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Home My WebLink About30261 / 79-190 1 �uly 19, 1979 # 19 PiJRpC�6E: APPRWE CONiT�CP WITfi R�I, FSTATE RESFARCFI CORPORATICN INI'i7AT�D BY: D�Pt'1F2iTIE:�lI' OF CQ9MU^TT'IY DEVESQ''MEh'I' RESOI�UTION BE IT RFSOLUID by the CaRron Council of the City of Qshkosh that the proper City officials are hereby authorized and directeci tr� enter intA an agreenent with Real Fs!:ate Research Cr�rporation for a doantowt'i study at a cost not to exceed $50,000.00. Money for this purpose is here'�y appropriated fr�n A�cx�unt L�. 321-814, Downta�rn Study-Coiccmiruty D�velo��nt Fund. -19- Sun�iITTED BY �. : 0 i��Ei•'i(>`i ;y ��17Ir� � � ,, _ To: From : I_1Rte: SL`SJECI': City of Oshkosh Real Estate Research Corporation July 13, 1979 Consultant �Vork Program CLanges � �� j, '� _ .�_ . _ _� , �I�'� `��' - _�i_ 1 �l I�7� '%I_�'.;i�l�t�t(il �•i- �:�,i �i�:� �i;rrr� r�:�,��.�.o,�: � 'fhe Sollowing additions have becn made to our proposed �vork program. � The Corporation will design and structure a consumer survey t.o be carried out with the ��.�istance of the Citv. e A formal meeting to Ue held at t.he cornpletion of PLase II will be added to our work program. • The Corporation will investigate the potential of designing a downtocvn bicycle system for Oshkosh. � � .. ".r, REAL ESTATE RESEARCH CORPORATION RERC hourly billing rates: Associate Analyst Analyst Senior Analyst Assistant Vice Vice President President/Principal Counselor $25 $35 �40 yJ� �65 REAL ESTATE RESEARCH CORPORATI��V' ;� � AGREEMENT BETIYEEN THE CITY AND THE REAL ESTATE RESEARCH CORPORATION AGREEbiENT T!ade this Seventy-nine. BETWEEN day of in the year Nineteen Hundred and The City of Oshkosh, Wisconsi_n, herei_nafter called the City and the Real Fstate Res�arch Corporalion, hereinafter ca.11ed the Corporation. It is the intent of the City to obtain irom the Corporation an anal}•- sis of the downtown conditions and a strategy which indicates trans- portation and redevelopment opportunities in the downtown. (Refer to attached proposal work program dated June 19`79 for further details.) The City and the Corporation agree as set forth below: I II III Services to be provided by the Corporation: a. As outlined in the Corporation's project proposal, (see attachment), the Corporation will prepare a written detailed analysis of the central business district, its market and traffic conditions, and a redevelopment strategy to implement downtown revi- talization. The final report will be completed six months from the execution of this contract. Services to be provided by the City: a. The City will carry out a consumer survey that is designed by the Corporation. Compensation to the Corporation: a. Total Compensation paid to the Corporation will be computed according to staff time and out-of-pocket expenses and shall not exceed Forty-five thousand dollars ($45,000). In witness whereof, the parties hereto have executed this agreement, the day and year first above written, City The City of Oshkosh, Wisconsin � y Manager Corporation Real Estate Research Corporation � Title REAL ESTATE RESEARCH CORPORATIn1' � C. Technical �tiork Pro�ram We have prepared a detailed work program which we believe meets the intent of the RFP. Our work program heavily emphasizes the determination of market and transportation/traffic real.ities, public and private sector participation i.n the redevelopment process, and the design of demonsti•ation projects as part of an implementation work program. Our work program is in keeping with Lhe objectives that have been identified by the City of Oshkosh. The project has Ueen broken down into Sour (4) phases with several tasks in each phase (as shown in the following diagram). The four phases are: Phase 1- Project Initiation. Requires initial coordinative rneetings with ti�e city staff and members of the consultant team; the determination of the type and extent of input that would be appropriate for involved local staff; determination of the timing and number of ineetings; review, analysis, and synthesis of previous studies; assembling of secondary market data; and gathering of existing traffic and parking data. Phase 2- Downtown Inventory. Nill provide a profile of the existing conditions as well as recent trends which have impacted the CBD. Potential information sources include community/business leaders, reports, and market and traffic assessments. Phase 3- Conceptual Central Area Plan. Will establish a framework for the development and definition of a variety of strategy approaches. Identification of opportunities and constraints will provide direction into the types of redevelopment strategies that are appropriate and economically feasible. Phase 4- Final Redevelopment Plan. Nill involve the detailing of an implementation strategy that will include not only a comprehensive work plan but also initial physical demonstration projects to initiate the plan. Specific recommendations