recommending the Central Garage be rebuilt at its existing
location. While the city acquired land in 2009 which was previously used by the Oshkosh Area
School District, additional adjacent properties will need to be acquired surrounding the site to meet
the space needs of this facility upgrade. These private sites are located on the north side of Third
Avenue and on Campbell Road. The existing development in these locations is older, warehouse-
style buildings. A public information meeting was held on February 16, 2012, to educate
adjoining neighbors at the Witzel Avenue site. The consensus of people at that meeting was
approval of an upgrade at Witzel Avenue.
By staying at Witzel Avenue, the Central Garage remains near other municipal-type operations,
which include the Parks Department, Transit Department (including Electric and Sign Divisions),
Police Department, Water Utility Operations, Wastewater Treatment Plant, Senior Centers,
Technical College campus, and UWO Maintenance Facilities. This central location allows for
more efficient operations for the Street& Sanitation Divisions of the Department of Public Works,
allows for more efficient use of the common fueling station located at the facility, and also allows
for convenient vehicle repairs required by various departments or divisions of the City. In addition,
rebuilding on this site provides the citizens of Oshkosh with a central location for disposal of
brush, yard waste, and motor oil.
Phased construction will be required to rebuild on the existing site. The proposed layout of the
new facility will allow for this phased construction upgrade.
RECOMMENDATION
The Department of Public Works is recommending that the existing site on Witzel Avenue be re-
utilized for the Central Garage location and that the Plan Commission support this
recommendation based on the above discussion which will be forwarded to the Common Council
for consideration.
The Plan Commission approved of the Witzel Avenue site for the location of the Central Garage.
The following is the Plan Commission's discussion on this item.
Mr. Bunch presented the item and stated that a workshop and neighborhood meeting had been held
regarding this matter and summarized the two sites being considered for the Central Garage. He
reviewed the land use and zoning classifications in the Witzel Avenue location and stated that the
use was consistent with the Comprehensive Plan. He further stated that the City would have to
acquire additional properties in the area and reviewed the conceptual site plan for the Witzel
Avenue site. He also reviewed the same aspects for the Fernau Avenue site which is surrounded
by future industrial lands. He commented that the Department of Public Works is recommending
the re-use of the current site.
Mr. Patek distributed copies of a summary of site ranking scores compiled from surveys completed
by Plan Commission members, Common Council members and City staff He discussed the
workshop held on the matter and noted that both the Common Council and staff had ranked the
Witzel Avenue site higher than the site on Fernau Avenue although the rankings were very close.
He also distributed and reviewed maps of designated truck routes using both sites which
demonstrated that the Fernau Avenue site was not as centrally located. He also distributed copies
Item-Central Garage 3
of a time and distance study for truck deployment from both sites for snow plowing purposes
which also demonstrated the extra time and mileage for the Fernau site as compared to the Witzel
site. He discussed the neighborhood meeting held regarding the matter and stated that the property
owners near the Witzel Avenue site held a consensus that the Central Garage should remain in the
current location. They felt it allowed for more efficient use. Mr. Patek also discussed the CNG
gas production from the Wastewater Treatment Plant and the biodigester which could potentially
be used for fueling the City's fleet when new trucks are purchased utilizing this fuel source. He
also discussed the environmental impacts on the Witzel Avenue site due to the contamination
issues which will have to be dealt with prior to redevelopment of the area and would be costly to
remediate. Architectural plans have not yet been developed and will be designed once a location is
selected. The City will work with the DNR(Wisconsin Department of Natural Resources) on
solutions to deal with the environmental issues and would minimize the costs as much as possible.
It would be less costly for the municipality to redevelop the site than any private entities.
Mr. Borsuk questioned what the life expectancy of the building would be and how many other
sites were considered.
Mr. Patek indicated that the life expectancy of the structure would be 50+ years and that the City
did not look into any other sites other than the two presented for consideration today. These sites
were selected as the property was already owned by the City and the Fernau site would have a
buffer around the land fill by constructing the Central Garage in this area. Bulk storage is already
utilized by the City at the Fernau site and combining the sites would be more efficient.
Mr. Borsuk commented that at the neighborhood meeting the possibility of the Wastewater
Treatment Plant future expansion could impact the Transit facilities.
Mr. Patek responded that the City needs to be cautious about what happens to property in this area
as a buffer is necessary around the Treatment Plant as DNR regulations may change in the future
and additional space may be required to address the City's growth or changes in technology. He
also discussed the discharge of the water from the Treatment Plant into the river.
