HomeMy WebLinkAboutEnvisioning_North_Jackson_Draft_7_15_20201
E N V I S I O N I N G N O R T H J A C K S O N
D R A F T 7.15 . 2 0
DE VELOPED WITH THE CIT Y OF OSHKOSH BY RDG PL ANNING & DE SIGN
ACKNOWLEDGEMENTS
City of Oshkosh
Mayor
Lori Palmeri
Deputy Mayor
Jake Krause
Common Council
Debra L. Allison-Aasby
Matt Mugerauer
Bob Poeschl
Michael Ford
Lynnsey Erickson
Planning Commission
Kathleen Propp, Chair
John Hinz, Vice-Chair
Mamadou Coulibaly
Margy Davey
Justin Mitchell
Derek Groth
John Kiefer
Thomas Perry
Michael Ford
City Manager
Mark Rohloff
Project Staff
Mark Lyons
Alexa Naudziunas
Justin Gierach
Jim Collins
Allen Davis
Consultant Team
RDG Planning & Design
Martin H. Shukert, FAICP
Charlie Cowell, AICP
Ben Iwen
3
CONTENTS
1/EXISTING CONDITIONS/COMMUNITY PREFERENCES 7
2/MARKETS FOR NORTH JACKSON 17
3/CORRIDOR URBANISM AND NORTH JACKSON 37
4/THE FRAMEWORK PLAN 47
5/IMPLEMENTING THE PLAN 73
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
ENVISIONING NORTH JACKSON
In many ways, American cities are defined by their
streets and roads. We have always placed a high
value on mobility and movement, and development
patterns have typically followed the framework of
transportation facilities – on a macro-scale, water-
ways, emigrant trails, freighter roads, railroads, and
highways that led people westward and eventually
linked communities together; and on a micro-scale,
paths, transit lines, roadways, and streets that
carried regional travelers through and distributed
residents around their cities and towns. These city
and country corridors became our arteries of travel
and commerce, and major development - commer-
cial, industrial, and residential – followed.
Jackson Street has played that role in Oshkosh,
both north of the river and south as the corridor
becomes Oregon Street. From Church to Murdock
Avenue, it is the central corridor of an historic dis-
trict, and its character is the subject of a companion
study by Ayres and Associates, the Jackson Street
Multimodal Traffic Safety and Quality of Life Study.
This plan considers the future of the next segment
of this important corridor, from Murdock to Inter-
state 41, and presents an environment very differ-
ent from the historic neighborhood to the south.
The southern part of this study area includes a
largely built-up, auto-oriented commercial corridor,
surrounded by largely single-family neighbor-
hoods, characteristic of the second half of the 20th
Century. But beyond this sector is an unusual mix
of urban residential, major industry, extensive open
land, major public facilities including a signature
park, a correctional center, landfill, and fairgrounds/
event center, and a largely undeveloped freeway
interchange that has the potential to become a
major city entrance.
This report is designed to provide a realistic, mar-
ket-based development program for North Jack-
son. Its recommendations and directions address
two general and highly inter-related spheres:
• The public environment, considering the function,
appearance, and quality of the street itself.
• The private/land use environment, providing a
program of catalytic projects that can both address
specific land use issues and provide a foundation for
self-sustaining and positive development.
This document is organized into five chapters:
Chapter One, Existing Conditions/Community
Preferences summarizes key existing factors in-
cluding land use, zoning, and transportation. It also
includes the results of a visual listening survey that
helped participants identify their preferences for
possible improvements to the street environment.
Chapter Two, Markets for North Jackson, includes
a detailed demographic and economic analysis of
the Oshkosh market as it relates to North Jackson,
and projects demand for housing and commercial
development, assuming a return to relatively nor-
mal market conditions after the Covid crisis passes.
Chapter Three, Corridor Urbanism and North
Jackson presents principles developed by RDG for
rethinking urban corridors and applies these princi-
ples to the context of North Jackson.
Chapter Four, Framework Plan provides an overall
land use program for the corridor and then goes
into extensive, illustrated detail for land use and
transportation concepts for each of four logical
character and development segments along the
corridor: the Existing Corridor Enhancement Dis-
trict from Murdock to Packer Avenues; Mid-Jackson
from Packer to Snell Road; North Park from Snell
to Road Y Roads; and the Interchange District from
Road Y to I-41.
Chapter Five, Implementation, provides three de-
velopment phases to guide policy and investment
in the public realm to help catalyze the desirable
growth of the corridor in ways that capitalize on its
assets.
A fundamental and demonstrated fact of sound
urban development strategies is the ability of ef-
fective and appropriate public realm investments to
generate a positive private market response; and to
place public and private policy and investment into
a coherent framework that builds connection and
community. We are confident that it will also hold
true along North Jackson Street in Oshkosh.
7
Specific information about the use and key elements of a corridor are
fundamental to analysis and development of solutions. This chapter provides a
visual presentation of vital information addressing land use, zoning, and access
factors. It also include the results of the community engagement process, most
notably a visual listening survey.
1/ EXISTING CONDITIONS/ COMMUNITY PREFERENCES
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
EXISTING LAND USE: MURDOCK TO SNELL
- Jackson from Murdock to Packer displays the most urban
pattern of development – automobile-oriented commercial
including the Fairacres Shopping Center, smaller strip buildings,
and free-standing retail and services surrounded by urban,
largely single-family neighborhoods.
- Within this overall suburban character, some areas of higher
density urban residential are present, including Fairacres
Townhomes, the recent Jackson Square apartments, and older
apartment groups like La Rochelle. Multifamily development is
typically in two and three-story buildings.
- This segment also includes significant public and civic facilities,
including Oaklawn Elementary and North High Schools and
stormwater management projects.
- North of Packer, development is more diffuse and character
changes substantially. Industrial uses dominate between Jackson
and Main and along the Canadian National rail spur. Commercial
development along Jackson on the east side is somewhat rural in
character and scale.
- The west side of Jackson west to Vinland has pockets of
commercial and some single-family higher density urban
residential development but a substantial land area is vacant
or otherwise open. Urban scale development picks up farther
to the north, toward the Snell Road intersection. Most of the
undeveloped area is outside of the city limits.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
EXISTING LAND USE: SNELL TO I-41
- The north stretch of the study corridor is dominated by public
use, including the Oshkosh Correctional Institution (OSCI),
Winnebago County Park, the County Landfill, Law Enforcement
Center, and Fairgrounds.
- Urban residential development in both single-family and multi-
family configurations predominates on the east side of Jackson
between the main street and the County Park. Urban residential
in subdivision lots extends north of Snell to Norton Avenue
between Jackson and the OSCI land.
- Private lands north of Road Y are largely open and represent a
significant future development opportunity.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
FUTURE LAND USE/TRANSPORTATION:
2018 COMPREHENSIVE PLAN
- The city’s 2018 Comprehensive Plan generally
recognizes existing land use patterns in built-up areas.
- Most of the open land in the mid-Jackson area along
and north of the CN spur is designated for “mixed
use.” The plan’s description of this category provides
for “a variety of uses such as retail, office, residential,
and institutional within a single development or within
close proximity to one another. Retail and office uses
may stand alone or may be on the ground floor with
residential or office uses on upper floors. Residential
densities should be medium to high.”
- The plan identifies most of the land immediately
adjacent to Jackson south of Packer as general
commercial. The largest proposed commercial area is at
the northeast quadrant of the Road Y intersection.
- The area around the I-41 interchange is proposed for
mixed use.
- Higher order streets in the study area includeJackson
and Murdock west of Jackson as principal arterials; Snell
and Murdock east of Jackson as minor arterials; and
Main, Fernau, Smith west , and Packer east as urban
collectors. The only future street identified is Fernau
between Jackson and Vinland.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Most of the study area’s existing single-family areas
are zoned SR-3 or SR-5, requiring 10,000 square foot
and 7,200 square foot lots respectively. Both are
relatively low-density districts. However provisions exist
in the SR-9 district to permit small-lot single-family
development, more consistent with contemporary
“attainable” densities.
- The existing or potential commercial parts of the
corridor are located in SMU (Suburban Mixed Use)
districts, appropriate for auto-oriented commercial
development.
- Significant areas, including undeveloped areas,
are currently zoned for various forms of multi-family
development.
- Most industrial development is permissively zoned in
the HI Heavy Industrial district.
- Some potential development areas are outside of the
city limits and fall under county zoning categories.
ENVISIONING NORTH JACKSON
12
ENVISIONING NORTH JACKSON
COMMUNITY PREFERENCES
The process of developing the Jackson Street Multimodal Traffic Safety and Quality
of Life Study and this document, Envisioning North Jackson, included a substantial
public engagement component that included stakeholder group meetings and a public
listening session on December 11, 2019 and a second major public event to review
alternatives and options for the modification of Jackson Street between Church and
Murdock and land use and development between Murdock and I-41.
Discussion at public meetings largely focused on the design of the street south of
Murdock. But of particular importance to this plan was its visual listening survey
administered from November 2019 through April 2020. The survey asked respondents
to rank a series of images for different types of street environments, land uses, and
aesthetic features. Respondents were asked to identify whether the image matched
their vision for the Jackson Street Corridor north of Murdock as “Definitely,” “A Little,”
or “No Thanks.” Sixty-nine people responded to the survey.
The following images are the responses from the survey. Each is ranked by a weighted
point scale where a higher score points to a more desirable vision for the future.
Scores were calculated as follows:
Definitely (D) = Number of responses X 3
Somewhat (S) = Number of Responses x 1
No (N) = Number of responses x -1
Score = D+S+N (N being a negative score)
Four categories organize the results:
• Street Environment
• Active Transportation (Walking and Bicycling)
• Gateway Character
• Development Character
The preferences displayed in the survey helped determine recommendations and
possible priorities for future development and enhancements in the study area.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
RESPONDENT’S AGE
Over 60
45-59
35-44
25-34
18-24
Under 18
20%40%0%
Percent of Respondents
STREET ENVIRONMENT - HIGHEST TO LOWEST RATED
Sidewalks with grass buffer from the street and
parking; some updated light fixtures.
Sidewalks with grass buffer from the street; landscaping
and wall buffer from parking; updated light fixtures.
Trail width sidewalks; wide grass/tree buffer from
the street; landscaping/tree buffer from parking;
Community banners
No sidewalks; updated light fixtures; landscaped
parkway
45
8190
-26
Respondents indicate a preference for sidewalks along Jackson Street. Distance buffers
from the street and landscaped buffers between adjacent land uses are desirable.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
DOES THIS MATCH YOUR VISION FOR THE JACKSON STREET CORRIDOR NORTH OF MURDOCK?
ACTIVE TRANSPORTATION ENVIRONMENT - HIGHEST TO LOWEST RATED
Trail width sidewalks; updated light
fixtures; landscaping/tree buffer from
the street and buildings; parking in the
rear/side
Designated bike lane along the curb;
colored crosswalks; grass/tree buffer
from sidewalks; street median
Colored and varied material crosswalks
Colored crosswalks; pedestrian refuge
median; pedestrian signalization
GATEWAY CHARACTER - HIGHEST TO LOWEST RATED
Entryway or community signage Entryway or community signage
Entryway or community icon Entryway or community icon
99
79 68
119 88 33
20 -14
Respondents indicate a preference for wide sidewalks that are
buffered from the street. Pedestrian safety is the highest priority.
Respondents indicate a preference for subdued gateway features.
Large and artistic icon features are not seen as desirable by
respondents for the Jackson Street Corridor.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
DOES THIS MATCH YOUR VISION FOR THE JACKSON STREET CORRIDOR NORTH OF MURDOCK?
DEVELOPMENT CHARACTER - HIGHEST TO LOWEST RATED
Single-family neighborhoods Townhome and row home development
Townhome and row home development
Multi-family
Multi-family
Multi-family
Low scale commercial Vertical mixed-use – multiple uses in the
same building
Horizontal mixed-use – multiple uses on
the same property/development
Office/business park
73 31
27
14
78 57
192023
-13 Respondents indicate a preference lower intensity land uses, although
higher intensities may be desirable if mixing uses in the same building.
17
A successful corridor concept must take markets into account and propose changes and
concepts that are consistent with economic potential and reality.We are in a period where
economics, consumer preferences, and behaviors are producing dramatic changes in retail
markets and demand for space. Transportation changes also have a significant impact in project
design, parking requirements, and community access. This chapter provides a market analysis
completed to inform the design, transportation, and policy recommendations of this plan for the
Noth Jackson study area.
2/MARKETS FOR JACKSON
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
THE OSHKOSH MARKET
EXECUTIVE SUMMARY
Strengths and Opportunities. The Jackson Street
corridor provides possibilities for new development,
supported by the amount of vacant land and
recent successful residential developments.
• Many rental options appear to focus on households earning between $25,000 and
$49,999 per year. On the other hand, households earning more than $75,000 per
year appear to be under-served by the housing market, an opportunity to fill a
market-rate housing gap.
»With the addition of high-quality units in this market - above $200,000
for ownership options and above $1,500 per month for rental options
– the study area may be able to absorb a share of Oshkosh’s housing
demand. The question is whether an environment can evolve in
the study area that is conducive to housing in these ranges.
• About half of the vacant land in the city is in the Jackson Street corridor. The
corridor does provide opportunities to fill housing demand in the coming years.
The most notable demand being for new owner-occupied construction and
market-rate rentals.
• Housing is also an opportunity for this area. While growth forecasts indicate a
relatively moderate pace, some could be absorbed into the Jackson Street area to
strengthen businesses there and create more density. Again, these developments
need to occur with an eye to the market to ensure that developers are not
overbuilding what the market can handle.
• More people commute into Oshkosh for work than commute out of Oshkosh
for work, a net inflow of about 6,700 people in 2017. The net inflow provides a
potential pool to attract future residents.
• Like the State of Wisconsin, Oshkosh as low unemployment around 2.5%.
• Oshkosh exceeds the total amount of retail trade and food/drink spending that
would be expected based on the size and characteristics of the population. The
broader market area beyond Oshkosh also draws more spending than would be
predicted by its population.
Weaknesses and Threats
• The near-term development potentials and public infrastructure funding appears
uncertain at best given the new dip into the 2020 recession. The true weaknesses
and threats from the recession will emerge throughout 2020.
• Since 2010 Oshkosh grew at slightly more than half the annual rate of Appleton
and Neenah. The slower growth in the population could lead to new businesses to
seek faster growing and larger cities.
»The rate of growth decreased since 2000, with a 0.12%
annual growth rate between 2010 and 2018.
• Oshkosh households have stable incomes, increasing from a median household
income of about $42,000 in 2010 to $48,000 in 2018. However, the rise in median
income in Oshkosh and the State of Wisconsin is slightly less than a two percent
inflation rate. Low wage growth is widespread in the United States. Continued low
wage growth presents issues in particular for lower-income households and hourly
workers who are already struggling with rising housing costs.
• Compared to other comparable cities in the region, Oshkosh has a lower median
household income and a higher percentage of households below the poverty line.
• The market area outside Oshkosh has a more substantial percentage of traditional
retail establishments like clothing stores, personal goods, and furniture. These
types of businesses are suffering and the relatively fewer clusters in Oshkosh are
likely not a threat. However, the goal of seeking these types of businesses or their
expansion into the Jackson Street corridor could be a long-term threat as sales
decline and buildings become obsolete.