concerning financ- ina, policies, and capital improven�nts will be made. REAL ESTATE RESEARCH CORPORATION � Phase 1 - Pro,ject Initiation This phase will be a cooperative effort of Real Estate Research Corporation (RERC), and Wilbur Smith & Associates (R'SA) with the City staff to detail a joint work program, and establish a coordinated effort among all parties —the coneultants and the appropriate staif personnel--to initiatc a wurk program along lines that will assure the d�sired output. A. The consultant team will meet with k�y officials to establish a progrum to coordinate the activities of the te:un and participating city a,r�,encies regarding the proposed assignment over the study period. A schedule of events and a detailed staffing pattern for the entire study will be presented; decisions will be made concerning working memos and formal meetings. B. R'e will examine and analyze existing materials and studies regarding the City's economic and comprehen- sive planning, transportation and capital improvements plans, community development programming, both citywide and in the downtown. Our staff will review with the city the improvements that have been implemented as a result of the Oshkosh Central Area Plan. We will also collect the physical planning components prepared by the city and identify current data availability regarding retailing and economics of the CBD. H'SA will assess current objectives and policies affecting traffic, transit, circulation and parking within the CBD and on principal transportation corri- dors emanating from the downtown. In addition, v�e will record significant events, decisions and issues relative to the CBD; specifically addressing those described in the RFP. C. RERC will gather secondary data on the socio-economic conditions of the downtown and regional market. Data sources could include the U.S. Bureau of the Census, HUD grant application data, HUD market surveys, the Department of Commerce Census of Retail Trade, State/Regional Planning Agencies, etc. These sources will be used for market analysis of the second phase. D. The consultant team a�ill make a field inspection of the downtown and its surrounding environs. We will inven- tory the economic and community services and facilities, transportation facilities and traffic patterns, and physical characteristics of the CBD. The staff will collect existing traffic and parking data from the city and/or Wisconsin Department of Transportation. REAL ESTATE RESEARCH CORPORATIC�N , -,10- The consultant team will review commuter or programmed transportation projects in the Oshkosh area, specifi- cally within tl�e CBS and major corridors affecting the CBD. REAL ESTATE RESEARCH CORPflRATlO!� -11- Phase 2 - Downtown Inventory This phase requires market, physical and transportation assessments of the downtown specifically for the City of Oskhosh and a general understanding of the trends within the region. The information e�ill be the basis for the redecelopment potential of ti�e downtown. Data inputs to this analpsis u�ill come in part from the materials gathered and reviewed in Phase 1(previous studies and surveys, census and other secondary data) as well as field inventories and intervi_e�,s of key area actors con- ducted Uy the consultants. 'Phe iiitent of such analysis is two-fold. The first is to identify the past trends which have created the current characteristics of the area. The second is to determine the current physical conditions--land use, zoning, utilities and infrastructure, or transportation-- a_nd how they will affect future development and strategies. This type of impact analysis will give direction for the formulation of future redevelopment programs. Finally, the findings generated in Phase 2 will reveal certain key issues relating to problems and potentials of the Oshkosh downtown. This analysis will enable the consul- tant to define in later phases specific actions to overcome apparent problems and/or capitalize upon determined poten- tials. The findings will be written up in a working memo and sent to the project's participants. A. In order to supplement the data from existing sources and field surveys, we would prepare an open-ended interview for key public officials as well as citizen/ business leaders and developers active in the Oshkosh area. The intent is to elicit such information as the nature of the local economic and development climate, the nature of downtown's physical environment, perceived past and future trends, the future potential oi the area, necessary improvements in city services and facilities to bring about growth, the probable impacts created by transportation or mall projects, and incen- tives that will be necessary to effect either new development or rehabilitation/revitalization. Interviews will be both structured and open-ended, permitting a good cross-tabulation of data elements, yet allowing the interviewee to discuss elements which had not been