Mr. Thorns asked to clarify that the City would be combining all five municipal uses onto one site.
Mr. Patek indicated that four uses would be combined on this site as the bulk storage would remain
on Fernau Avenue. This will make operations much more efficient for the city.
Mr. Thorns questioned if the city expands it could require additional space for vehicles on the site.
Mr. Patek responded that the equipment purchased is more efficient than in prior years and he did
not anticipate additional space being necessary for vehicle storage.
Mr. Thorns than questioned if the Witzel Avenue site could satisfy water detention use if not
utilized for the Central Garage and if the environmental issues were a concern.
Mr. Patek replied that contaminated land is not recommended for use for detention basins and the
DNR will require the issues to be addressed. He also stated that the site is not located in an area
conducive for storm water management.
Item-Central Garage 4
Ms. Lohry inquired if the growth pattern of the city was anticipated to be to the north.
Mr. Patek responded that the City's current growth pattern was to the west and to the south.
Mr. Thorns commented that considering this, why did the City not look at locations to the west.
Mr. Cummings stated that the existing location will cost millions to remediate the land and the
amount the City could sell it for was questionable.
Mr. Patek commented that it would be another redevelopment area like Marion Road and would
have to wait for development opportunities to utilize the site.
Mr. Borsuk felt that it did not make sense to utilize the Witzel Avenue site for the Central Garage
if the bulk storage was to remain on the Fernau site.
Mr. Patek further explained the city's growth to the west and south and the efficiency of utilizing a
central location for operations that did not require additional travel time and fuel costs.
Ms. Propp commented on the costs of the environmental cleanup of the Witzel Avenue site and
stated that she felt there was less need there for private redevelopment. She questioned if the City
would need to purchase sites on Third Avenue to possess enough area for the Central Garage
operations.
Mr. Patek responded affirmatively and stated that the relocation and acquisition process would
begin if the Witzel Avenue site was approved.
Mr. Borsuk questioned if any dispatch modeling had been completed.
Mr. Patek explained that the maps distributed support how a central location worked best for the
entire city.
Mr. Bowen inquired if trucks will still have to travel to the Fernau Avenue site for bulk storage or
other purposes.
Mr. Patek replied that the operations at the Fernau site were seasonal and depending on projects
performed, trucks would not be traveling to this site on a daily basis.
Ms. Lohry commented that garbage truck would be going to the Fernau Avenue site every day.
Mr. Patek stated that the garbage trucks travel to the landfill on County Y after pickups not to the
Fernau Avenue site.
Mark Rohloff, City Manager, added that for refuse collection it is not as much of an issue but for
the rest of the City's operations, they are rarely going to the north side of town.
Mr. Cummings questioned what was in the bulk storage area out by the Fernau Avenue site.
Item-Central Garage 5
Mr. Patek responded that concrete crushing was performed at the site as well as storage of fill
removed from a site that is eventually used at another location. These types of operations would
have a bad impact on neighboring properties within the city.
Mr. Borsuk commented that the City could have looked at other sites other than Witzel Avenue
and Fernau Avenue and questioned why the emphasis was being placed on the redevelopment site
on Witzel.
Mr. Rohloff replied that redevelopment opportunities were considered as the city currently has an
overage of areas available for redevelopment now such as properties on South Main Street, Oregon
Street and Marion Road as well as other areas. Commercial use for the Witzel site would
devaluate other city owned redevelopment sites whereas the Fernau Avenue site has current
potential for private development. Industrial property will be in high demand in the future.
Mr. Cummings stated that the Witzel Avenue site is centrally located and he felt that most
commercial uses want to be located near the Highway 41 corridor.
Mr. Thorns discussed developable land and he felt that any property located near the river is more
desirable. He voiced his concern with the Central Garage being located in this area and the
environmental issues which he felt the City was obligated to address.
Mr. Rohloff stated that the numbers are the guide and he wants to make the best decision possible
for the City. The property on Witzel is currently an unsightly area as is and it can be compatible
with the neighboring properties if developed appropriately. He further commented that
municipalities have more latitude with DNR regulations than private developers so the City could
do a more adequate job of remediating the site properly.
Mr. Thorns commented that aesthetics need to be addressed to fit into the neighborhood.
Mr. Rohloff stated that it may add some costs to make the site aesthetically pleasing but it was
possible.
Motion by Lohry to recommend the Witzel Avenue site for the Central Garage location.
Seconded by Nollenberger.
Mr. Borsuk stated that he would not support the request as he does not feel long term plans went
into this area. He was disappointed that the City only considered these two sites for this use.