• Households in Oshkosh and the region tend to spend less on all types of goods
and services than the U.S. average. Multi-use projects that diversify commercial
use types and balance commercial and residential income streams for landlords
can help lessen these weaknesses.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
FIGURE 2.1: Existing Land Use, 2019
CITY LAND USE
(ACRES)%
JACKSON STREET
STUDY AREA LAND USE
(ACRES)
%
SINGLE-FAMILY 3,608 24.4%401 12.3%
DUPLEX 353 2.4%23 0.7%
TRIPLEX 21 0.1%0 0%
MULTI-FAMILY 578 3.9%97 3.0%
COMMERCIAL 2,568 17.4%345 10.5%
INDUSTRIAL 1,411 9.5%533 16.3%
INSTITUTIONAL 3,805 25.7%1,122 34.3%
VACANT 481 3.3%244 7.5%
AGRICULTURAL 1,956 13.2%505 15.4%
TOTAL 14,780 100.0%3,271 100.0%
Source: City of Oshkosh, RDG Planning & Design
INTRODUCTION
Oshkosh is part of a market region that includes cities
ranging up to 75,000 people within a 30-minute drive.
Many factors create the economic reality for the area,
including the overall economic and demographic
characteristics of nearby cities. A market analysis
explores the character of the entire Lake Winnebago
area that contributes to residential, commercial, and
industrial potential in Oshkosh, and specifically, the
Jackson Street corridor.
The market analysis focuses on the evaluation of
market forces that will impact areas of Jackson Street
north of Murdock Avenue. Areas south of Murdock Ave
include historic neighborhoods that are not subject
to significantly changing land uses. Understanding
the tendencies of the future market will inform the
transportation considerations and the development of
character policies for the Jackson Street plan.
LAND USE OVERVIEW
Figures 2.1 and 2.2 show the types of land uses in the
Jackson Street study area and the city. As a major north
access route into Oshkosh, the corridor understandably
has a high percentage of non-residential uses.
Institutional plays a significant role in the study area
with facilities like the prison, former landfill, and county
park. Excluding these three large institutional uses, the
northern portion of Jackson Street contains a mixture of
industrial uses although it does not give the feeling of an
industrial or business park. Transformation of more than
five percent of vacant land could shift the dominant
land use from industrial to fewer intensive uses such as
commercial and residential.
FIGURE 2.1: Jackson Street Study Area within City Limits, 2019
LAND USE (ACRES)%
SINGLE-FAMILY 309 13.4%
DUPLEX 23 1.0%
MULTI-FAMILY 97 4.2%
COMMERCIAL 295 12.8%
INDUSTRIAL 481 20.9%
INSTITUTIONAL 958 41.6%
VACANT 112 4.9%
AGRICULTURAL 30 1.3%
TOTAL 2,306 100.0%
Source: City of Oshkosh, RDG Planning & Design
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
MARKET SCOPE
Oshkosh’s location positions the city well to support
its own commercial and industrial base. The Appleton
metro is thirty minutes to the north and Fond du Lac
thirty minutes to the south. These two population
centers are close enough to draw an employment base
but far enough to encourage Oshkosh residents to shop
local for many purchases. Conversely, for residential
uses, the proximity to Appleton in particular allows
a comfortable commute for people to live in another
community and work in Oshkosh.
Components of Importance
Many factors will contribute to the realization of
future development on the Jackson Street corridor.
The analysis provides insight and the likelihood of
development. However, decision-makers should not use
the study as a prescriptive regulator of land use.
Indicators that influence the development market for
Jackson Street include:
• Local versus regional.
»The local market will frequent Jackson Street
for uses like restaurants, routine services,
grocery, shopping, parks, and residences.
»The regional market will frequent Jackson
Street for uses like major employers,
major recreation/events, and convenience
shopping/restaurant visits when in Oshkosh
for tourism and recreation events.
• Residential Gaps.
»The demand for certain residential housing
types in Oshkosh will favor sites that have
affordable land, access to amenities, and
residential future land use designations.
• Commercial Performance. Three indicators can
show potential for future commercial growth.
»Increased Growth Indicators. Areas in Oshkosh
with proven commercial returns will continue
to see development momentum. Other areas
with major street access, consolidated vacant
land, and complementary adjacent land uses
could see added commercial demand in the
future that appeals to today’s consumer.
»Modified Growth Indicators. Consumer preference
to shop local and near where they live shifts the
magnitude of local commercial square footage
growth. Land favorable toward commercial uses
continues to develop but in a different fashion.
Physical commercial square footage is less with
a mix of other services, activity, and residential
uses on-site to generate customer traffic.
»Static Growth Indicators. Online sales continue to
grow, a recession occurs, or Oshkosh experiences
low to no population growth. Combined, these
factors will change the demand for traditional
retail and service commercial. Commercial
land development may still occur for routine
purchases or redevelopment of existing
commercial sites. However, significant new
commercial development does not happen in
Oshkosh. Instead, nearby cities in the market
area capture new commercial growth.
• Industrial Growth. Similar to commercial growth,
there are indicators to forecast the potential for
future industrial growth.
»Increased Growth Indicators. Oshkosh
industries maintain and grow their market
strength. Technological advances or inventions
make Oshkosh’s existing natural resources or
production strengths more valuable. Hiring and
business investment increases, and existing
industries expand on current sites or additional
facilities. New complementary industries develop
in Oshkosh near major transportation routes
when city policy supports industrial development.
»Static Growth Indicators. Oshkosh experiences
low to no population growth and a decline in
the skilled workforce beyond other cities in
the market area. Excessive policy or regulatory
barriers (local, state, or federal) can encourage
existing industries to relocate to other cities. Land
most suitable for industrial uses is fully developed
with different uses and no other land is available.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
MARKET CONDITIONS AND
TRENDS
Population
What: A look at recent population demographics and
trends, primarily from 2010 to 2018.
How: Using Census data and unpacking relevant
information to illustrate specific cohort trends in
Oshkosh.
Why: The demographics of the population give clues to
growth trends and the demand for various commercial
and residential uses in the future. A person’s age
generally aligns with one of three cohort characteristics
that align with particular housing and retail demands.
Snapshot
Oshkosh grew consistently since 1960, with the most
rapid growth in the 1990s. The rate of growth decreased
since 2000, with a 0.12% annual growth rate between
2010 and 2018. Interestingly, the rate of construction
would indicate a growth rate of about 0.5% in this same
period. Nonetheless, Oshkosh continues to maintain
its share of Winnebago County’s population, hovering
around 40% of the total county population since 1960.
Historically, Oshkosh has similar population growth
trends as other cities in the region. However, since 2010
Oshkosh grew at slightly more than half the annual rate
of Appleton and Neenah. The declining yearly growth
rate results partially from declining college enrollment.
Cohort Trends
The Emerging Cohort, ages between 0 and 24 years,
represent children, adolescents, and young adults. They
tend to be the most mobile of all cohorts – as they age,
they often relocate for college, for work, or with their
family. If retained, this cohort will establish their own
lives and families in Oshkosh. From 2010 to 2018, this
cohort grew by 143 residents or 0.1 percentage points.
This cohort’s preferences often include:
• Youngest Residents and Young Families. Seeking
youth and family activities, places to play and
gather with friends, and amenities that are
interactive and engaging. Desired amenities may
include water features, interactive art, playgrounds,
and shaded gathering spaces.
• Young Adults. Seeking a vibrant urban space
with things to do, throughout the day and in the
evenings. Interested in academic, cultural, and
social activities. May be most interested in living
near urban centers. Desired amenities may include
restaurants and bars with outdoor spaces, coffee
shops, bookstores, and other lounge spaces;
interactive or photogenic art; and housing near
urban centers.
• College Students. The University of Wisconsin
– Oshkosh influences housing and development
trends surrounding the core of downtown. For the
Jackson Street corridor, these influences are mostly
felt at the southern end closest to downtown.
College populations demand more rental housing
and service commercial near where they live. In
2010, the number of people living in college and
university student housing was about 3,200 with
total enrollment over 10,000 students. However,
shown in Figure 2.3, college enrollment has steadily
declined since 2010, meaning that the cohort
growth came from non-college students seeking
job opportunities.
FIGURE 2.3: University of Wisconsin – Oshkosh En -
rollment (2010-2018)
11,000
12,000
10,000
9,000
8,000
7,000
6,000
2010 2014 2018
10,887 10,391 8,981
1,399
1,233
1,313
Undergraduate Graduate
En
r
o
l
l
m
e
n
t
ENVISIONING NORTH JACKSON
22
ENVISIONING NORTH JACKSON
The Establish(ed/ing) Cohort, ages 25-54, represent
adults who are established in jobs and housing or are in
the process of establishing. They represent the broadest
range of all cohorts, but many of these households seek
stability. Three sub-cohorts exist:
• Ages 25 - 34. At the earliest phase of the cohort.
This group increased by 606 residents from 2010-
2018.
• Ages 35 - 44. More established in Oshkosh but
will, if needed, relocate for additional stability. This
cohort declined by 339 residents. The reason for
the decline in this age group is not apparent but
possible influences can include other employment
opportunities, school districts, and family reasons,
among others.
• Ages 45 - 54. Often the most stable with
developing children and stable careers. This phase
usually ages smoothly into the next cohort. This
cohort declined by 511 residents between 2010
and 2018. Notably, this same cohort grew by 1,416
between 2000 and 2010.
This cohort’s preferences often include:
• Young Families. Seeking youth and family activities
to entertain young children and themselves. Places
for family outings.
• Families with or without children. Seeking engaging
shopping, restaurant, and entertainment.
»Eating and drinking establishments. Desired
but to a lesser degree than the emerging
cohort. Dining preferences may be more
upscale than the emerging cohort.
»Both convenience (necessities) and experiential
(enjoyment/leisure) shopping opportunities.
»More inclined to use urban districts as a novelty
(shopping, gathering, etc) than as a place
for utility shopping (grocery, convenience
goods, etc) than the other cohorts.
• The Senior and Empty Nester Cohort, ages 55+,
represents adults transitioning into their senior
years. These households often begin to shift their
way of life as they approach retirement, including
downsizing to smaller housing and finding their
‘new-normal’ without dependent children and
retirement. Much like other cohorts, this group
seeks stability through their senior years. This
group gained over 626 residents since 2010. This
cohort’s preferences often include:
• Empty Nesters and Seniors. Many empty-nesters
and active seniors interact with urban environments
with similar preferences as young professionals.
»With greater stability, disposable income,
and a similar level of responsibility to the
emerging cohort, these residents sometimes
downsize into urban districts that offer a mix
of housing, retail, and entertainment uses.
»In addition to the examples provided for the
25-34
Years
Old
606
-339
2010-2018 Population Change
35-44
Years
Old
45-54
Years
Old
55+
Years
Old
-511
626
FIGURE 2.3A: Predicted Population and 2018 ACS Estimates Compared
AGE GROUP ACTUAL 2010 2018 ACS
ESTIMATE
2010-2018
CHANGE
COHORT SUR-
VIVAL FORECAST
2018
ACS AND FORE-
CAST COMPAR-
ISON
0-15 10,218 9,828 -390
15-19 5,550 5,353 -197
20-24 8,887 9,617 +730
25-34 9,510 10,116 +606
35-44 8,149 7,810 -339 9,444 -1634
45-54 8,621 8,110 -511 8,037 73
55-64 6,627 7,017 +390 8,296 -1279
65-74 3,796 3,993 +197 5,993 -2000
75-84 3,103 3,208 +105 2,993 215
85+1,622 1,558 -64 1,668 -110
emerging cohort, an empty-nester/active
retiree cohort may require more convenience
items within proximity of residences.
Population Migration Trends
The previous discussion examined the relative stability
of Oshkosh’s population and changes in population of
various cohorts. This comparison displays population
ENVISIONING NORTH JACKSON
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PROJECTION
What: Developing a forecast of the future population in
Oshkosh.
How: Using past Census counts, residential building
activity, and discussions with local stakeholders to
identify a probably annual growth rate to extrapolate to
future years.
Why: Land use, jurisdictional boundaries, and
infrastructure extensions impact growth on the north
end of Jackson Street. However, future population
FIGURE 2.4: Population Growth Scenarios
gains among young family-formation age adults (ages
25 to 34) and older adults (over age 55). It also indicated
declines in maturing family and middle-aged adults
(ages 35-54. Traditional migration analysis compares
a population predicted by natural population change
(cohort survival) with an actual population count. In a
forecast for Oshkosh, the most recent data available
are the Bureau of the Census’ 2018 ACS estimates.
Traditional analysis is complicated in communities with
a large university population because of a large cohort
of students, many of whom will leave the city after
graduation. Therefore, our migration analysis is limited to
adults of age 25 and older in 2010. While a more accurate
analysis awaits the 2020 Census, this initial calculation
suggests:
• A significant outmigration of people in their late
20s and early 30s. If true, this could have several
explanations, including older UWO students leaving
the city after graduation, lack of job opportunities, or
a lack of attainable housing.
• Outmigration of middle-aged populations and
younger seniors, despite an increase in absolute
population of those age groups. These very large
baby boom cohorts can underperform in terms of
retention and still display a population increase.
• Relative stability and even attraction of seniors over
age 65.
This analysis suggests that if Oshkosh had achieved
zero migration of under-performing groups, the
city’s population would reach about 66,000 by 2020,
corresponding to an annual growth rate of about 1%.
This potential, if accurate, may suggest specific housing
and economic development policy directions, including
development of “gateway” housing opportunities for
younger families.
growth will increase pressure for the development of
land in all of the city limits.
Based on previous growth trends and regional
strengths, Oshkosh is forecasted to grow at about 0.50
percent per year, reaching a population in the range of
70,000 in 2030. Many factors could affect growth, but
these are not known or can be predicted with accuracy
today.
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RESIDENT AND HOUSING INDICATORS
The characteristics of residents and the housing supply provide insight into the
possible development pressures that may emerge on the Jackson Street corridor or
the development that could be successful if built. First, these insights focus on the
people that may frequent Jackson Street for transportation or shopping. Second, are
forces for housing development in Oshkosh and whether recent development along
Jackson Street would be supported in the future.
In-commuters Live and Work
in Oshkosh Out-commuters
11,148
22,154 15,420
FIGURE 2.5: Oshkosh Daytime Inflow and Outflow of Employees and Residents,
2017
OnTheMap
Home Destination Report - Work Selection Area to Home ZIP Codes
(ZCTA)
Private Primary Jobs for All Workers in 2017
Created by the U.S. Census Bureau’s OnTheMap https://onthemap.ces.census.gov on 02/15/2020
Counts of Private Primary Jobs from Work Selection Area to Home ZIP Codes (ZCTA) in 2017
All Workers
Map Legend
Job Count
5,045
4,226
3,094
1,814
963
892
768
688
647
489
Selection Areas
Analysis Selection
Page 1 of 3
FIGURE 2.6: Oshkosh Employees Commuting: Home
to Work Patterns, 2017
OnTheMap
Work Destination Report - Home Selection Area to Work ZIP Codes
(ZCTA)
Private Primary Jobs for All Workers in 2017
Created by the U.S. Census Bureau’s OnTheMap https://onthemap.ces.census.gov on 02/15/2020
Counts of Private Primary Jobs from Home Selection Area to Work ZIP Codes (ZCTA) in 2017
All Workers
Map Legend
Job Count
4,345
3,695
3,024
2,363
925
812
573
487
439
417
Selection Areas
Analysis Selection
Page 1 of 3
FIGURE 2.7: Oshkosh Residents Commuting: Home
to Work Patterns, 2017
Transportation
What: The commuting habits of employees and
residents in Oshkosh.