anticipated. Interviews will be conducted by senior staff familiar with interview techniques and study requirements. REAL ESTATE RESEARCH CORPORATION -12- We have found these interviews regarding local percep- tions to be as important as actual hard data. In most cities, many of the major decisions made by the public sector o£ficials as well as private sector business people are based on their ieelings or beliefs about what is occurring in ;an area. Zn order for the constil- tants to deal with thes2 perceptions, we must iirst understand what they are. B. A sound understanding of Oshkosh's past economic trends and present conditions, in relation to the downtown, the city itseli, �_nd the regio❑ as a�,�hole, is neces- sary to prepare and tai_lur an effectice redeveloi�ment plan and strategy for the CBD. Key components are a retail analysis and economic base study. These will indicate the internal and external iorces that have affected local dynamics. Use of this data within the conLext of central city redevelopment and revi.taliza- tion will give RERC an indication of the opportunities and constraints of the local market. The following are major elements of this analysis. • Retail Market - trade areas, competition, downtown alignment, spending potential, capture rates • Population Characteristics - changes, components, distribution • Housing Characteristics - composition, tenure, values, condition, trends • Income - distribution, median, personal income • Economic Base - industrial vs. service activity, growth � Real Estate r9arkets - office, iinancial, recrea- tion/entertainment, housing, etc. C. To further supplement information that was collected through review of existing documents as well as interviews with City staff, Wilbur Smith and Associates will prepare an inventory and physical overview of the central area. This physical analysis will give the consultant team an indication of existing land use, the location and extent of community facilities, private market development, rehab and historic preservation opportunities, etc. REAL ESTATE RESEARCH CORPORATION -13- The following are elements in the preparation of the physical assessment: • Land Use - existing land use data along with field checks to determine existing land use of the CBD. The accepted plan will be reviewed to form a common point on tti�hich to base development and implementatioi� plans. s Zoning - the existing zoning ordinance will be studied ior patteins in the CI3D. • Public Utilities - major service lines will be identified and assessments made of the future capacity. • Cormniinity Services and Facilities - existing, proposed and potential facilities will be identi- fied. • Environmental - existing soil, floodplain, histori- cal, etc., which could be a deterrent to redevelop- ment will be identified. • Urban Form and Structure - the extent of deterio- ration, quality of development, overall visual characteristics of the CBD, existing development and land use patterns and future development potential will be identified. D. Existing traffic conditions within the CBD will be determined through a comprehensive data survey and inventory. The specific data to be obtained from the City of Oshkosh and the Wisconsin Department of Trans- portation would include critical roadway and right-oi- way dimensions, vehicular capacity at key intersections, and significant traffic control data (i.e., inter- connections, progressive timing, special phases, etc.). Where sufficient data is not available in the files of the City or State traffic departments, traffic counting programs and surveys will be undertaken to ensure a comprehensive data base of daily traffic flou�s, hourly variations, and turning movements. Data relative to transit service levels, transit route structure, and inter-route transfer points will be obtained from the Oshkosh Transit System. Particular attention will be paid to tl�e structure of transit routes within the CBD, and possible constraints on efficient transit operations imposed by the existing traffic flow concept and traffic congestion. Material REAL ESTATE RESEARCH CORPORATION _lq relative to short- and ]ong-range transit development programs will be obtained. Areas with major pedesLrian activity, such as D9ain Street and the Plaza Shopping Area, transit stops and link:iges between parking and employment centers will be noted. Previous parking study information will be updated to reflect current conditions. 'Phis will include identi- fication of the location .