HomeMy WebLinkAboutImagineOshkoshMasterPlanImagine
OshkoshA MASTER PLAN FOR OUR CENTER CITY
PREPARED BY HOUSEAL LAVIGNE ASSOCIATES • ADOPTED NOVEMBER, 2017
CITY COUNCIL
Steve Cummings, Mayor
Steve Herman, Deputy Mayor
Debra L. Allison-Aasby, Council Member
Jake Krause, Council Member
Lori Palmeri, Council Member
Caroline Panske, Council Member
Thomas R. Pech, Jr. , Council Member
PLAN COMMISSION
Thomas Fojtik, Chairman
Kathleen Propp, Vice-Chairman
David Borsuk
Edward Bowen
Steve Cummings
John Hinz
John Kiefer
Jeffrey Thoms
Robert Vajgrt
Mike Ford
IMAGINE OSHKOSH
ADVISORY GROUP
Darryn Burich, City of Oshkosh
Steve Cummings, City of Oshkosh
Allen Davis, City of Oshkosh
Kelly Nieforth, City of Oshkosh
Mark Rohloff, City of Oshkosh
Jeff Nau, City of Oshkosh
Alexa Naudziunas, City of Oshkosh
Mark Lyons, City of Oshkosh
Elizabeth Williams, City of Oshkosh
John Casper, Oshkosh Chamber of Commerce
Rob Kleman, Oshkosh Chamber of Commerce
Andy Dumke, Alliance Development
Tom Fojtik, University of Wisconsin - Oshkosh/Plan Commission
Wendy Hielsberg, Menominee Nation Arena
Eric Hoopman, Black Teak Properties LLC
Kris Larson, Downtown Oshkosh Business Improvement District
Cassie Daniels, Downtown Oshkosh Business Improvement
District
Jason White, Greater Oshkosh Economic Development
Corporation
Bill Wyman, Oshkosh Area Community Foundation
SPONSORED BY
City of Oshkosh
Oshkosh Chamber of Commerce
Oshkosh Community Foundation
ACKNOWLEDGMENTS
III
TABLE OF CONTENTS
1: INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
IMAGINE OSHKOSH . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
PLANNING PROCESS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2
ORGANIZATION OF IMAGINE OSHKOSH . . . . . . . . . . . . . . . . . . . . . . . .3
REGIONAL SETTING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
CENTER CITY STUDY AREA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
ROLES OF CENTER CITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
2: COMMUNITY OUTREACH . . . . . . . . . . . . . . . . . . .9
OUTREACH METHODS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9
KEY THEMES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
3: LAND USE & DEVELOPMENT . . . . . . . . . . . . . . .15
EXISTING LAND USE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16
FUNCTIONAL SUBAREAS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
DOWNTOWN CORE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
DOWNTOWN OUTER CORE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
NORTH COMMERCIAL CORRIDOR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22
NORTHWEST TRANSITION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
MARION ROAD WATERFRONT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
SOUTH SHORE WEST . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
SOUTH SHORE CENTRAL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26
SOUTH SHORE EAST . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27
OREGON STREET . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
SUPPORTING NEIGHBORHOODS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
OPPORTUNITY SITES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .30
REDEVELOPMENT CATALYSTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .36
4: ECONOMIC DEVELOPMENT &
COMMERCIAL AREAS . . . . . . . . . . . . . . . . . . . . . .41
RETAIL MARKET OVERVIEW . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .42
CENTER CITY VACANCY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .46
CRITICAL MASS PRIORITY AREAS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .47
PREFERRED USES TO BUILD CRITICAL MASS . . . . . . . . . . . . . . . . . . .49
ACTIVATING MIXED-USE BUILDINGS . . . . . . . . . . . . . . . . . . . . . . . . . . .50
CENTER CITY ECONOMY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .54
5: HOUSING & RESIDENTIAL AREAS . . . . . . . . . .57
ACTIVATING EXISTING UPPER FLOOR SPACES . . . . . . . . . . . . . . . . .61
NEW MULTI-FAMILY DEVELOPMENT . . . . . . . . . . . . . . . . . . . . . . . . . . .61
RESIDENTIAL DEMAND & MARKET SHARE . . . . . . . . . . . . . . . . . . . . .62
MARKET IMPLICATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .63
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .64
6: TRANSPORTATION & MOBILITY . . . . . . . . . . .69
ONGOING & PLANNED CAPITAL IMPROVEMENTS . . . . . . . . . . . .70
TRUCKS ROUTES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .72
ROAD CONDITIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .73