How: Using Census data to determine commuting trends
for where people live and work.
Why: Where people work provides information on
where people spend most of their day, spending money
and going to businesses. Where employees in Oshkosh
live includes information on the daily impact of outside
spending, but also a potential demand for housing in
Oshkosh if housing products are available.
Oshkosh is part of a broader economic region that
boasts substantial productions and economic impact
for the State of Wisconsin. As such, Oshkosh competes
with nearby cities for employees. Its business parks
on the west side of the city draw workers from
smaller communities to the west but much of the local
workforce comes from immediately adjacent areas in
the county. Conversely, some that live in Oshkosh travel
to other cities for work.
The net commuting pattern shows that more people
commute into Oshkosh for work than commute out of
Oshkosh for work, a net inflow of about 6,700 people in
2017. The net inflow provides a potential pool to attract
future residents.Job Count
Lower Higher
Source: U.S. Census
On the Map
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Income
What: Median household income and poverty status.
How: Using Census data to determine the incomes of
those living in Oshkosh and the number of people faced
with poverty.
Why: Income indicates how much people may have
in disposable income to spend at local businesses
and housing. Those in poverty spend mostly on living
essentials and need affordable housing to meet their
means. If not, they may seek to live and work in other
communities in the region.
Oshkosh households have stable incomes, increasing
from a median household income of about $42,000 in
2010 to $48,000 in 2018. The rise in median income in
Oshkosh and the State of Wisconsin is slightly less than
a two percent inflation rate.
Compared to other comparable cities in the region,
Oshkosh does have a lower median household income
and a higher percentage of households below the
poverty line. College students not living in group
quarters account for a portion of the lower incomes.
However, several of the other comparable cities have
college student populations. Taken together, Oshkosh is
a primarily middle class, blue-collar community, and is
likely to support commercial establishments that focus
on essential needs.
•
FIGURE 2.8: Median Household Income and Poverty Level, 2018
MEDIAN HOUSEHOLD INCOME PERCENT BELOW POVERTY LEVEL
OSHKOSH $48,346 18.2%
WINNEBAGO COUNTY $57,124 11.9%
FOND DU LAC $49,949 12.6%
NEENAH $57,684 11.8%
APPLETON $56,459 11.4%
GREEN BAY $47,797 16.0%
JANESVILLE $54,573 12.7%
STATE OF WISCONSIN $59,209 11.9%
Source: U.S. Census Bureau
FIGURE 2.9: Median Household Income Over Time Chart, 2010-2018
s 29%s 29%s 22%s 27%s 19%s 24%s 19%
Source: U.S. Census Bureau
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Employment
What: What type of jobs people that live in Oshkosh are
employed.
How: Using Census data to understand industry and
employment strengths.
Why: Employment provides insight into regional
strengths that could attract employees or lead to further
business cluster development – both factors that can
lead to population and land development growth,
especially along major transportation routes.
The employment character of Oshkosh affects potential
markets for Oshkosh and the specific study area.
• People who live and work in Oshkosh.
• People who live in Oshkosh who work outside of
town, opening the likelihood of diverting at least
some shopping for goods and services in areas
around the workplace.
• People who live outside of Oshkosh but hold jobs
in the town or the immediate vicinity, raising the
possibility of retaining some consumer dollars of
employees who commute to city for work.
Many that live in Oshkosh are not in the labor force,
most notably college students and incarcerated
populations. Thus, the labor force participation rate is
around 63% compared to above 68% in Appleton. Like
the State of Wisconsin, Oshkosh as low unemployment
around 2.5%.
Over half of the residents of Oshkosh are either employed in manufacturing and
the trades or education and healthcare, shown in Figure 2.10. On an industry basis,
employment is more likely to be in wholesale trade, construction, and transportation/
utility sectors, but much less likely to be involved in service, FIRE (Finance, Insurance,
Real Estate), or other similar fields.
FIGURE 2.10: Employment by Industry, 2018
Source: U.S. Census Bureau
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Housing Values and Costs
What: The value of homes and what homeowners and
renters are paying for housing.
How: Using Census data to understand the market value
versus other regional cities.
Why: Housing values offer a glimpse into whether
the market will support new construction or is too
undervalued or overvalued. Costs relative to incomes
also indicate the ability of people to move up in the
housing market, make improvements to their home, or
invest in new construction.
Shown in Figure 2.12, Oshkosh’s median home value is
lower than many other cities in the area, but so is the
median household income. Median contract rents are
similar to other cities, which the student population can
inflate. However, as new units are constructed, both
owner- and renter-occupied, they are expected to be
valued higher than many of the existing buildings in the
city.
The value to income ratio is a metric to evaluate
affordability in the ownership market.
• An affordable, self-sustaining housing market, with
fair value and revenues to support market-rate new
construction, typically exhibits a value to income
ratio between 2.5 to 3.0. Ratios above 3.0 present
affordability issues while ratios below 2.0 are
significantly undervalued relative to income.
• Oshkosh generally displays a healthy market for
housing development, although it is on the lower
end toward undervaluation.
• Generally, this ratio will not present challenges for
developers. However, in low supply, high demand
HOUSING
Housing Occupancy
What: Where people live and trends over time.
How: Using Census data to determine owner versus
rental occupancy, as well as the level of vacant units.
Why: Owners versus rental occupancy change over
time provides insight into potential housing demand.
Changes in vacancy rates can show problems in the
housing market from poor conditions or lack of housing
choice for those looking to move to Oshkosh.
Shown in Figure 1.11, approximately 54 percent of all
units in Oshkosh are owner-occupied. This reflects
the student population, like other college towns. The
number of rental units grew since 2010, from about 44
percent of occupied units to 46 percent.
Estimates for vacancy rates in 2018 is 7.4 percent,
relatively the same as 7.2 percent in 2010. Generally, a
healthy vacancy rate of between five and six percent
helps ensure homebuyers and renters can find housing
when needed while also serving as a filter to remove
and replace the lowest quality housing from the market.
Oshkosh’s vacancy rate is currently higher than is
desirable, but about half of the vacant units are not
available for sale or rent. The timing of the Census
estimates also plays a role. In the summer many college
rental units unoccupied.
markets, developers have the mobilization leverage
to choose to build where they can obtain the most
value. Surrounding cities have similar ratios which
do not single out Oshkosh from an affordability
perspective.
Affordability
By comparing the distribution of household incomes
with housing costs, a general picture of supply and
demand emerges across Oshkosh’s housing market,
detailed in Figure 1.13.
Use the income range $0-24,999, for example, reading
across the table to the right. There are 6,438 households
in Oshkosh living within this income range. An
affordable home for purchase would cost a maximum
of $59,999 and, there are an estimated 944 owner-
occupied units within this value range. An affordable
rental unit should cost no more than $500 per month
and, there are an estimated 3,230 rental units within this
price range. Combined, there are a total of 4,174 units
that should be affordable for households earning less
than $25,000 per year. By subtracting the supply of
affordable units (4,174) from the number of households
in this income range (6,438), one can see that a deficit
of units exists.
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FIGURE 2.11: Oshkosh Occupancy Characteristics, 2018
NUMBER % OF OCCUPIED
UNITS NUMBER % OF OCCUPIED
UNITS
CHANGE 2000-
2018
OWNER-
OCCUPIED 14,693 56.2%14,262 54.0%-431
RENTER-
OCCUPIED 11,445 43.8%12,173 46.0%728
TOTAL VACANT 2,041 2,098 57
VACANCY RATE 7.2%7.4%0.2%
TOTAL UNITS 28,179 28,533 354
FIGURE 2.12: Oshkosh Housing Values and Costs, 2018
MEDIAN HOUSE-
HOLD INCOME
MEDIAN HOUSE
VALUE
VALUE / INCOME
RATIO
MEDIAN CON-
TRACT RENT
MEDIAN RENT AS
PCT OF MEDIAN
INCOME
OSHKOSH $48,346 $122,200 2.53 $622 15.4%
WINNEBAGO
COUNTY $57,124 $149,500 2.62 $624 13.1%
FOND DU LAC $49,949 $122,600 2.45 $618 14.8%
NEENAH $57,684 $136,500 2.37 $586 12.2%
APPLETON $56,459 $142,500 2.52 $634 13.5%
GREEN BAY $47,797 $131,100 2.74 $611 15.3%
JANESVILLE $54,573 $136,300 2.50 $677 14.9%
STATE OF
WISCONSIN $59,209 $173,600 2.93 $703 14.2%
FIGURE 2.13: Oshkosh Housing Affordability Analysis, 2018
INCOME RANGE % OF CITY ME-
DIAN % OF HHS
AFFORDABLE
RANGE FOR
OWNER UNITS
# OF OWNER
UNITS
AFFORDABLE
RANGE FOR
RENTER UNITS
# OF RENTER
UNITS
TOTAL AFFORD-
ABLE UNITS BALANCE
$0-24,999 Under 53%24.4%>$60K 944 $0-499 3,230 4,174 -2,264
$25K-49,999 53-103%27.4%$60K-124,999 6,467 $500-999 7,904 14,371 7,133
$50K-74,999 104-155%19.7%$125K-199,999 4,967 $1,000-1,499 764 5,731 530
$75-99,999 156-207%13.1%$200K-249,999 961 $1,500-1,999 207 1,168 -2,285
$100-150K 208-310%11.9%$250K-399,999 686 $2,000-2,999 45 731 -2,408
$150K+Over 310%3.7%$400K+237 $3000+22 259 -707
100%14,262 12,173 26,435 0
MEDIAN $48,346 $122,200
Source: U.S. Census Bureau, RDG Planning & Design
Note that the deficit at the lowest income range does
not suggest an affordability crisis in Oshkosh. Many with
household incomes under $25,000 are either students
or seniors on fixed incomes who have paid off their
homes.
Nonetheless, when looking at specific price points in
Oshkosh, it becomes clear that many rental options
appear to focus on households earning between
$25,000 and $49,999 per year. On the other hand,
households earning more than $75,000 per year appear
under-served by the housing market. With the addition
of high-quality units in this market - above $200,000
for ownership options and above $1,500 per month for
rental options – the study area may be able to absorb
a share of Oshkosh’s housing demand. The question is
whether an environment can evolve in that is conducive
to housing in these ranges.
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Housing Demand by Type
What: The forecasted future demand for housing
development by various price points and building types.
How: Using a calculation of housing need given future
population growth that considers the household
population, people per household, vacancy rates, and
demolition rates.
Why: A housing demand forecast indicates construction
needs, that could in part, be satisfied along the Jackson
Street corridor.
The corridor provides possibilities, supported by the
amount of vacant land and recent successful residential
developments. Additionally, the growth of employment
opportunities in the area means there is a significant
commuter worker population that could be served by
convenient nearby housing. However, the corridor poses
substantial challenges, such as mixed jurisdictional
boundaries, a variety of industrial uses, and perception
issues related to the landfill and correctional facilities.
This section summarizes community housing demands
before investigating the ability to produce a supportive
residential environment in the northern Jackson Street
corridor. If housing makes sense in sufficient numbers,
this study area can become a neighborhood that helps
unify areas on both sides of Jackson Street.
Overall Demand
Annual housing production of about 155 units per
year will meet the estimated annual growth rate of 0.5
percent, as indicated in Figure 2.14. This is slightly above
the housing production from 2009-2019, although
much of the development built over this time were
multi-family units. This level of demand at a mix of low,
medium, and high-density residential development
would require around 25-40 acres of land per year,
either new land, redeveloped land, or infill land. The
total amount of vacant land in Oshkosh is about 3.3
percent or 480 acres.
About half of the vacant land in the city is in the Jackson
Street corridor. The corridor does provide opportunities
to fill housing demand in the coming years. The most
notable demand being for new owner-occupied
construction and market-rate rentals.
Additionally, housing demand may increase by:
• Providing resources and amenities that encourage
some workers (and their households) who commute
to Oshkosh for employment to live in town.
FIGURE 2.14: Housing Demand Summary at 0.5% Annual Growth
2020 2025 2030 TOTAL
POPULATION AT END OF PERIOD 67,359 69,122 70,932
HH POPULATION AT END OF PERIOD 59,694 61,256 62,860
AVERAGE PPH 2.35 2.35 2.35
HH DEMAND AT END OF PERIOD 25,402 26,067 26,749
PROJECTED VACANCY RATE 7.0%7.0%7.0%
UNIT NEEDS AT END OF PERIOD 27,314 28,029 28,762
REPLACEMENT NEED (TOTAL LOST
UNITS) 60 50 110
CUMULATIVE NEED DURING PERIOD 765 784 1,549
AVERAGE ANNUAL CONSTRUCTION 153 157 155
• Increased demolition of existing homes that are
beyond repair.
• Increased economic strength from technological
advancements or major employer expansions
beyond what could reasonably be forecasted.
Or demand may decrease by:
• A significant reduction in vacancy rates because of
investments and repair of unoccupied residences.
• A continued decline in student enrollment, although
existing student housing could discontinue
as housing for other business or commercial
redevelopment.
• Changing market conditions, such as a recession
that reduces employment or population growth in
Oshkosh.
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RETAIL MARKET REVIEW
Oshkosh is in a significant economic region that draws
consumers, business investment, and jobs from many
areas. Thus, what happens in the region around Lake
Winnebago impacts the economic conditions in
Oshkosh. Indicators on retail markets, business types,
and consumer spending provide some understanding of
opportunities for growth in Oshkosh.
Therefore, the market area for Oshkosh must recognize
the pull factors of other cities, reflecting competitive
environments and recent development trends. The
market is, by definition, the area where developers,
consumers, and residents have the option to choose
Oshkosh for their purchases and pursuits. The market
area for Oshkosh includes three separate geographic
regions from which the city can potentially draw non-
residential investment with various levels of likelihood.
Local Market Indicators:
1. Business Establishments. The number of businesses
and employees locally in various business sectors
relative to the broader market area.
2. Consumer Retail Spending Indicators. The spending
habits of consumers locally relative to the region
and nation.
3. Available Retail Space and Demand. The amount
of existing retail establishments location versus
the amount local consumers spend in retail
establishments. In other words, whether local
consumers are spending locally or traveling
elsewhere for retail purchases.
FIGURE 2.15: Market AreasNote, retail and commercial activity does not show the
full market strength of Oshkosh. As part of a robust
economic region, Oshkosh benefits from other cities
providing specific service while Oshkosh can provide
comparatively better positioned business clusters for
the regional supply.
Primary Market
Shown in Figure 2.15:
• North Reach – South of County Road GG
• South Reach – North of County Road Z
• West Reach – East of County Road Ff
Residents of this area will be oriented to Oshkosh first
for goods and services. If a product or service is locally
available and competitively priced, residents of this area
are likely to purchase from local businesses. The area is
generally the city limits of Oshkosh extending to some
rural areas on the periphery.
Secondary Market
Shown in Figure 2.15:
• North Reach – Appleton, Little Chute
• South Reach – Fond du Lac
• West Reach – Green Lake, Partridge Lake
The secondary market area represents the region from
which Oshkosh may draw visitors for significant or
unique businesses, or special events and attractions.