�.nd supply of puhlic and pri��ate facilities. E. The consultant team will use the socio-economic data and the physical assessment in preparing an area profile, which will give the City staff an understand- ing of the CSD conditions. RERC will critically examine trends and conditions, to deterroine 1) the general strengths and weakness of the downtown and the area surrounding it and 2) those local or regional constraints which could impair the success of redevelop- ment strategies. The latter will be addressed with regard to their correctability. � By using the information generated by the description oi the area's profile as well as in-house data on recent market and real estate activities and trends, P.ERC will prepare an overview market assessment of the potential demand for new types of development. The conclusions will be based on growth trends projected for the State of Wisconsin and for the Oshkosh- Appelton metropolitan area, as well as expect.ed capture rates for the central city of Oshkosh. Kecent absorption rates will be weighed as we consider the following: residential retail commercial office hotel-entertainment public facilities Conclusions will be prepared in a working memo to be combined with the area profile and sent to all partic- ipants involved in the project. REAL ESTATE RESEARCH CORPORATION -15- F. Wilbur Smith and Associates will use the inventory and a�alysis thereof to determine the nature and extent of constraints and opportunities for CBD circulation improvements. Investigations will continue to be carried out to insure that the development and evalua- tion of alternatives is compatible �cith the goals and oUjectives for the CBD. Possible constraints would incJ_ude: e Physical li_mitations, available rights-of-way, critical gradients, and clearance over tl�e Fox River; • Cost implications; e Sensitive areas, e.g., historic sites, open spaces, aesthetic resources; • Community values; • Status of active or imminent development projects. Corresponding potential opportunities would include: • Decreased auto-pedestrian conflicts; • Enhancement of the CBD environment by emphasis on pedestrian and transit-oriented strategies; • Improved linkages between parking sites and activity centers; • Improved circulation within and accessibility to the CBD; • Design integration with proposed concepts; • The provision of a suitable transportation frame- work which can accommodate long-term growth in CBD employment, retail activity, housing, and community services. The evaluation and conclusion will be prepared in a working paper identifying the transportation deficien- cies and needs based on land use confi,�urations for the CBD. REAL ESTATE RESEARCH CORPORATION -16- Phase 3- Concentual Central Area Pla Design of a successful redevelopment program for the downtow❑ Oshkosh area will be based on a number of variables. The project will certainly take seceral years bet�ti�een the time the first new developr�ent begins and the time the area's plan has been essentially coinpleied. For this reason, a phased approach will be in part Uased on the development opportunities and constraints identified in this phase. (Changing future conditions are likely to require modifica- tions in the process over ti_me.) A. At this point RrRC and '��SA will e��alt�ate the conclusions that have been drawn from previous activities: inter- views, market and physical assessment, and transporta- tion/traffic analysis. The team will identify redevelop- ment opportunities and constrai_nts in do�i�ntown Oshkosh and begin to define the areas �.�i�ere specific projects would be appropriate. LVe will develop alternative concepts, including a potential mall, which could accommodate specific projects. A series of reasonable alternative circulation and access concepts corresponding to the land use concepts will be developed taking into account the cens±-raints and opportunities, the issues outlined in the RFP, and other issues which surfaced during the course of the study. In cooperation with the city staff, this initial list will be subjected to a cursory screening process. The concepts displaying reasonable merit will be evaluated against a series of criteria to include cost and service elements, and the extent to which the CBD goals and objectives are satisfied. B. From the interviews with both government and community leaders, as well as previously prepared documents, RERC will compile already identified goals and objec- tives. If necessary we will work with the city staff to update or revise goals. C. The team will p:epare an interim report which will incorporate the key findings of the previous tasks and memos: the area profile, market and physical assess- ment, traffic/transportation analysis, and goals/ objectives identification. Initial recommendations will be set out in this document: the type of physical development or rehabilitation projects that could be supported by the downtown Oshkosh market, the location of these projects and their relationship to other land uses in the CBD, and transportation plans. These will REAL ESTATE RESEARCH CORPORATIOt� -17- include our conclusions re�arding the feasible land u�e configuration and transportation plan. If a mall is feasible, the conclusions will address the issues relating to it, particularly transportation. These recomrnendations will be presented in a Sormal work session with the involved city