CENTER CITY PARKING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .74
PEDESTRIAN & BIKE MOBILITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .76
BICYCLE INFRASTRUCTURE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .78
RIVER CROSSINGS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .78
PUBLIC TRANSIT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .78
RAILROADS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .80
7: CIVIC & INSTITUTIONAL RESOURCES . . . . . . .83
CIVIC USES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .84
CHALLENGES AND BENEFITS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .84
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .85
UNIVERSITY IMPACT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .86
TRANSITION ZONE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .86
STREETSCAPING & WAYFINDING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .87
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .87
8: ARTS & CULTURAL RESOURCES . . . . . . . . . . . .89
EXISTING PROTECTIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .90
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .93
ESTABLISH AN ARTS & CULTURE COALITION . . . . . . . . . . . . . . . . . . .94
ATTRACT NEW USES WHICH FOSTER LOCAL CULTURE . . . . . . .94
PROMOTE PUBLIC ART . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .95
INTERACTIVE ART PRECEDENTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .96
INCORPORATE OSHKOSH’S UNIQUE FEATURES . . . . . . . . . . . . . . .98
SUPPORT GRASS ROOTS INITIATIVES . . . . . . . . . . . . . . . . . . . . . . . . . . .98
BOLSTER YEAR-ROUND EVENTS &
ACTIVITIES IN THE CENTER CITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99
9: URBAN DESIGN & PUBLIC SPACES . . . . . . . . .101
ARCHITECTURAL STYLE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .103
BUILDING HEIGHT, BULK & PROPORTION . . . . . . . . . . . . . . . . . . . .104
BUILDING PLACEMENT & ORIENTATION . . . . . . . . . . . . . . . . . . . . . . 105
PARKING AREAS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .106
BUILDING MATERIALS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .107
DOORS & ENTRANCES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .108
WINDOWS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .109
ROOFLINES & PARAPETS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .110
AWNINGS & CANOPIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .111
BUILDING SIGNAGE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112
BUILDING LIGHTING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .113
REAR YARDS & REAR FAÇADES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .113
SENSE OF ENCLOSURE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .114
STREETWALLS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .114
BLANK FACADES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .114
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .115
STREETSCAPE IMPROVEMENTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .116
STREETSCAPING PRIORITIZATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . .117
SIDEWALK ZONES & FUNCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .117
OTHER STREETSCAPE IMPROVEMENTS . . . . . . . . . . . . . . . . . . . . . .117
BEST PRACTICES & NEW INNOVATIONS . . . . . . . . . . . . . . . . . . . . . . .119
PARKS AND OPEN SPACES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .122
WATERFRONTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .124
IMPROVED PROGRAMMING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .125
10: IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . .127
INCENTIVES & TOOLS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .127
PARTNERING CENTER CITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .130
V
Oshkosh’s Center City is comprised of a collection of neighborhoods
located in the historic core of the community. Anchored by
Downtown Oshkosh, Center City also extends into and includes
other neighboring districts and corridors, including waterfronts of
both the Fox River and Lake Winnebago.
By many accounts, Oshkosh’s Center City is successful – it boasts
a new scenic Riverwalk, historic architecture, recent residential
development, retail, restaurants, a convention center, hotels, and
many civic institutions and businesses. There remains however,
areas for improvement, issues to address, and opportunities for
redevelopment, particularly on former industrial properties within
the Center City.