This geographic area is difficult to define because
certain features and amenities can attract visitors from
further away. Also, the capacity of Fond du Lac and
Appleton to provide a spectrum of commercial and
recreational activities makes the reasoning for someone
to purchase goods in Oshkosh challenging to determine.
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Business Establishments
What: The number and ratio of businesses by type in
Oshkosh.
How: Using ESRI data to evaluate the spread of business
types in the region and Oshkosh.
Why: Business establishments indicate the types of cluster
advantages that Oshkosh may have in the region.
Most people living in Oshkosh work in the manufacturing,
education, and health care fields. This information
paints a picture of resident living status. Conversely, the
number and types of businesses in Oshkosh and the area
provide insight into the strengths in the local economy.
Retail establishments are particularly important because
they draw revenue from visitors and keep income from
residents in the community. Figure 2.16 shows the number
of businesses by type in Oshkosh and the secondary
market region that includes Appleton to Fond du Lac.
Retail trade establishments account for a slightly higher
percentage of all businesses in Oshkosh compared to
the region. However, most of the higher rate results from
miscellaneous store retailers and non-store retailers
(online). Whereas, the market area outside Oshkosh
has a more substantial percentage of traditional retail
establishments like clothing stores, personal goods, and
furniture. These types of brick and mortar stores are
becoming less prevalent in terms of new construction
and are not likely to create a significant land demand in
Oshkosh over other areas in the market area.
Oshkosh does show a slightly stronger local presence of
health care/social assistance, food services, and public
administrations. The University of Wisconsin Oshkosh
understandably creates a larger market for these types
of businesses. However, businesses related to social
assistance indicate a local need, whether income or
physical/mental related needs. These businesses must be
near the population they serve.
FIGURE 2.16: Business Establishments in the Market Area
DATA FOR ALL BUSINESSES IN AREA CITY SECONDARY ONLY - CITY
BUSINESS-
ES %
EMPLOYEES
%
BUSINESS-
ES %
EMPLOYEES
%
CONSTRUCTION 5.9%2.9%7.77%4.40%
MANUFACTURING 5.6%15.2%5.37%15.78%
WHOLESALE TRADE 2.8%3.9%3.77%3.88%
RETAIL TRADE 14.8%15.8%13.64%13.17%
MOTOR VEHICLE & PARTS DEALERS 1.8%1.9%1.91%1.80%
FURNITURE & HOME FURNISHINGS STORES 0.6%0.1%0.84%0.47%
ELECTRONICS & APPLIANCE STORES 0.7%0.5%0.61%0.52%
BLDG MATERIAL & GARDEN EQUIPMENT & SUPPLIES
DEALERS 0.7%2.1%1.25%1.08%
FOOD & BEVERAGE STORES 1.4%2.3%1.49%2.89%
HEALTH & PERSONAL CARE STORES 1.6%0.8%1.10%0.78%
CLOTHING & CLOTHING ACCESSORIES STORES 1.5%0.7%1.47%1.07%
SPORT GOODS, HOBBY, BOOK, MUSIC STORES 1.3%0.6%1.01%0.56%
GENERAL MERCHANDISE STORES 0.7%2.5%0.78%1.98%
MISCELLANEOUS STORE RETAILERS 3.0%2.0%2.09%1.57%
NONSTORE RETAILERS 0.9%2.0%0.27%0.11%
TRANSPORTATION & WAREHOUSING 1.6%1.8%2.07%2.54%
INFORMATION 2.1%1.7%1.67%2.28%
FINANCE & INSURANCE 6.0%2.4%6.05%4.45%
CENTRAL BANK/CREDIT INTERMEDIATION & RELATED
ACTIVITIES 2.1%1.3%1.76%1.61%
REAL ESTATE, RENTAL & LEASING 4.7%1.3%5.04%1.71%
PROFESSIONAL, SCIENTIFIC & TECH SERVICES 6.8%3.4%7.12%9.06%
LEGAL SERVICES 1.8%0.6%1.41%0.42%
ADMINISTRATIVE & SUPPORT & WASTE MANAGEMENT
& REMEDIATION SERVICES 2.7%2.4%3.59%4.05%
EDUCATIONAL SERVICES 2.7%9.7%2.54%5.34%
HEALTH CARE & SOCIAL ASSISTANCE 9.7%14.5%8.79%14.36%
ARTS, ENTERTAINMENT & RECREATION 2.3%1.6%2.11%1.56%
ACCOMMODATION & FOOD SERVICES 8.2%8.6%7.15%7.35%
FOOD SERVICES & DRINKING PLACES 7.6%8.0%6.30%6.43%
OTHER SERVICES (EXCEPT PUBLIC ADMINISTRATION)12.2%6.7%12.07%4.67%
AUTOMOTIVE REPAIR & MAINTENANCE 1.9%0.6%2.53%1.02%
PUBLIC ADMINISTRATION 5.7%7.8%3.92%4.50%
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Retail Indicators
The retail spending index provides a glimpse into the
spending habits of residents in both the primary market
and the total market areas compared to the national
average (index value of 100), as shown in Figure 2.17.
The retail spending index illustrates consumer habits by
considering what goods and services are convenient,
the willingness to spend money in specific market
sectors, and other contributing factors.
Households in Oshkosh and the region tend to spend
less on all types of goods and services than the U.S.
average. The data is not uncommon compared to
patterns in other Midwestern areas. Lower spending
habits tend to correlate with relatively lower household
discretionary incomes, large student populations,
or preferences for activities like outdoor recreation.
The findings do not provide a clear indication of the
strengths or weaknesses of specific retail markets, only
how relatively popular individual consumer purchases
are compared to each other. However, coupling the
information with available establishments offers a
glimpse into opportunities for Oshkosh.
FIGURE 2.17: Selected Retail Spending Habits in the Total Market Area
BUSINESS-
ES %
EMPLOYEES
% BUSINESSES %
APPAREL AND SERVICES 88 $1,894.83 $340,810,698
ENTERTAINMENT & RECREATION 90 $2,948.56 $530,336,274
MEMBERSHIP FEES FOR CLUBS 85 $200.16 $36,000,986
FEES FOR PARTICIPANT SPORTS, EXCL. TRIP 89 $95.70 $17,212,169
TICKETS TO THEATRE/OPERAS/CONCERTS 86 $64.86 $11,666,362
TICKETS TO MOVIES 87 $47.48 $8,539,067
TICKETS TO PARKS OR MUSEUMS 87 $28.27 $5,084,276
ADMISSION TO SPORTING EVENTS, EXCL. TRIPS 92 $58.31 $10,487,118
FEES FOR RECREATIONAL LESSONS 84 $120.60 $21,690,901
VIDEO GAME HARDWARE/ACCESSORIES 96 $26.82 $4,824,487
RENTAL/STREAMING/DOWNLOADED VIDEO 94 $43.79 $7,876,065
PETS 91 $604.11 $108,656,768
TOYS/GAMES/CRAFTS/HOBBIES 93 $110.24 $19,827,204
RECREATIONAL VEHICLES AND FEES 85 $136.43 $24,539,473
READING 90 $95.79 $17,229,880
FOOD OVERALL 90 $7,964.89 $1,432,588,706
FOOD AT HOME 90 $4,674.68 $840,801,373
FOOD AWAY FROM HOME 90 $3,290.21 $591,787,332
ALCOHOLIC BEVERAGES 88 $505.88 $90,988,592
VEHICLE LOAN AMOUNT EXCLUDING INTEREST 93 $2,657.66 $478,014,716
VALUE OF CREDIT CARD DEBT 90 $2,197.65 $395,276,685
MORTGAGE PAYMENT AND BASICS 89 $8,975.76 $1,614,406,553
MAINTENANCE AND REMODELING SERVICES 87 $1,853.79 $333,429,069
MAINTENANCE AND REMODELING MATERIALS 96 $470.98 $84,712,396
UTILITIES, FUEL, AND PUBLIC SERVICES 92 $4,472.31 $804,402,353
MAJOR APPLIANCES 92 $325.23 $58,497,099
SMALL APPLIANCES 91 $43.99 $7,912,251
CHILD CARE 87 $445.90 $80,201,691
SOURCE: ESRI
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Retail Performance
What: Spending patterns in Oshkosh’s primary,
secondary market areas in 2019. The focus on evaluating
opportunities for businesses that are appropriate
for Jackson Street that may be a denser scale of
development. For this reason, the analysis omits fuel
stations, automobile dealers, and non-store retailers.
How: Compares actual spending to the amount
predicted based on the population and their
characteristics.
Why: To identify the market sectors that attract
spending into Oshkosh (surplus sectors) and those
market sectors where spending is not captured
(leakage or gap sectors). Interpreting this analysis can
help identify new businesses that could potentially be
supported by capturing lost spending.
Overall Market Picture
Figure 1.19 shows the magnitude of spending and
retail expectations in the market areas. Oshkosh
exceeds the total amount of retail trade and food/
drink spending that would be expected based on the
size and characteristics of the population, displayed
by Figure 2.18. Therefore, Oshkosh attracts customers
from outside the area to purchase from businesses in
the city. For a city the size of Oshkosh, this is expected.
People are mobile and satisfy their needs at competitive
locations in the Winnebago Lake region or on-line.
Households from smaller communities and rural areas
rely on commercial centers in larger cities for more
significant purchases that are not available in their
communities. These same households also likely go to
larger cities for specific entertainment and recreation
options.
The broader market area beyond Oshkosh also
draws more spending than would be predicted by its
population. However, the secondary market area shows
leakage of food and drink spending while Oshkosh
shows a surplus. Or rather, Oshkosh draws a portion
of food and drink consumers from the secondary
market area. The food and drink sector appears to
be an opportunity for Oshkosh. Consumables cannot
be easily ordered online and are most conveniently
purchased locally. On the other hand, the local student
population could be a driving factor for why Oshkosh
has a significant surplus in sales versus the secondary
market leakage.
Translating Gaps to Opportunities
Opportunities can exist in two forms from this type of
gap-analysis:
• Filling a gap to capture dollars that are currently
leaking from the market area;
• Reinforcing an existing market stronghold to
become a destination for a particular category or a
series of complementary market sectors;
• Creating a new market by providing establishments
or centers that attract people who are already in
the area and create a unique environment.
In areas where the combined total market exhibits
an overall leakage, these areas may represent an
opportunity for a new or existing business to fill the gap.
In other words, a leakage means that demand is not met
and thus, residents must travel for a specific good or
service. Realistically, any market cannot capture 100% of
the market demand. An example of the potential market
opportunity in built form is illustrated by this realistic
and sustainable projection assuming:
• Primary Market Capture: 20% of Spending
• Secondary Market Capture: 10% of Spending
(assumes no tertiary market capture)
• Business Viability Threshold: $300 per Square Foot
• Typical Storefront Size: 1,200 square feet
Of course, each business and market sector is unique.
The purpose of this illustration is to provide a high-
level overview of spending patterns. This should not
substitute for a business plan or additional research.
Lacking Categories
Lacking categories can offer a point of opportunity
to fill local gaps in available businesses. However, in a
metropolitan region as relatively accessible and diverse
as that surrounding Lake Winnebago, certain businesses
may find an establishment in Oshkosh difficult with
competitors and commercial clustering relatively close
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ENVISIONING NORTH JACKSON
for most of the population. There are two levels of
lacking categories that are important to understand for
Oshkosh and the opportunities they present.
1. Sectors where households in Oshkosh travel
elsewhere in the market area for purchases. A
local option is more viable for a business that sees
regular and routine purchases from households.
• Furniture & Home Furnishings Stores
• Other General Merchandise Stores
2. Sectors where households travel outside the entire
market area for purchases. Businesses lacking in
the whole market area are opportunities for new
establishments locally. Households appear to travel
for purchases to other areas that are relatively
further away.
• Specialty Food Stores
• Beer, Wine & Liquor Stores
Attracting Categories
Attracting categories means the area draws in more
spending that would be supported by the local
population. Therefore, households are coming to
Oshkosh or the market area to purchase goods.
Attracting sectors result from a variety of factors,
including the number of nearby smaller communities,
the proximity of other metropolitan centers, travel
times, and the necessity of the purchase. There are two
levels of attracting categories that are important for
Oshkosh and the opportunities they present.
1. Sectors where households travel to the market area
for purchases. There are items in the market area
that are unavailable where these households live.
• Most general retail establishments such as:
»Electronics and appliance stores
»Building materials and supply stores
»Grocery stores
»Health and personal care stores
»Clothing stores
»Sporting goods
»Department stores
»Drinking places
2. Sectors where households travel to Oshkosh or
other areas outside of the total market area to make
purchases. The retail potential in the secondary
market area is leaking sales to other areas. Thus,
Oshkosh attracts some spending from the broader
market area.
• Food Services & Drinking Places
• Restaurants/Other Eating Places
• Lawn & Garden Equip & Supply Stores
• Other Miscellaneous Store Retailers
MARKET CONCLUSIONS
Probable trends indicate that Oshkosh will continue
to grow steadily but modestly, growing, along with its
economy and housing market. This market analysis
suggests:
• Presence of a strong middle-class population of
working households.
• A need for housing at market rate price points.
• Competition from several activity centers and
commercial developments in the surrounding area,
but the presence of some strong sectors that draw
people to Oshkosh.
• Some commercial gaps that could be filled in
Oshkosh, but not at a significant scale in the near
term.
Jackson Street could focus on higher quality
developments on vacant land that centralize at collector
street intersections. These intersections should also
connect with residential neighborhoods and parks to the
north and south, as well as schools to become walkable
neighborhoods and commercial centers. Incremental
development builds the character of Jackson Street
overtime should transform the corridor into a pleasant
mix-use gateway into the central city.