staff. Specific items may require i�put Srom the staff to further refine tl�em. D. Vrilbur Smith and Associates will prepare a preliminary land use plan that wi71 i_ndicate the extent of the do�cntoian redevelopment area. Relation of the exist.ing and proposed transpuz�tation facilities will be prime consideration. E. A number of existing conditions and characteristics in Oshkosh will affect the t5-pe and scale of redevelopment activities that can be implr��ented in the CBD. R'e will look at the following: • The capacity and skill of the local staff to manage and implement both demonstration projects and capital improvements programs will in part dictate what can realistically be done in the downtown. • We strongly believe that the financing o£ develop- ment efforts in the study area will have to be a joint effort of the public and private sectors. The limited department and federal program funds of the public sector must be used as incentives to create the greatest leverage of private capital. Our staff will analyze the financial resources of the public sector--as they currently exist and with the potential of outside funding. Where city financial resources are not adeqUate to support � potential activities, we will review and suggest available public programs and incentives which could be used to strengthen the marketing efforts. Consideration will be given to: UMTA Urban Development Action Grants Community Development Block Grants SBA programs EDA programs tax increment financing industrial revenue bonds special taxing districts REAL ESTATE RESEARCH CORPORATip!�' -18- Our extensive public agency experience allows us to show Oshkosh hou� to best supplement public resources, coordinate Nith other programs, and provide incentives to attract private investment in order to achieve the maximum results. • Our past experience indicates that the i�np]ementa- tion of a de��e]opmcnt strategy is to a great extent predicated on the extent of interest and commitment of the private sector. For example, for resid�ntial or retail rehabilitation to occur, the residcnts and bus>>,e�s c�;,n��rs must be willing to assume (low-interest) loans to finance the effort; in the CBD local brokers must be committed to marketing the land; firms must be willing to establish a downtown location; developers must be willing to take on certain risks to Uuild; and finally the local banking institutions mus-t commit funds for local (or federal) leveraged programs. Based on our previous interviews, we will assess this potential for private commitment. • Our staffs will identify the legal tools that could be used in implementing a downtown redevelopment program, as well as relevant pending legislation (if any). We will identify potential legal problems which could be encountered. • To meet the needs and requirements of new develop- ment under the chosen development alternatives, WSA will determine what (if any) changes will be necessary to improve or eapand existing facilities and infrastructure. This could include sanitary and storm sewers, water lines, streets, and utilities. Based on previously determined goals, objectives, and priorities as well as projected market demand and absorption capacities, RERC will outline possible phasing considerations for various alter- natives. (This aspect will ultimately be a key facet of a successful redevelopment strategy.) F. With this background we will identify alternative strategies that would be appropriate for the conditions and market dynaanics in the downtown. �Ve bel�eve such a broad strategy design should be comprehensive in scope, but with sufficient detail for implementation REAL ESTATE RESEARCH CORPORATION -19- and in tune with the market (i.e., a pragmatic and realistic approach that is workable and has a high potential for success.) Otir approaches would be tailored to the economic, physical and social needs of an area. RBRC will identify for the city some of the more eifective �nd realistic spproaches that could be taken: • neighborhood preservation s innovative reuse o cornmercial revitalization e mall developroent a new projects • historic preservation !� REAL ESTATE RESEARCH CORPORATION -20- Phase A- Final Redevelopment Plan This last phase details the elernents necessary to implement a downto��n redevelopment plan. R'e will work with the City staff to identify speci?ic phy�ical der:.onstration projects that will achieve visible results. A�. The consultant team will outline st.eps that may be necessary to physically prepare the designated rede- velopment area for new development, rehab or historic preservation. Elements could include the follo�ti�i_ng: o Relocation of existii�g busine�ses or housel�olds; • Acquisition, rehabilitation, or demolition of properties within the project area; • Historical district application/designation; s Street or alley closings, or utility reloca- tion required for site assembly; • Upgrading of on-site utilities; ' • Improvements