IMAGINE OSHKOSH
Imagine Oshkosh provides a policy guide and action framework to
elevate Center City and it provides recommendations, strategies,
and policies to maintain and improve this critical area of the
Oshkosh community.
In 2000, the City partnered with the Oshkosh Area Community
Foundation and the Oshkosh Chamber of Commerce to develop
a Downtown Action Plan. The Downtown Action Plan provided
a framework and agenda that has successfully guided capital
projects and private investment for more than 15 years, including
Opera House Square, the Riverwalk and Leach Amphitheater, and
streetscaping along North Main Street.
Imagine Oshkosh provides an update to this previous planning
effort, but further, it expands both its scope and geography. The
Plan stands as a long-term vision and comprehensive investment
strategy for the entire Center City, directing growth, development,
and infrastructure investment. In addition to guiding the City’s
elected and appointed officials and staff, Imagine Oshkosh is a
resource for businesses, not-for-profits, developers, and other
important community stakeholders.
1
INTRODUCTION
1: Introduction 1
PLANNING PROCESS
Imagine Oshkosh is the product of an 8-step planning process that
initiated in October 2015 . The process was designed to create a
master plan that reflects the community’s desires and aspirations
and responds to the unique issues, opportunities, and conditions
of Oshkosh’s Center City. The planning process for Imagine Oshkosh
consisted of the following tasks:
Task 1: Project Initiation. In the Fall of 2015, the planning
process kicked off with meetings with City officials, a tour of the
city, and an initiation workshop with the Central City Advisory
Committee/Core Group (CCAC/CG).
Task 2: Community Outreach. Residents and Center City
stakeholders were engaged early in the process through
a diverse variety of outreach methods, including public
workshops, interviews and focus groups, and an interactive
project website which featured sMap - an online community
issues mapping tool.
Task 3: Existing Conditions Analysis. Near the project’s
halfway point, an Existing Conditions Report was prepared and
presented to the CCAC/CG and the community. The Existing
Conditions Report presented a summary and analysis of (a)
existing physical conditions in Oshkosh’s Center City obtained
through field observation; (b) results of the community outreach
exercises; and (c) an analyses of previously prepared plans,
studies, and other policy initiatives. The Existing Conditions
Report is on file with the City.
Task 4: Market Analysis. In close coordination with Step 3, a
detailed assessment of the local market was undertaken. The
market analysis provided a summary of potential uses within
the Study Area, including defining the types of space each
use requires and how these distinct spaces and uses can fit
together successfully in the Central City area.
Task 5: Vision, Goals, & Objectives. A hands-on community
visioning workshop tasked the Oshkosh community with
articulating and illustrating their vision for the future of Center
City. The results of the workshop along with the analysis of
existing conditions provided direction for the vision and goals,
objectives, and recommendations of Imagine Oshkosh.
Task 6: Framework Plans. Preliminary framework plans and
recommendations were prepared to address all aspects of
Center City, including land use, built form and development;
retail; housing, transportation and parking; pedestrian and
bicycle circulation; parks and open space; urban design and
beautification; and, more.
Task 7: Implementation Strategy. Building on the framework
plans, a detailed implementation strategy was prepared to
assist the City in implementing the recommendations within
Imagine Oshkosh.
Task 8: Final Report & Adoption. The final step in the planning
process compiled the work products into a draft master
plan document, titled Imagine Oshkosh. The draft plan was
presented to the community and CCAC/CG for local review and
consideration. Based on feedback, the draft plan was amended
and presented to the City for adoption.
Imagine Oshkosh | Center City Reinvestment Strategy2
ORGANIZATION OF
IMAGINE OSHKOSH
The Imagine Oshkosh document is organized into ten separate
chapters:
Chapter 1 - Introduction. This chapter includes preliminary
information about Imagine Oshkosh, the planning process,
and the study area, as well as a review of Oshkosh’s past plans,
studies, and reports.