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FIGURE 2.18: Retail Performance in the Market Area, 2019
CITY SECONDARY MARKET
INDUSTRY SUMMARY 2017 DEMAND (RE-
TAIL POTENTIAL)
SUPPLY (RETAIL
SALES)RETAIL GAP DEMAND (RE-
TAIL POTENTIAL)
SUPPLY (RETAIL
SALES)RETAIL GAP
TOTAL RETAIL TRADE AND FOOD & DRINK $759,645,841 $1,188,050,811 -$428,404,970 $5,381,186,280 $6,629,578,793 -$1,248,392,513
TOTAL RETAIL TRADE $686,941,711 $1,068,752,738 -$381,811,027 $4,867,691,990 $6,139,608,317 -$1,271,916,327
TOTAL FOOD & DRINK $72,704,130 $119,298,073 -$46,593,943 $513,494,290 $489,970,476 $23,523,814
TOTAL ADJUSTMENT (NO GAS STATIONS, AUTO DEALERS, NON-
STORE RETAIL)$521,588,155 $803,239,902 -$281,651,747 $3,691,270,318 $4,739,424,942 -1,048,154,624
RETAIL ADJUSTMENT (NO GAS STATIONS, AUTO DEALERS, NON-
STORE RETAIL)$448,884,025 $683,941,829 -$235,057,804 $3,177,776,028 $4,249,454,466 -$1,071,678,438
MOTOR VEHICLE & PARTS DEALERS $147,425,010 $216,837,809 -$69,412,799 $1,054,366,577 $1,472,146,742 -$417,780,165
AUTOMOBILE DEALERS $116,853,611 $181,852,541 -$64,998,930 $834,284,546 $1,175,380,117 -$341,095,571
OTHER MOTOR VEHICLE DEALERS $18,722,176 $18,548,921 $173,255 $136,249,940 $146,834,424 -$10,584,484
AUTO PARTS, ACCESSORIES & TIRE $11,849,223 $16,436,347 -$4,587,124 $83,832,090 $149,932,201 -$66,100,111
FURNITURE & HOME FURNISHINGS $21,935,608 $11,697,697 $10,237,911 $156,502,161 $215,646,190 -$59,144,029
FURNITURE STORES $13,318,765 $5,374,054 $7,944,711 $93,056,765 $167,201,496 -$74,144,731
HOME FURNISHINGS STORES $8,616,843 $6,323,643 $2,293,200 $63,445,396 $48,444,693 $15,000,703
ELECTRONICS & APPLIANCE STORES $22,521,402 $48,612,627 -$26,091,225 $158,121,480 $167,458,017 -$9,336,537
BLDG MATERIALS, GARDEN EQUIP. & SUPPLY STORES $45,477,539 $122,235,271 -$76,757,732 $339,957,257 $461,675,102 -$121,717,845
BLDG MATERIAL & SUPPLIES DEALERS $40,814,723 $115,383,837 -$74,569,114 $305,348,193 $434,738,190 -$129,389,997
LAWN & GARDEN EQUIP & SUPPLY STORES $4,662,816 $6,851,434 -$2,188,618 $34,609,064 $26,936,912 $7,672,152
FOOD & BEVERAGE STORES $108,132,659 $108,532,930 -$400,271 $754,176,134 $845,700,764 -$91,524,630
GROCERY STORES $94,314,513 $102,803,543 -$8,489,030 $657,431,439 $755,517,043 -$98,085,604
SPECIALTY FOOD STORES $7,785,638 $3,468,240 $4,317,398 $54,292,410 $52,540,098 $1,752,312
BEER, WINE & LIQUOR STORES $6,032,508 $2,261,147 $3,771,361 $42,452,285 $37,643,623 $4,808,662
HEALTH & PERSONAL CARE STORES $43,929,479 $68,942,138 -$25,012,659 $308,656,997 $321,587,021 -$12,930,024
GASOLINE STATIONS $82,729,575 $91,462,716 -$8,733,141 $578,146,981 $539,176,784 $38,970,197
SOURCE: ESRI
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FIGURE 2.18: Retail Performance in the Market Area, 2019
CITY SECONDARY MARKET
INDUSTRY SUMMARY 2017 DEMAND (RE-
TAIL POTENTIAL)
SUPPLY (RETAIL
SALES)RETAIL GAP DEMAND (RE-
TAIL POTENTIAL)
SUPPLY (RETAIL
SALES)RETAIL GAP
CLOTHING & CLOTHING ACCESSORIES STORES $28,982,555 $52,586,806 -$23,604,251 $204,671,155 $231,301,817 -$26,630,662
CLOTHING STORES $18,958,487 $27,785,113 -$8,826,626 $133,344,703 $156,647,583 -$23,302,880
SHOE STORES $4,193,223 $17,852,701 -$13,659,478 $29,806,986 $35,741,478 -$5,934,492
JEWELRY, LUGGAGE & LEATHER GOODS STORES $5,830,845 $6,948,992 -$1,118,147 $41,519,466 $38,912,756 $2,606,710
SPORTING GOODS, HOBBY, BOOK & MUSIC STORES $17,551,542 $40,353,803 -$22,802,261 $124,266,752 $161,698,854 -$37,432,102
SPORTING GOODS/HOBBY/MUSICAL INSTR STORES $14,702,727 $30,558,243 -$15,855,516 $104,817,574 $149,867,090 -$45,049,516
BOOK, PERIODICAL & MUSIC STORES $2,848,815 $9,795,560 -$6,946,745 $19,449,178 $11,831,764 $7,617,414
GENERAL MERCHANDISE STORES $121,634,610 $127,670,359 -$6,035,749 $857,317,331 $1,482,758,254 -$625,440,923
DEPARTMENT STORES EXCLUDING LEASED DEPTS.$92,265,850 $117,945,639 -$25,679,789 $650,950,451 $1,009,355,270 -$358,404,819
OTHER GENERAL MERCHANDISE $29,368,760 $9,724,720 $19,644,040 $206,366,881 $473,402,984 -$267,036,103
MISCELLANEOUS STORE RETAILERS $26,869,408 $86,873,851 -$60,004,443 $190,274,670 $211,696,247 -$21,421,577
FLORISTS $1,241,640 $5,138,788 -$3,897,148 $9,278,835 $7,913,126 $1,365,709
OFFICE SUPPLIES, STATIONERY & GIFT STORES $6,195,963 $13,540,739 -$7,344,776 $43,939,597 $41,457,810 $2,481,787
USED MERCHANDISE STORES $6,026,546 $5,111,648 $914,898 $42,108,938 $84,112,703 -$42,003,765
OTHER MISCELLANEOUS STORE RETAILERS $13,405,259 $63,082,676 -$49,677,417 $94,947,301 $78,212,607 $16,734,694
NONSTORE RETAILERS $19,752,324 $92,946,731 -$73,194,407 $141,234,495 $28,762,526 $112,471,969
ELECTRONIC SHOPPING & MAIL-ORDER HOUSES $15,984,177 $91,255,933 -$75,271,756 $113,993,834 $13,530,564 $100,463,270
VENDING MACHINE OPERATORS $1,468,377 $656,524 $811,853 $10,279,128 $8,713,617 $1,565,511
DIRECT SELLING ESTABLISHMENTS $2,299,770 $1,034,274 $1,265,496 $16,961,534 $6,518,346 $10,443,188
FOOD SERVICES & DRINKING PLACES $72,704,130 $119,298,073 -$46,593,943 $513,494,290 $489,970,476 $23,523,814
SPECIAL FOOD SERVICES $1,800,632 $1,037,150 $763,482 $13,005,400 $5,567,133 $7,438,267
DRINKING PLACES - ALCOHOLIC BEVERAGES $5,219,769 $10,421,883 -$5,202,114 $36,942,859 $40,350,362 -$3,407,503
RESTAURANTS/OTHER EATING PLACES $65,683,729 $107,839,040 -$42,155,311 $463,546,031 $444,052,982 $19,493,049
SOURCE: ESRI
37
ENVISIONING NORTH JACKSONENVISIONING NORTH JACKSON
This chapter introduces a new approach to urban corridors like the Jackson Street study
area. This approach that we call “corridor urbanism “ grows from and respects the character
and economy of the corridor, but integrates the quality of place and urban interaction that
characterizes other neighborhoods in Oshkosh.
3/CORRIDOR URBANISM AND JACKSON
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ENVISIONING NORTH JACKSON
CORRIDOR URBANISM:
Guiding Principles for North Jackson
Jackson Street north of Murdock includes both
areas that are substantially built-up and others that
remain open or built at very low density, with many
possibilities for future change. Both of these exist
along a corridor whose dominant feature is a multi-
lane, relatively high-speed roadway. The objective of
this plan is to use property effectively in a way that is
consistent with both precedents and contexts. But it is
also committed to creating a framework for a different
types of urban environment – one that is substantially
better, more efficient, more pleasant, and ultimately
more productive than the relatively uncontrolled nature
of most auto-dominated urban corridors in America.
We have developed the concept of Corridor Urbanism
to establish guiding principles that will create better
environments out of these ubiquitous parts of our cities.
Unfortunately, most of the philosophies of urban
development that have emerged during the last 150
years to guide the nature and growth of American cities
are not relevant to urban corridors like Jackson Street.
Many of these ideas grew out of reform movements,
designed to change the natural or technological
directions that cities had moved in. For example, the
City Beautiful movement of the nineteenth century
sought to bring a sense of order and aesthetic beauty to
the clutter of the industrial city of that era. The Garden
City movement of the same era and extending into
the 1920s, combined the priorities of social and public
health reformers with landscape architecture to create
an ideal suburban alternative to the conditions of big
cities struggling to accommodate both industrialization
and waves of immigration. The concept of Euclidean or
single-use zoning, also grew out of these same reform
movements, designed to remedy the health and safety
threats presented by locating industrial and residential
uses in the same areas and inadequate light, sanitation,
and ventilation. Urban renewal, as it emerged during the
1960s and 1970s, assembled land and reorganized small
blocks and unused areas into large sites that were then
redeveloped for large scale private and public projects.
This approach was used to help develop Oshkosh’s
riverfront.
More recent philosophies of community design have
also grown to change the prevailing pattern of urban
development. New Urbanism developed “to offer
alternatives to the sprawling, single-use, low-density
patterns typical of post-World War II development, which
have been shown to inflict negative economic, health,
and environmental impacts on communities.”
These urban philosophies and others have been very
influential, even when not fully implemented. For
example, contemporary “life style centers” (like Bayshore
in the Milwaukee area) with street-oriented shops and
restaurants have presented an alternative to the regional
mall. In Oshkosh, a project like Morgan Crossing with
a strong street facade and parking behind implements
some of the principles of New Urbanism. These projects,
when well-executed, provide environments that are a
New Urbanism. From left: Bethesda Crescent, Bethesda, MD; Morgan Crossing Apartments in Oshkosh
delight and demonstrate principles of good design. But
low-density development and the automobile strip like
Jackson Street remain dominant, and these forms and
their establishments generate other uses and service
requirements that our current ideas of urbanism fail to
address. The strip continues to challenge – specifically,
how can we apply the compelling principles of
contemporary design and land use philosophies to these
ubiquitous cityscapes in general and to the Jackson
corridor in particular.
We find considerable insight in the iconic 1972 volume
Learning from Las Vegas by Robert Venturi, Denise
Scott Brown, and Steven Izenour:
The commercial strip challenges the
architect to take a positive, non chip-on-
the-shoulder view. Architects are out of
the habit of looking non-judgmentally
at the environment because orthodox
Modern Architecture is progressive, if
not revolutionary, utopian and puristic;
it is dissatisfied with existing conditions.
Modern architecture has been anything
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ENVISIONING NORTH JACKSON
but permissive. Architects have preferred
to change the existing environment rather
than enhance what is there.
Venturi (1925-2018) developed the idea of post-
modern architecture, incorporating cultural allusion,
symbol, and humor into buildings. In Learning from
Las Vegas, the authors take on the Las Vegas strip
and other commercial corridors on their own terms,
as environments that are “almost all right” rather than
impositions on the environment that should be either
transformed or rejected. This leads to an integrative
approach that “enhances what is there” rather than
trying to make it something else. We call this approach
Corridor Urbanism, with ideas and principles that apply
directly to Jackson Street, and to the preferences
identified by stakeholders through the visual survey
discussed earlier.
THE CORRIDOR AS AN
OPPORTUNITY
Corridor Urbanism considers some of the intrinsic
characteristics of the corridor as the keys to making it
a successful and sustainable environment. The Jackson
Street study area, like most other long commercial
corridors, uses land inefficiently, and the amount of its
total area that is actually in its intended primary use
(that is housing human enterprise and activity rather
than the movement and storage of cars) is actually
very small. The study area also has large areas of
undeveloped property north of Packer, and unifying
principles can help direct the ultimate development
of those available sites. Of particular importance is
land around the I-41 interchange and related to the
Winnebago County Park and Fairgrounds.
The Jackson Street corridor’s features can also help
evolve it into an urban environment with greater
vitality that serves its users and helps build adjacent
neighborhoods. Some of these features include:
• Business and destination mix. While assets are
relatively dispersed and separated from one
another, the eating and drinking places, Fairacres
Shopping Center, smaller centers and free-standing
retailing, schools, service businesses, and the
County Park are precisely the destinations that
people want to live near.
• Underused land. Some oversized parking lots and
significant tracts of open land provide significant
possibilities for an emerging growth corridor.
• Job centers. Adjacency to industrial areas and
significant employment centers creates a potential
demand for nearby residential neighborhoods
by virtually eliminating commuting time, but also
raises issues of proper buffering and separation of
potentially incompatible uses.
• Substantial open space and linakges. Winnebago
County Park is a major asset for the study area but
underscores the importance of convenient, safe
pedestrian and bicycle connections from residential
areas. Parallel Main Street, with bike lanes, helps
provide parallel connections to the park, but
is located on the industrial side of the study
area. But the Main Street bikeway also connects
to Downtown, especially important because
Jackson south of Murdock is not wide enough to
accommodate bike traffic even with a proposed
lane reduction.
• Street width and area. Jackson Street itself is a
five-lane or divided major arterial with sufficiently
friction-free traffic flow to generate relatively
high speeds. It has sidewalk coverage limited to
the Murdock to Smith Avenue segment, and that
narrow, back-of-curb sidewalk is uncomfortable
for many users and especially difficult for people
with disabilities. However, building setbacks and
open areas along the street frontage provide the
Jackson Street north of the Murdock roundabout. Survey participants expressed a consistent preference for a different
kind of street and development environment.
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REALITY AND RESPECT
Respect existing businesses and build on the historic
character of the corridor
The Jackson Street corridor is a substantial economic
entity in its own right, both from a neighborhood
services and industrial development point of view.
Preserving and expanding that economic life is a
primary objective of this plan. The corridor also can
provide fertile ground for new enterprises with available
and has retained a high degree of dynamism. It is
important to recognize the integrity and importance of
existing businesses. In some cases, where aspects of
the use are incompatible with surrounding dominant
uses (such as extensive open storage in an otherwise
residential area) sites should be available for alternative
locations.
View change as evolutionary and generally market
driven.
Cities and corridors are long-term processes. Jackson
Street includes a number of property owners and
businesses, all making individual decisions. Thus,
the term “master plan,” which implies a controlling
presence, does not apply well to such a diverse urban
district. In such an environment, a plan that wills things
to be done in the face of economic and market drivers
rarely succeeds. Change when it comes is and should be
incremental and occurs over a long period of time.
Use this plan as a tool to guide that evolution.
Jackson Street, like other corridors, has diverse
ownership and actual change will take place through
individual decisions responding to markets, trends, and
goals at the time. A plan like this provides a unifying
framework for these individual decisions. Its concepts
on private property illustrate general guidelines,
possibilities rather than specific redevelopment
proposals, and proposed relationships between
buildings and sites. The plan becomes somewhat more
specific when it addresses public realm investments
and the interface between the public and private
environment. But this and other corridor plans should
be viewed as organic and flexible, rather than static and
“designed.”
opportunity to improve this condition and create a
more comfortable setting.
THE CORRIDOR URBANISM
APPROACH
Corridor Urbanism applied to the Jackson Street study
area between Murdock and I-41 should ultimately
incorporate appropriately mixed land uses, connectivity,
street quality, density, and civic life articulated in
New Urbanism and the concept of understanding and
planning/building within a community context and
economy. Corridor Urbanism then constructs a model
of principles, born from and guiding the more detailed
elements of the plan for this study area, but which
also applies to other urban corridors. The Five broad
categories of guiding principles include:
• Reality and Respect
• Resident Population
• Opportunities
• Transportation Function and Choice
• Urban Environment
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RESIDENT POPULATION
Gradually increase the number of people living in and
immediately around the corridor.