or modification of off-site street system, or off-site utilities. B. Financial packages will be composed of public funding used as seed money, but the City's fiscal constraints necessitate heavy involvement of private sector invest- ments in any project for development or redevelopment in the downtown. Initially, we will begin to review and assess the available public financing programs and approaches which could strengthen the community. We will work with the rirst National Bank of Chicago, our financial advisor, as we begin work on this task. Consideration will be given to the following as well as others: • Urban Redevelopment Corporation Law • Value Capture • Special Assessment District • Relocation Assistance • Rehab Loans and Grants • SBA and Other Economic Development Programs REAL ESTATE RESEARCH CORPORATION -21- C. For the alternative strategies outlined earlier, RERC will define the public and private sector roles for the duration of the preliminary projects and over long term. We will establish the public role in terms of tools and resources which are available to it: • staff resourres - to supplement the private sector and provide technical assistance; • legal tools - can be used as "carrots or sticks"; o iiscal�i�nanci_al tools - to ��rovide �nce:��tices; s marketing of the redevelopment area; e remedial programs to attract new development and encourage revitalization: housing, transportation, cor,ununity services and facilities. In defining this role, we will examine present and proposed legislation as well as those powers and pro- grams which can be legally used to enhance the advan- tage of the project by removing real'or perceived barriers to development. D. We will also indicate the role of the private sector for the strategy alternatives. This could include a variety of actions: • providing financing sources; • establishing local development corporations; • rehabilitating existing structures; • creating a positive business and investment climate; • marketing of developable land; • developing new facilities. 1Ne will outline methods of better structuring the public/ private sector marketing and development relationship. E. In the downtowi: where some areas have remained undeveloped by the private sector or need rehabilitation, local busi- ness people and residents may be receptive to a redevelop- ment program. But the private sector may require incen- tives: REAL ESTATE RESEARCH CORPORATION 0 _2?_ • loan guarantees or grants • low-interest loans for construction/mortgage/rel�ab • land write-down o industrial revenue bonds s tax incentices e capital improvements o permit processing s land assembly and write-downs • federal programs Public funds can be used as inceirtices and to leverage private monies. We will formulate a variety of financing procedures and types of financial packaging which would involve private funds and local initiative. F. To implement the redevelopment plan, we will outline procedures necessary to manage the long-term project as well as the structure of an organizational vehicle. In addition, we will identify the powers necessary to carry out the programs. G. To guide implementation of the redevelopment plan, we will review existing codes, ordinances and programs and suggest changes that should occur if the plan is to be realized. These could include • housing and building codes • zoning ordinance • permit processing e relocation and acquisition procedures • methods for assembling parcels of land as a package for redevelopment • incentive packages (i.e., taxing district, tax abatement, etc.) • public and private sector cooperation for redevelopment • capital improvements e bond indebtedness REAL ESTATE RESEARCH CORPORATION -23- H. �SilUur Smith and Associates will prepare a capital improvements program that can be used as a guide for public investment for the reoevelopment plan. The program would include: • Estimated cost for propo:;ed public imin�ovements s Schedule of public im�rovements • Possible methods of financing These in;provemrnts will be coordinated and programmed to the extent possible, with the schedule for pri�•ate development and revitalization. I. A final document will be prepared. The following will be included: • An executive surrunary for public dissemination • Fhysical plans • Implementation tools . • Policy recommendations • A step-by-step plan to carry out specific demon- stration projects indicating public or private responsibility for each task J. Presentation of this final docur�ent will be made according to specifications of the involved City staff. REAL ESTATE RESEARCH CORPORATION r rn � � !-\ �c , U �. � N > O � � a ro • o v�' N � C,' U� 0 � � � 3 � o �u o � N 3 N O R', q � N N O z N J� N a °' o � ,a 6 ¢ O ,d E � .� s� � �' o `� � � � O � __ . _ ' .. _ .._ . .... i � . . _.� _ �.....�._. _ _....._ _.�. i ; . �_� _�-�: _::._ ....... 1 � .! ; ... , � - � �__�,..7 r � '",` ti rn �" k � F. N � �U a `? � � � ,i �j U