Mr. Thorns commented that he would also not support this request as he did not feel that it was the
highest and best use of the land and there were other alternatives available. He does not want to
relocate people from their property if it is not necessary.
Ms. Propp stated that she would support this request as she felt it was a good planning process and
would be a well designed and planned Central Garage when complete. She further stated that she
did not think the property would be easily marketed for sale to a private entity.
Item-Central Garage 6
Mr. Bowen commented that a distinction needed to be made between the highest and best use and
he did not feel that the area was that desirable for development for private use. The plow routes
are more efficient at the Witzel Avenue site and he felt it was a well thought out plan.
Motion carried 6-2. (Ayes-Bowen/Fojtik/Cummings/Propp/Lohry/Nollenberger. Nays-
Borsuk/Thoms.)
Item-Central Garage 7
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DISCLAIMER POTENTIAL CENTRAL 4.1.11D
This map is neither a legally recorded map nor GARAGE LOCATION
a survey and it is not intended to be used as one. N u
This drawing is a compilation of records,data O�H KOlH
and information located in various city,county ON THE WATER
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the area shown and it is to be used for reference City of Oshkosh
purposes only. The City of Oshkosh is not re- Department of
sponsible for any inaccuracies herein contained.
If discrepencies are found,please contact the Community Development
City of Oshkosh.
Scale: 1” = 200
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DISCLAIMER POTENTIAL CENTRAL Q
This map is neither a legally recorded map nor GARAGE LOCATION N
a survey and it not intended to be used as one. N OJHKOJH
This drawing is a compilation of records,data
and information located in various city,county WI TZ E L AV SITE ON THE WATER
and state offices and other sources affecting
the area shown and it is to be used for reference City of Oshkosh
purposes only. The City of Oshkosh is not re-
sponsible Department for any inaccuracies herein contained. p
If discrepencies are found,please contact the Community Development
City of Oshkosh.
Scale: 1" = 1000'
Created by-dff 03/29/12
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DISCLAIMER POTENTIAL CENTRAL Q
This map is neither a legally recorded map nor t�T
a sury ey and it is not intended to 6e used as one. GARAGE LOCATION N
This drawing is a compilation of records,data O.f HKOf H
and information located in various city,county W I TZ E L AV SITE
ON-THE WA
and state offices and other sources affecting
the area shown and it is to be used for reference City of Oshkosh
purposes only. The City of Oshkosh is not re Department of
sponsihle for any inaccuracies herein contained.
If discrepencies are found,please contact the Community Development
City of Oshkosh.
scale: mm — 200'
Created by-dff 03/29/12
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DISCLAIMER POTENTIAL CENTRAL Q
This map is neither a legally recorded map nor
a survey and it is not intended to be used as one. GARAGE LOCATION N
This drawing is a compilation of records,data O.IHKO/H
and information located in various city,county F E R NA U AV SITE ON THE WATER
and state offices and other sources affecting
the area shown and it is to be used for reference City of Oshkosh
purposes only. The City of Oshkosh is not re- Department of
sponsible for any inaccuracies herein contained.
If discrepencies are found,please contact the Community Development
City of Oshkosh.
Scale: 1” = 400'
Created by-dff 03/29/12
9
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DISCLAIMER POTENTIAL CENTRAL
This map is neither a legally recorded map nor
GARAGE LOCATION
a survey and it is not intended to be used as one. N O✓ HKOXH
This drawing is a compilation of records,data
and information located in various city,county F E R NAU AV SITE ON THE WATER
and state offices and other sources affecting A the area shown and it is to be used for reference City of Oshkosh
purposes only. The City of Oshkosh is not re- De artment of
sponsible for any inaccuracies herein contained. p
If discrepencies are found,please contact the Community Development
City of Oshkosh.
Scale: 1 = 1000
Created by-dff 03/29/12
11
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DISCLAIMER POTENTIAL CENTRAL Q
This map is neither a legally recorded map nor GARAGE LO CAT I ON
a survey and it is not intended to be used as one. TT O���O��
This drawing is a compilation of records,data 1V
and information located in various city,county F E R NA U AV SITE ON n e wnt�
and state offices and other sources affecting
the area shown and it is to be used for reference City of Oshkosh
purposes only. The City of Oshkosh is not re- De artment of
sponsible for any inaccuracies herein contained. p
If discrepancies are found,please contact the Community Development
City of Oshkosh.
Created by-dff Scale: 1" = 400 03/29/12
11