Residential development has been very important to the
revitalization of Downtown Oshkosh and is also highly
relevant to the future development of the Jackson Street
study area. The relatively convenient availability of retail
assets, eating and drinking places, and transportation
support housing of various densities, and housing adds
neighborhood character that typical commercial strips
lack. Also, with the decreasing demand for brick and
mortar commercial, residential growth provides a great
potential for reuse of land. There is already significant
residential development around Jackson Street and
some contemporary development, including Jackson
Square and the Courtyard at Oshkosh. But north of
Packer Avenue, residential development becomes far
more spotty and in contained subdivisions like North
Park Estates. Open land along and near Jackson has the
capability of filling some of these gaps.
Work toward an environment where a growing
population can comfortably walk, bike, or use other
active modes to travel to corridor destinations
While commercial corridors lack the intimacy of
“traditional” business districts, mixing residential,
commercial, office, and employment uses can create
highly walkable and bikeable environments with
supporting infrastructure such as good quality and
comfortable walking and shared use paths. The
corridor’s character can generate a large number
of potential trips under one mile, making low-cost
alternative modes feasible. We often think of corridors
in terms of long-distance linear modes: traffic arterials
and rapid transit. But the short local trip is also a
significant component and diverting more of these trips
to active modes creates real benefits.
Include a variety of housing types attainable by a
range of people.
The concept of “attainable” housing, a principal
community goal, requires diverse housing types that
meet the needs of different people and household
types. Housing in and around the corridor should not
be a housing “monoculture.” It should have the capacity
to accommodate households with people of all ages,
including the emerging market of families with young
children.
OPPORTUNITY AND
ORIENTATION
Take advantage of opportunities such as underused
parking lots, vacant sites, obsolete buildings, and
marginal uses.
Evolutionary change should occur naturally through
voluntary action rather than disruption. But opportunity
sites along Jackson are abundant and can be used
in ways that reinforce existing development and
neighborhoods. For example, large parking lots at
shopping centers responded to zoning or tenant
demands based on a few peak days that are no longer
applicable. In addition to their unproductive use of
land, these sites also maximize environmental impact.
More efficient site design and shared access can open
other development possibilities, and some uses are
economically viable because of low land costs or rents.
Effective reuse of these land resources is an imporatnt
goal of this plan.
Develop new projects that fill gaps.
Low building coverage, oversized parking lots,
lack of relationships between buildings, and lack
of connectedness create gaps in the continuity of
a corridor. These disconnected destinations fail to
reinforce each other, But gaps also create opportunities,
where new commercial, office, or residential
ENVISIONING NORTH JACKSON
42 43
ENVISIONING NORTH JACKSON
TRANSPORTATION FUNCTION
AND CHOICE
Fix functional transportation problems, addressing
capacity, access, and parking needs that exist today.
An important principle of the Corridor Urbanism
concept is to understand that despite the value of
alternative transportation modes to a city, private
automobiles will remain the primary means of
transportation. Thus, the strategy must address
functional and operational issues and make sure the
street works effectively and safely for its users. Clearly
Jackson Street operate at a very high “level of service”
and has substantially more capacity than volume. The
median between Murdock and Smith controls access
well in the most built-up portion of the corridor, But
continued potential problems include mixing of local
and through traffic, relative difficulty in crossing the
street between signalized intersections, managing
and aligning access points, and addressing excessive
speeds.
Create a web of streets and alternative routes.
An effective way of managing traffic conflicts and
hazards is the development of a system of local
streets that connect and serve destinations along
the corridor. This separates lower speed and turning
traffic from through movements, reducing friction and
enhancing safety. Despite some discontinuities, the
street grid south of Packer Avenue distributes local
traffic relatively well. But access to more dispersed
and separated development along the north segments
of the corridor depends on Jackson Street. With new
growth, this local web of streets should emerge to serve
new neighborhoods and reduce dependence on the
main line. This network, including parallel circulators
and cross-connections, also helps provide adjacent
development possibilities that can reduce the need for
auto travel and increase use of active modes.
Provide sidewalk and off-road, shared use path
development can connect otherwise separated
businesses. This helps create the sense of a mutually
reinforcing district where one stop can serve multiple
destinations.
Increase a limited number of new street connections
and points of orientation to decrease the length of
undifferentiated stretches of road and land use anmd
the need for individual driveway accesses.
Corridors like Jackson Street can be disorienting,
especially when intersections are few as in the segment
north of Packer Avenue. These corridors often lack
landmarks or nodes of different densities that aid in
orientation and access. Even local residents can miss
their destinations or lose track of their location. A
lmited number of functional new street connections
can manage access, reduce the need for individual curb
cuts, improve wayfinding, and provide opportunities for
landmarks and nodes for higher-density development.
continuity to link present and future residents
with each other and corridor stores, restaurants,
workplaces, schools, and public space.
An important benefit of corridor urbanism is the
ability to use alternative means (walking, biking, or
“scootering”) to travel from living places to other
destinations within the corridor, or from other parts
of the city to corridor destinations. Most of these
internal trips will be less than two miles. This requires
a robust, and barrier- and stress-free access network.
Reasonable sidewalk continuity along the corridor is a
minimum requirement, but a continuous off-street or
even protected component that provides direct access
to destinations is critical. The concept of a local network
paralleling the main corridor also provides safer and
more comfortable possibilities for pedestrians and
bicyclists.
The Jackson corridor has some significant resources,
including the County Park and its path system between
Snell and Sunnyview, the Main Street bike lanes between
Downtown Oshkosh and Snell, and the Sunnyview
shared use path between Route F and the park. These
can be integrated into a connected system that can
serve both existing and future residential development.
Integrate public transportation into the corridor when
appropriate.
Transit should be considered as an important
component of mixed use planning of long urban
corridors. Trip categories for transit and active modes
are analogous, including both relatively short trips
between origin points and destinations both along and
off the corridor.. However, regional public transportation
adds another potential trip type – the commuter trip
originating from residents on or near the corridor
to outside destinations such as workplaces or other
regional centers. GO Transit’s Route 10, which operates
on 90 minute headways, reflects this kind of regional
service. It is currently being evaluated to provide more
effective and efficient tramsit serving both Oshkosh and
Neenah/Fox Cities.
ENVISIONING NORTH JACKSON
44
ENVISIONING NORTH JACKSON
includes significant industrial use.
Careful site planning and a sensitive regulating plan can
address these different needs and avoid both extremes
of injecting apartment buildings unceremoniously into
parking lots and separating adjacent uses by walls
and buffers. These techniques and regulations should
provide connectedness without conflict through such
techniques as:
- Using public environments like public open space,
interior streets or drive aisles with a residential street
character, and trail and greenway corridors to separate
residential and commercial uses.
- Creating neighborhoods that cluster buildings that
relate to surrounding commercial development but
provide enough critical mass and common space to
form an interior residential refuge.
- Orienting commercial and residential service areas
toward each other, or locate commercial service areas
in places that avoid impact on neighboring residential
development.
- Placing lower-density residential farther away from the
main street and close to pre-existing neighborhoods.
- Managing the size and visibility of commercial signage,
focusing signage toward the main corridor.
Create personality, texture, and social space.
Traditional commercial strips developed as corridors to
drive through or to a single destination. A few, like the
Las Vegas strip or Ventura and Sunset Boulevard in Los
Angeles, do create a unique image and sense of space,
but most corridors are generic. Consequently, they
rarely include public space or human-scaled elements.
Corridor urbanism envisions the strip itself as a place,
and part of that is achieved by creating individual
character and amenity areas along the way.
On Jackson Street, logical locations for these special
places include trail access points, stormwater
management areas, and intersections.
URBAN ENVIRONMENT
Build a quality environment that is rewarding to
people traveling at different speeds, from 3 to 50
mph.
People experience urban corridors at different speeds
and our visual perception of the physical environment
changes with those speeds. Most corridors (including
Jackson Street north of the Murdock roundabout)
are scaled to motorist speeds, and lack the detail and
quality necessary to engage pedestrians. Even an
unattractive streetscape can be tolerable to drivers
who have a relatively narrow cone of vision and will not
be spending much time in any one location. The street
environment then should be engaging at three basic
speed levels: pedestrians (3 mph), scooters and bicycles
(12 mph), and motorists. However, people at all speeds
require nodes and visual rhythm that provide both
interest and orientation along the street.
Be certain that the environment responds to the needs
of both residents and businesses, and establishes a
fabric based on connectedness.
Introduction of residential uses into what is normally
a commercial environment is essential to the concept
of corridor urbanism. Residential use fills in the gaps
in commercial strips, provides interest and continuity,
and furnishes a customer base for businesses. Yet,
business and residents have individual requirements
that are sometimes in conflict. Businesses need parking,
exposure, identification signs, lighting, and service
areas, while residents need urban fabric, calmer streets,
landscape, walkways, and, for many, a reasonable level
of peace. These conflicting needs lead to the physical
separation and buffering of uses that are typical of
single-use zoning districts. And this physical separation
can defeat the idea of corridor urbanism. In a way,
some projects like Jackson Square and surrounding
developments are addressing the issue of introducing
housing into a very mixerd environment that also
Places for placemaking. Intersections like Snell and
Smith with significant green space provide opportunities
for creation of both aesthetic and social space.
ENVISIONING NORTH JACKSON
44 45
ENVISIONING NORTH JACKSON
Secondary street network
Access management route
Continuous active transportation
Multi-modal street
Larger scale industrial
Viable existing development
Viable existing development
Enterprise industrial/commercial
Urban places and commercial at
major intersections
New largely residential development with a
range of densities.
Improved street environment
with continuous sidewalks
Corridor Urbanism on Jackson Street. This diagram
describes how the major principles of Corridor
Urbanism combine to create a vision for an economically
and environmentally sustainable Jackson Street.
Components include mixed use infill with a major
residential component on underused land and
excessively large parking lots; a system of secondary
connections to serve local traffic and expand points of
orientation; access management; major urban places at
key intersections; an improved functional and aesthetic
street environment; and a continuous pedestrian and
bicycle system that connects everything together.
It bears repeating the building a resident population
is a key unifying priority of a plan that harmoniously
connects the commercial, industrial, and civic
environments. A major avenue toward commercial
development is building a customer base with easy
auto-free access to businesses. And, conversely, active
and diverse retail, service, and hospitality businesses,
combined with quality residential development, But
unusually, the Jackson study area is also an enterprise
corridor with major employment centers. Integrating
neighborhoods into that framework provides jobs
virtually next door to neighborhoods, reducing
commute time to almost nothing. This concept depends
on walkway and path continuity along the entire
corridor. This should be provided with facilities that
are safe and comfortable for users and do not require
significant detours or misdirections.
Corner Place example. 69th Street Plaza
in Wauwatosa, WI
47
The principles of Corridor Urbanism are derived from the contexts and
opportunities presented by the Jackson corridor but provide a model that
is relevant to other corridors seeking redirection in a dramatically changing
commercial economy. This chapter applies the principles more specifically to the
corridor and addresses three interacting factors: development, urban design,
and access. The access framework considers transportation and connectivity; the
development framework addresses possibilities and patterns for land use and
new development; and the urban environment describes community and public
space, with all three frameworks interacting to create a unified urban corridor.
4/THE FRAMEWORK PLAN
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ENVISIONING NORTH JACKSON
THE LAND USE
FRAMEWORK
Development along the Jackson Street corridor has
been and will continue to be an incremental process.
North of Packer Avenue, where the study area changes
to a more open character with extensive tracts of
public land, including Winnebago County Park, the
Fairgrounds, the county landfill, and the Oshkosh
Correctional Institution, the study area is still evolving.
This section establishes a guide for that continued
evolution that gradually, through market forces and
individual, voluntary actions can lead to a new kind
of connected, mixed use Jackson Street corridor. The
framework is based on an overall assessment of the
long-term viability of different types of occupancy,
the conditions of sites and buildings, and the effects of
changing market forces on different types of land uses
and demands for them. This assessment is in turn based
on several overriding trends:
1. The growth projections and policies contained in
the city’s 2018 comprehensive plan project a 2040
population of about 73,800 and an increase of about
2,400 households. Assuming a replacement need
of about 30 units annually, or 600 during a 20 year
planning period, this generates a total demand for about
3,000 new units or 150 units per year. Housing policies
contained in the comprehensive plan and relevant to
potential development in the Jackson corridor include:
• Developing a variety of housing types to meet
unmet needs.
• Ensuring an adequate supply of all types of
residential densities to meet current and projected
demand.
• Encouraging a mix of lot sizes and housing types as
reflected in the Traditional Neighborhood Zoning
District in development.
• Promote opportunities and programs to provide
owner and rental options for all income levels.
A substantial amount of this housing will be in medium-
density settings, including small-lot single family,
attached units like townhouses, low- and mid-rise multi-
family apartments, and innovative residential settings.
The Covid pandemic could have a significant impact
on housing preferences, leading to configurations
with fewer common areas and corridors and more
independent entrances and surrounding outdoor space.
2. The market analysis presented in Chapter Three
indicates a declining medium- and long-term demand
for some kinds of commercial land and square
footage, partially but not totally offset by population
growth. This decline in the immediate corridor market
has a number of causes, including existing regional
retail destinations, the increasing prevalence of on-
line retailing, and the declining market for older strip
centers. This, coupled with substantial housing demand
during the next two decades, suggests a significant
probability of converting some current land previously
thought to be “commercial” may have more potential
for residential development. On the other hand, in a
post-Covid world, an expanded activity program for the
Fairgrounds could generate new demand for lodging
and traveler services at the interchange.
3. The Jackson Street study area is unusual among
urban corridors for its diversity of uses, including its
substantial industrial component and large scale,
land -intensive public facilities. The integration of
work, living, shopping, and recreational environments
opens unusual possibilities. There also are strategic
opportunities available by using surplus, hard-surfaced
areas in excessively large parking lots like the Vincent
de Paul store or smaller developments that paved their
sites as a low-maintenance default option.
4. Transportation preferences in Oshkosh may
continue to evolve during the next twenty years.
Bicycle transportation is a significant travel mode in the
city that may increase with the introduction of e-bikes,
bringing cycling within the physical capabilities of more
people*. GO Transit has half-hour service on some parts
of the Jackson corridor. Electric scooters and other
personal mobility devices may increase in popularity,
while the effect of electric and autonomous vehicles
on urban land needs is uncertain. Finally, personal
preferences and legislative mandates that respond
to greenhouse gas emissions and climate change
may also have a profound effect on transportation in
future years. One common trend is likely though – the
amount of land devoted to the circulation and storage
of personal vehicles is likely to decrease significantly.
And many alternative modes are especially well-suited
to shorter trips and greater adjacency of residential
uses, entertainment venues, and commercial and office
services.
5. These collective forces increase demand for greater
land efficiency and higher value to land area ratios. The
resulting market forces will tend to increase pressure
on space intensive lower-yield land uses such as small
single-level strip centers, free-standing offices and
retail, and some automotive uses to convert to higher
intensity development.
LAND USE STRATEGIES
The following pages display diagrams and strategies
for each segment of the study area. They include
illustrative plans that display potential land use and
general policy objectives and more specific guidance
for potential development sites. They are followed by
a transportation framework that displays a conceptual
circulation network that supports the land use plan.
* In general, pedal-assist (or Class 1) e-bikes that require the
rider to pedal and to not provide motor assistance over 20
mph are permitted on most shared use paths.
49
ENVISIONING NORTH JACKSONENVISIONING NORTH JACKSON
These frameworks are not intended to be literal
prescriptions or detailed plans, but instead graphically
illustrate desirable diagrams and connections to guide
future individual and community decisions. The site-
specific guidelines use terms that require further
elaboration, presented here:
• Conventional and small lot single-family
residential. Current single-family development in
and around the study area includes subdivisions
like North Park Estates, with detached houses on
lots that range from 6,000 to 10,000 square feet.
In new developments, single-family homes on lots
less than 5,000 square feet (a net average density
of about 8 units per acre), or single-family semi-
attached or attached units, typically on individually
described lots and connected by garages or a
common wall (an average net density of about 12
units per acre) can reduce public improvement
costs per unit. In the study area concept,
conventional and small lot single-family area is
used in new subdivisions. Conventionally sized lots
border on pre-existing residential development,
with small lots as transitions to higher densities or
in the interiors of potential development.
• Medium-density residential. Attached units,
including townhomes and small multi-family
buildings, with net densities in the range of 12 to
24 units per acre. This form of development can
appeal to households of a variety of ages but
with small yards and shared covered parking, can
provide an attainable option for households with
young children, a growing demographic at this
specific point. These units can help fill the so-called
“missing middle” gap in contemporary housing
markets. The development framework proposes
this concept on sites that provide enough area
for self-contained clusters and linkages to other
community features, including schools, commercial
development, and parks and playgrounds.
Small lot single family. Florida Way, Fayetteville
Mixed use concept. Wauwatosa, WI
Medium-density residential. Gray’s Station, De Moines
Medium-density residential. Culver City, CA
• Multifamily residential. Multi-level residential
buildings, which in Oshkosh are most commonly
two or three levels of living units with net densities
in the range of 16 to 40 units per acre, or in senior
settings. Most multi-family suggested here assumes
surface parking, but “podium parking” with parking
under residential levels minimizes surface parking.
As a general rule, one level of parking that extends
for the full building footprint supports three
residential levels. On sites along or near the street
corridors, multi-family may be integrated into
mixed use projects (see below).
• Mixed use development. Mixed use projects
are typically shown on sites that include 1)
redevelopment of excessively large parking
lots, 2) future redevelopment of low-intensity,
high vacancy or obsolete commercial buildings
or projects, or 3) vacant buildings or sites.
Typically, mixed use buildings involve retail,
restaurant, office, and residential uses, usually
with residential over a commercial grade level.
However, requirements that the entire footprint be
reserved for retail, restaurants, or similar uses often
create more commercial than the market supports
and require either additional surface parking or
a separate parking structure. Another option,
appropriate along the 71B corridor, locates parking
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50
ENVISIONING NORTH JACKSON
at grade under residential levels and screened by
commercial extensions appropriate to the market.
• Contemporary retail or commercial. Relatively
recent (typically post 2000) development with
landscaping and site design standards that do not
require short-term change.
• Commercial infill. Generally applies to areas where
existing uses are likely to remain but where space
exists for additional, single-level commercial
development with more efficient site design;
or sites within an existing project intended for
commercial development but not yet used for that
purpose.
• Commercial enhancement. Generally applies to
areas where existing uses are likely to remain but
where access management, cooperative parking
and site development, improved landscaping and
pedestrian connections to front doors from trails
or sidewalks are needed to help realize the corridor
vision.
• Shopping center upgrades. Improved parking
and site design, possible facade and pedestrian
improvements, and reducing unnecessary parking
to be more consistent with normal demand rather
than extremes.
• Internal streets. Driveways within projects such
as shopping centers and large mixed use projects
designed to have the character of streets with
sidewalks, street landscaping and furniture, and
limited driveway or drive aisle interruptions.
• Enterprise industrial. Industrial development,
including small industrial businesses, start-ups,
small offices, innovation space, and flex buildings
that combine office, industrial workshop, and
storage space. These are usually smaller footprint
buildings that may house multiple tenants, with
loading and parking space around them.
• Large-scale industrial. Major industries in large
footprint, usually single-story buildings. In the
immediate study area, these buildings typically
have footprints over 50,000 square feet and
occupied by a single business.
MAJOR DEVELOPMENT
CONCEPTS
• CORRIDOR ENHANCEMENT DISTRICT. This
strategy area defines a corridor improvement
project in the built-up urban portion of the study
area between Murdock and Packer Avenues.
The recommendations of this district are
designed to improve the pedestrian and street
environment, link the commercial corridor to
surrounding neighborhoods, improve access to
Oaklawn Elementary and North High School,
create significant corner features, and redevelop
opportunity sites with new residential projects. The
enhancement district also involves some redesign
and infill development on the Fairacres Shopping
Center to develop interior streets with pedestrian
access.
• INFILL DEVELOPMENT. Infill development on
small sites that are either undeveloped or currently
occupied by uses that are incompatible with the
prevailing land use is an important component
of the land use strategy. Most of these sites are
proposed for residential or neighborhood-scale
commercial development.
• NEIGHBORHOOD DEVELOPMENT. Subdivision-
scaled residential projects should connect to
and be compatible with existing residential
neighborhoods. In many cases, these new potential
areas should seamlessly extend the existing
neighborhoods that they touch and complete the
fabric of the city.
• COMMERCIAL ENHANCEMENT. Improved parking
and site design, possible facade and pedestrian
improvements, and reducing unnecessary parking
to be more consistent with normal demand rather
than extremes. New commercial in the middle of
the corridor between Packer and Road Y would
largely be oriented to neighborhood service uses,
with the exception of a significant commercial node
on the northeast quadrant of Road Y and Jackson.
• INTERCHANGE MIXED USE. The I-41 interchange
represents a major growth opportunity. In addition
to its transportation advantages, it is adjacent
to the Fairgrounds and near the County Park. A
major mixed use concept combines offices, lodging
and hospitality uses that help support expanded
Fairground use, and a residential neighborhood.
• INDUSTRIAL CORRIDOR. Industrial development
is an important existing land use and a major
component of future growth. However, industrial
must be properly buffered and limited to specific
areas, specifically the east side of Jackson
between Packer and Snell, and the railroad corridor
bisecting the section between Packer and a Fernau
extension. Smaller scale enterprise industrial
should front the Jackson Corridor, with larger scale
industrial to the east along Main Street.
• CONNECTEDNESS. Linkage of component parts
to each other and to major civic facilities is both
a transportation related recommendation and a
major part of a successful twenty year land use
plan. These connections are fundamental to taking
full advantage of the study area’s existing major
assets.
ENVISIONING NORTH JACKSON
50 51
ENVISIONING NORTH JACKSON
ENHANCEMENT DISTRICT
MID-JACKSON
NORTH PARK
INTERCHANGE
Packer Avenue
Snell Road
Road Y
Low-Density (Single-Family) Residential
Existing Land Use
Future Land Use
Low-Density (Single-Family) Residential
Medium-Density Residential
Medium-Density Residential
High-Density Residential
High-Density Residential
General Commercial
Office
Cpmmercial
Mixed Use
Industrial
Parking
Park/Public Space
General Industrial
Parks/Public Space
Public/Civic Use
Water/Stormwater Management
Indian Point Road
Murdock Avenue
LAND USE CONCEPT
The land use and transportation recommendations
are detailed in the following pages, divided into four
character segments: the Corridor Enhancement District,
the most urban part of the corridor from Murdock
to Packer; the Mid-Jackson segment from Packer to
Snell; the North Park segment from Snell to Road Y;
and the Interchange District from Road Y to I-41. Each
consideration includes land use concepts, focus areas,
and a transportation concept.
Snell Road
Road Y
Vi
n
l
a
n
d
S
t
Wi
s
c
o
n
s
i
n
Fernau Ave
Smith Ave
Ma
i
n
S
t
Ha
r
r
i
s
o
n
S
t
Indian Point Road
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52
ENVISIONING NORTH JACKSON
ENHANCEMENT DISTRICT
MID-JACKSON
NORTH PARK
INTERCHANGE
Packer Avenue
Snell RoadSnell Road
Road Y
Ro
a
d
A
Road Y
Vi
n
l
a
n
d
S
t
Wi
s
c
o
n
s
i
n
Fernau Ave
Smith Ave
Ma
i
n
S
t
Ha
r
r
i
s
o
n
S
t
Indian Point RoadIndian Point Road
Murdock Avenue
Jackson Street
Existing Major Streets
Future Major Street Extension
Complete (Multi-modal)Street
Existing Neighborhood Connectors
Future Neighborhood Connectors
Shared Use Path
Major Pedestrian Pathways
Key Pedestrian Crossings
ACCESS CONCEPT
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ENVISIONING NORTH JACKSON
Snell Roa
d
Road Y
Fernau
A
v
e
Packer
A
v
e
Vinla
n
d
S
t
Road A
Wisc
o
n
s
i
n
Fernau Ave
Smith A
v
e
Main
S
t
Harr
i
s
o
n
S
t
Indian Point Road
ENVISIONING NORTH JACKSON
54
ENVISIONING NORTH JACKSON
Fairacres Center. Redesign of
parking lot with interior streets
and sidewalks from Murdock
Avenue to center and across the
site.
Fairacres Center Additions. New
retail and multi-family on open
property at Fairacres Center
Walkway. Walk along service
drive from Viola to Fairacres
Center shops
Infill townhouses. Infill medi-
um-density residential on in-
compatible redevelopment sites
between Viola and Allen, with up
to 32 units.
Commercial infill. Small retail
building
Stormwater management
facility
Mixed use development.
Commercial with entryway
multi-family, with up to 120 units
in 3-story buildings
Office or service development.
Viola to Allen Path. Greenway
link from Allen to Viola, pro-
viding a safe path to Oaklawn
School and Fairacres Center
Stilwell Greenway. Path and
greenway connecting Stilwell
Avenue stub to Jackson. Part of
corner green space at Murdock.
Jackson Street Sidewalks. New
6’ clear sidewalk, setback 6 to
10 feet from back of curb except
where space is not available
Smith Street Green. Public
greenspace with monument at
Smith Street corner
Vincent de Paul. Parking lot
modification with entryway
multi-family on surplus parking
area. Provides up to 48 units in
3-story buildings
New subdivision. Extension of
Packer Avenue, providing 57
single-family lots and 38 sin-
gle-family attached units.
Oshkosh North High School
Murdock Ave
Smith Ave
Linwood Ave
Ma
i
n
S
t
Vi
n
l
a
n
d
S
t
Packer Ave
Oaklawn Elem School
Roundabout green. Landscape,
street furniture and public art on
surplus green area on NW quad-
rant of Murdock roundabout. De-
sign should be attractive without
distracting motorists’ attention
to the roundabout.
CORRIDOR
ENHANCEMENT
DISTRICT
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54 55
ENVISIONING NORTH JACKSON
Low-Density (Single-Family) Residential
Existing Land Use Future Land Use
Low-Density (Single-Family) Residential
Medium-Density Residential Medium-Density Residential
High-Density Residential High-Density Residential
General Commercial Office
Cpmmercial
Mixed Use
Industrial
Parking
Park/Public Space
General Industrial
Parks/Public Space
Public/Civic Use
Water/Stormwater Management
1
2 3
4
5 6
8
9
10
7
FAIRACRES CENTER FOCUS AREA
Enhanced Roundabout Green on northwest
quadrant of Murdock Avenue.
Greenway connecting neighborhood to Jack-
son along the Stilwell Avenue alignment
6 foot sidewalk with parkway setback be-
tween 6 to 10 feet from back of curb where
possible
Parking lot redesign to provide a direct, in-
terior street with sidewalks and landscaping,
linking the center to the Murdock entrance
Interior street/drive with continuous walk-
way between Jackson Street and Fairacres
Townhomes
New multi-family building adjacent to deten-
tion basin with separated parking bay
New retail storefronts, separated from exist-
ing center by walkway and service drive
Path along edge of service area from Viola to
Fairacres Center and continuing to Murdock
Avenue. With Viola-Allen Greenway, provides
a continuous internal pedestrian connection
from Allen to Murdock
Townhouse redevelopment with new location
of service and open storage businesses to
industrial corridor
Greenway and path between Viola and Allen,
along edge of Oaklawn School parking lot
1
2
3
4
5
6
7
8
9
10
This focus area proposes a series of improvements and
modifications in the commercial center of the study area
north of the Murdock roundabout. It includes a public
space and greenway connection to Jackson Street from
the residential areas to the west; pedestrian and parking
lot circulation improvements and new infill development
at Fairacres Center; townhome redevelopment of light
industrial sites with open storage; and a continuous
pedestrian path from Allen Street to Murdock Avenue.
Murd
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Jackson Street Enhancements. Clockwise from top left: Corner landscaping with setback
sidewalk and upgraded lighting at Viola; Corner plaza at Smith Avenue; a typical desirable
street section; and the area near the St, Vincent de Paul store south of Packer Avenue
ENVISIONING NORTH JACKSON
56 57
ENVISIONING NORTH JACKSON
1
2
2
9
3
4
8
56
7
JACKSON SQUARE FOCUS AREA
Redesign of St. Vincent de Paul store parking
lot to allow additional development
Entryway multi-family on north and south
edges of parking lot, adding up to 48 new
housing units and “right-sizing” parking
Stormwater management facility
Existing Jackson Square Apartments
New entryway multi-family development
with up to 120 units
Neighborhood commercial
Small office or multi-building commercial
group
Geneva Street extension
Greenway and tree preservation with poten-
tial redevelopment
1
2
3
4
5
6
7
8
9
Low-Density (Single-Family) Residential
Existing Land Use Future Land Use
Low-Density (Single-Family) Residential
Medium-Density Residential Medium-Density Residential
High-Density Residential High-Density Residential
General Commercial Office
Cpmmercial
Mixed Use
Industrial
Parking
Park/Public Space
General Industrial
Parks/Public Space
Public/Civic Use
Water/Stormwater Management
Jackson
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Wisconsin
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Packe
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Packe
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Main S
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Geneva
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ENVISIONING NORTH JACKSON
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Improved Beech Street
crossing
Stilwell Street connec-
tion
Shared use path through
North High School cam-
pus. This requires consent
of the school district.
Smith Avenue path.
Principal shared use side-
paths are generally built,
funded, and maintained
by cities.
Allen to Murdock pedes-
trian path
Improved pedestrian crossing at
roundabout. The crosswalk is now
protected by rectangular rapid flash-
ing beacons. A further potential modi-
fication could be raised crosswalks.
Greenway with redevel-
opment
Geneva Street Extension
Main Street with bike lane
upgrades. Pavement mark-
ings such as dashed striping
at intersection entrances and
conflict points can increase
visibility
Packer Avenue expansion
SMITH
WI
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PACKER
TRANSPORTATION CONCEPT: ENHANCEMENT DISTRICT
MA
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Murdock Ave
Wisc
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Main S
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
New subdivision. Extension of
Fernau Avenue, new develop-
ment providing 90 single-family
lots and 6 single-family attached
units.
Fernau Avenue extension be-
tween Jackson and Vinland.
This opens a new area for devel-
opment.
New mixed density subdivision.
Project concept includes a small linear
park to provide common space be-
tween two different types of housing.
Concept includes up to 70 single-fam-
ily lots, and 48 multi-family units.
Continuous service street. Connec-
tion of Nelsen Drive, Logan Drive, and
Zion Street establishes a continuous
route for local access and neighbor-
hood service commercial
Mixed use infill. Concept includes
18 single-family lots, 20 attached
units, and neighborhood commer-
cial service
Industrial corridor. Infill develop-
ment of smaller-scale enterprise
industrial and trade commercial
uses in a planned park. Uses shared
access road and loading areas.
Neighborhood park and housing.
Neighborhood park serving Summer-
field and Logan developments, and up
to 72 units of new housing on the east
side of Logan Street.
Fernau Node. Commercial and
mixed use development at this fu-
ture major intersection, which will
increase in importance with filling
the gap on Fernau between Vinland
and Jackson.
Industrial loops. Planned industrial
development with small to me-
dium-sized modules that can be
assembled into larger sites. Access
loops are developed off Main to
provide access to block interiors.
Greenway buffer. Greenway
buffers possible new residential
development from industrial
corridor.
Industrial corridor. Industrial use
lines railroad and served by new
streets.
MID-JACKSON
Packer Ave
Snell Rd
Fernau Ave
Vi
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Ma
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Mo
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
3
11
4
14
10
12
13
5
6
6 7 8 9
1 2
FERNAU NODE FOCUS AREA
New industrial along railroad corridor
Greenway buffer with path
Single-family residential on loop streets
Greenway path
Stormwater management
New multi-family development
Townhomes
Linear neighborhood green
Logan Street neighborhood park
Planned industrial loop with medium-scaled
industrial
Fernau mixed use node with retail and neigh-
borhood services
Enterprise retail with shared access drive and
loading/service areas
Connected local service street, linking Logan,
Zion, and Nelsen Drive
Fernau extension between Jackson and Vin-
land. This connects Jackson Street to I-41 and
Algoma Boulevard
1
2
3
4
5
6
7
8
9
10
11
12
13
14
Low-Density (Single-Family) Residential
Existing Land Use Future Land Use
Low-Density (Single-Family) Residential
Medium-Density Residential Medium-Density Residential
High-Density Residential High-Density Residential
General Commercial Office
Cpmmercial
Mixed Use
Industrial
Parking
Park/Public Space
General Industrial
Parks/Public Space
Public/Civic Use
Water/Stormwater Management
Jackson
S
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Fern
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Fernau Avenue extension. This
fills a gap in east-west con-
nectivity to I-41 and westside
neighborhoods
Service street. Connection of
fragments of local streets (Lo-
gan, Zion, Nelsen) into a contin-
uous local access street would
also provide continuous pedes-
trian and bicycle access on the
west side of the corridor. It also
encourages new development
Enhanced pedestrian crossing.
With emergence of a neighbor-
hood commercial node at Fernau, a
well-protected pedestrian crossing
is especially important.
Snell Road. Sidewalks and bike lanes
are being installed as part of a Snell
Road improvement project. The
project also includes a new pedes-
trian crossing protected by a rectan-
gular rapid flashing beacon (RRFB),
located near the entrance to the
county park. This will link the Main
Street bike lanes to the park and to
the existing sidepath and shoulders
along Road A to Neenah.
Local access loop and buffer.
Combined with a greenway
buffer, this separates new res-
idential development from the
rail-oriented industrial corridor.
TRANSPORTATION CONCEPT: MID-JACKSON
Jackson Street
Existing Major Streets
Future Major Street Extension
Complete (Multi-modal)Street
Existing Neighborhood Connectors
Future Neighborhood Connectors
Shared Use Path
Major Pedestrian Pathways
Key Pedestrian Crossings
SNELL
SNELL
LO
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MA
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ENVISIONING NORTH JACKSON
62 63
ENVISIONING NORTH JACKSON
Packer
A
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Main
S
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Jack
s
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S
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Fernau A
v
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Snell Rd
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Mixed density development.
Completes existing residential
neighborhood south of Law En-
forcement Center. Includes up to
30 single-family lots, 18 attached
units, and 72 multi-family units,
along with a neighborhood com-
mercial building.
Mixed density development.
Completes existing North Park
Estates residential neighborhood
and adjoins Winnebago County
Park. Concept includes up to
50 single-family lots and 40 at-
tached townhomes. Area would
benefit from controlled path ac-
cess to the County Park.
Mixed use node. Mixed use de-
velopment at Road Y intersection
could take advantage of adjacent
Fairgrounds and County Park
for thematic retailing and visitor
services.
Corner commercial
Oshkosh Correctional
Institution
Winnebago County
Park
County Law
Enforcement Center
County Landfill FairgroundsNORTH PARK
Snell Rd
Road Y
We
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ENVISIONING NORTH JACKSON
64 65
ENVISIONING NORTH JACKSON
4
1
6
7
1
32
5
NORTH PARK FOCUS AREA
New single-family lots
Neighborhood commercial
Townhome/single-family attached units
New multi-family building group.
Controlled path connection to County Park
Trail
Townhouse group around central green
Greenway and path between Nelsen Drive
service street and Jackson Street
New intersection with signalized pedestrian
crossing, linking residential on both sides of
Jackson and improving safe park access for
residents west of the corridor
1
2
3
4
5
6
7
8
8
Low-Density (Single-Family) Residential
Existing Land Use Future Land Use
Low-Density (Single-Family) Residential
Medium-Density Residential Medium-Density Residential
High-Density Residential High-Density Residential
General Commercial Office
Cpmmercial
Mixed Use
Industrial
Parking
Park/Public Space
General Industrial
Parks/Public Space
Public/Civic Use
Water/Stormwater Management
Jackson
S
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Kope
A
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Summe
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
TRANSPORTATION CONCEPT: NORTH PARK
Western Drive extension. This provides access from exist-
ing and new development areas to Jackson Street, comple-
menting or replacing the existing Norton Street intersection
Pedestrian path and greenway. The space between Nelsen
Drive and Jackson would be developed as a greenway with
pedestrian path. The path extends across the Courtyard at
Oshkosh development.
Nelsen Drive extension. This continues continuity of the
service street, although direct connection to the south was
broken by development. This concept lines the access to
Jackson with the existing Kope Avenue access to Jackson.
County Park Trail. The internal trail in Winnebago County
Park is extended to complete the segment from Road Y to
Snell
Sunnyview Road. Extension of the sidepath on between
Route F and the park entrance to the Fairgrounds entrance
and Jackson Street.
New intersection. This concept includes a new aligned
intersection that would also include a protected pedestrian
intersection. Full development may eventually warrant a
signal at this location. An RRFB with refuge median may be
an alternative solution.
SNELL
ROAD Y
WE
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T
E
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N
SU
M
M
E
R
V
I
E
W
Jackson Street
Existing Major Streets
Future Major Street Extension
Complete (Multi-modal)Street
Existing Neighborhood Connectors
Future Neighborhood Connectors
Shared Use Path
Major Pedestrian Pathways
Key Pedestrian Crossings
Snell Road. Sidewalks and bike lanes are being installed as
part of a Snell Road improvement project. The project also
includes a new pedestrian crossing protected by a rectan-
gular rapid flashing beacon (RRFB), located near the en-
trance to the county park. This will link the Main Street bike
lanes to the park and to the existing sidepath and shoulders
along Road A to Neenah.
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Ja
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Road Y
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Ne
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Mixed use node. Mixed use de-
velopment at Road Y intersection
could take advantage of adjacent
Fairgrounds and County Park
for thematic retailing and visitor
services.
Business Park/Commercial or
Hospitality Center. Site near
the Fairgrounds with a plan for
significant expansion of uses and
events may create a market for a
regional hospitality center, with
commercial and hotel develop-
ment.
Mixed density residential. Ad-
jacency to the county park and
I-41 provides a possible residen-
tial site especially well-suited to
regional commuters. In this con-
cept, site includes 75 single-fam-
ily lots, 56 single-family attached
units, 48 townhomes, and 150
apartment units.
Office Park. High visibility loca-
tion on I-41 provides an oppor-
tunity for office or business park
development. The site could also
conceivably be used for a major
travel services center.
County Landfill
County Fairgrounds
Ja
c
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s
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Road Y
Indian Point Rd
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
INTERCHANGE FOCUS AREA
Office campus, business park, or traveler
service center as altenative uses
Mixed use commercial, lodging/hospitality
uses
Commercial/restaurant center
Multi-family building group
Community park for neighborhood and cus-
tomers/visitors
Single-family residential
Single-family attached and townhome resi-
dential
1
1
2
2
3
3
4
4
5
5
6
6
7
7
Low-Density (Single-Family) Residential
Existing Land Use Future Land Use
Low-Density (Single-Family) Residential
Medium-Density Residential Medium-Density Residential
High-Density Residential High-Density Residential
General Commercial Office
Cpmmercial
Mixed Use
Industrial
Parking
Park/Public Space
General Industrial
Parks/Public Space
Public/Civic Use
Water/Stormwater Management
Jackson
S
t
Indian
P
o
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t
R
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ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
TRANSPORTATION CONCEPT: INTERCHANGE
Fairgrounds Paths. Possible shared use path connecting
potential commercial/hospitality uses at interchange to the
Fairgrounds and County Park. Also includes a connection to
development site on southwest quadrant of interchange
Neighborhood path. Potential link through county property
and Fairgrounds to County Park entrance. This could also
include a local service access.
Local street grid
Jackson Street
Existing Major Streets
Future Major Street Extension
Complete (Multi-modal)Street
Existing Neighborhood Connectors
Future Neighborhood Connectors
Shared Use Path
Major Pedestrian Pathways
Key Pedestrian CrossingsROAD Y
JA
C
K
S
O
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S
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INDIAN POINT
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
Jackson
S
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India
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P
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t
R
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I-41
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
5/IMPLEMENTING THE PLAN
ENVISIONING NORTH JACKSON
74
ENVISIONING NORTH JACKSON
IMPLEMENTING THE
PLAN
The North Jackson corridor will inevitably change
substantially during the next twenty years and
Envisioning North Jackson is designed to help provide
unity and order to the large and small decisions that
will accomplish that change. Most of those decisions
will be private. But initiatives taken by city and state
government, public agencies, existing and proposed
community organizations, and the citizens of Oshkosh
can both address important corridor issues and catalyze
desirable private development.
Since the majority of the conceptual and market work on
this plan was completed the world changed dramatically
with the covid-19 pandemic. We think this may change
some aspects of planning and development practice,
but markets will return to some semblance of normal.
One of the key challenges will be to develop sustainable
environments that satisfy an increasing demand for
outdoor space and probably a preference for lower
density yet still walkable environments. Some of the
thinking and ideas behind this document are developed
with this challenge in mind.
Looking ahead, the public and community
implementation program of initiatives for North
Jackson resolves into six specific categories: Street
Transportation, Trails and Pathways, Regulating
Environment, Development Focuses, Attainable
Housing, and Organizational Infrastructure. The
following program divides these elements into Short-
Term (0-5 years), Medium-Term (5-10 years), and Long-
Term components. This breakdown is advisory only and
should be viewed as flexible and able to accommodate
and substitute other opportunities as they arise,
including private development projects.
SHORT-TERM (0-5 YEARS)
STREET TRANSPORTATION
• Complete connection of Fernau Street between
Jackson and Vinland Streets.
• Implement a Phase 1 corridor enhancement program
between Murdock and Smith Avenues.
• Begin the program of filling in the missing links of the
north side service road, probably beginning with the
Logan to Zion segment.
• Improve the Main Street crossing of Snell Road for
bicycle and pedestrian access.
• Complete an upgrade of Snell Road between Road A
and Jackson.
• Develop a “corner place” with landscaping and
amenities on the northwest quadrant of the Murdock
Roundabout.
• Modification of GO Transit Route 10, under study in
2020.
TRAILS AND PATHWAYS
• Complete the Snell Road project with sidewalks,
bike lanes, and an RRFB protected pedestrian
crossing at the park entrance.
• Develop new sidewalks with parkway setbacks
as part of Phase 1 of the Jackson corridor
enhancement.
• Establish an incremental program of walkway
development along Jackson Street north of
Packer, including an agreement with the township
on financing portions of the walks outside of the
current corporate limits.
• Complete gaps in the Winnebago County Park Trail
between Snell and Road Y.
• Develop a city/county relationship providing trail
and pedestrian access to the Fairgrounds.
• Develop the Murdock to Allen walking pathway in
cooperation with owners of the Fairacres Center.
• Complete the Stilwell Street connection to Jackson.
REGULATING ENVIRONMENT
• Review existing zoning categories and regulations
for any incompatibilities with the general direction
of the land use plan.
• Unify city and county zoning regulations affecting
the development corridor.
DEVELOPMENT FOCUSES
• Work with owners of Fairacres Shopping
Center to implement parking lot and pedestrian
improvements, street dedications where required,
land use entitlements, and other actions necessary
to increase utilization of these properties.
• Encourage and implement redevelopment of open
storage properties near Jackson between Viola
and Allen. Provide possible relocation sites in tghe
industrial area to relocate these businesses.
ATTAINABLE HOUSING
• Partner with the Housing Authority or a
development corporation to increase capacity with
staff and capitalization to build both ownership
and rental housing designed for affordability to
households with incomes in the 60% to 100% of
median household income range. Ensure that this
development entity also has the ability to partner
with developers to incorporate affordable housing
into mixed income developments.
• Develop an incentive structure to encourage private
development of mixed income developments that
could include financial incentives like TIF, assistance
with site acquisition and development, density
bonuses, and accelerated processing.
• Require mixing of housing types and densities
ENVISIONING NORTH JACKSON
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ENVISIONING NORTH JACKSON
in new developments while ensuring that
development directly adjacent to pre-existing
neighborhoods is fully compatible with those
neighborhoods.
• Assist with the acquisition and reuse of the “farm”
north of the Evelyn Hills shopping center as a
residential development geared toward moderate
income urban families. Development may be an
initial project for the proposed CDC.
ORGANIZATIONAL INFRASTRUCTURE
• Form a North Jackson business organization
funded by a business improvement district that
forms policy, executes marketing programs, and
maintains public realm improvements.
MEDIUM-TERM (5-10 YEARS)
STREET TRANSPORTATION
• Design and construction of the Phase 2
improvement program for North Jackson between
Smith and Packer Avenues.
• Promote new industrial development with
extension of Geneva Street to Packer Avenue.
• Extend Packer Avenue west of Jackson to
encourage new residential development.
• Complete development of west side collector using
Zion Street and an extended Nelsen Drive.
• Continue review of corridor transit service as
conditions change for increasing utilization and
relevance to new development, including housing.
TRAILS AND PATHWAYS
• Continue sidewalk development program along
Jackson Street.
• Require incorporation of major pedestrian
pathways identified in the plan as part of new
residential development projects.
• Complete westside pedestrian connection between
Murdock and Packer, including shared use paths as
shown on the high school campus.
• Connect Fairgrounds and County Park to
interchange development area.
DEVELOPMENT FOCUSES
• Implement major development of the interchange
district.
• Continue support of major development efforts in
the corridor with strategic extensions of streets and
utilities as demand emerges.
• Work with St. Vincent de Paul Store on redesign
and more effective utilization of the site.
ATTAINABLE HOUSING
• Continued development activities by the Housing
Authority or development corporation.
• Encourage eligible nonprofits to apply for state
and federal grants to increase supportive housing
assistance.
LONG-TERM (OVER 10 YEARS)
• Complete full capital enhancement program
• Evaluate the results of this plan and update it
for what is inevitably a new development and
transportation environment.
• Complete other aspects of the transportation and
trail development programs.