Chapter 2 - Community Outreach. This chapter includes a
review of all community outreach events and tools, conducted
to establish a vision for the Center City and inform plan
recommendations.
Chapter 3 - Land Use & Development. This chapter establishes
the land use and functional framework for the City Center,
which is divided into 10 functional subareas. Desired built form
and land use are established for each area, along with each
area’s relationship to its neighbors.
Chapter 4 - Economic Development & Commercial Areas.
This chapter provides recommendations related to economic
development and commercial areas within the Center City
study area.
Chapter 5 - Housing & Residential Areas. This chapter provides
recommendations related to housing and residential areas
within and adjacent to the Center City study area.
Chapter 6 - Transportation & Mobility. This chapter provides
recommendations related to transportation and mobility within
the Center City study area.
Chapter 7 - Civic & Institutional Resources. This chapter
provides recommendations related to civic and institutional
resources within the Center City study area.
Chapter 8 - Arts & Cultural Resources. This chapter provides
recommendations related to arts and cultural resources within
the Center City study area.
Chapter 9 - Urban Design & Public Spaces. This chapter
provides recommendations related to urban design and public
spaces within the Center City study area.
Chapter 10 - Implementation. This chapter provides an
implementation framework to assist City staff, elected and
appointed officials, business owners, and other stakeholders in
converting the plan into action.
1: Introduction 3
REGIONAL SETTING
The City of Oshkosh is in the heart of Wisconsin’s Fox River Valley,
along the I-41 corridor, and within the triangle of Green Bay,
Madison, and Milwaukee. This “triangle” region contains more than
2 million people. Oshkosh is 24 square miles with an estimated
2016 population of 66,500 residents.
Some of the community’s defining features include its
recreationally-rich waterways and water-bodies (Lake Winnebago,
Fox River, and Lake Butte des Morts), the presence of the
University of Wisconsin - Oshkosh, the annual EAA AirVenture
Fly-In Convention which draws more than 500,000 people from
60+ countries, and a nationally-ranked Farmers Market. Money
Magazine ranked it one of the “Top 100 Best Places to Live in the
United States” and Business Week ranked Oshkosh “The Best Place
in Wisconsin to Raise Kids.”
CENTER CITY
STUDY AREA
The Center City study area includes Oshkosh’s downtown and
historic core. The main spine of the study area is Main Street, which
spans from New York Avenue on the north to 16th Avenue on the
south. The study area extends west to Wisconsin Street and east to
Bay Street.
The boundaries of the study area were designed to focus on mixed-
use, commercial, and employment districts within the heart of the
community. Surrounding residential neighborhoods, while absolutely
critical to the health of the Center City, have their own unique set of
investment challenges and are being addressed through separate but
complementary neighborhood planning efforts.
Although one study area, the Center City consists of several different
functional subareas or districts, each of which is distinctive but also
mutually supportive and reinforcing. The Imagine Oshkosh Study
Area is 592.6 acres (0.92 square miles) in size.
ROLES OF CENTER CITY
The vitality and overall health of Center City is important to the
community, as this unique area of Oshkosh plays several significant
roles within the community and larger region. Imagine Oshkosh
seeks to strengthen all of these components collectively.
IDENTITY OF THE COMMUNITY
Center City is the defining face of Oshkosh and its health and
vitality shapes opinions of the entire community. When one thinks
of Oshkosh, it is hard not to first think of amenities, destinations, or
assets within Center City.
EMPLOYMENT HUB
Oshkosh’s Center City is a workplace for a variety of employees
within different industries. From small businesses, to civic
institutions, to large corporations, there are more than 5,000 jobs
within Center City.
CIVIC HEART
Home to City Hall, the Winnebago County Courthouse, Oshkosh
Public Library, and others, the Center City is Oshkosh’s civic center.
SHOPPING & SERVICES
While much of the community’s retail has shifted toward I-41,
Center City still offers many local “mom-and-pop” stores. In
addition, a variety of commercial services, from salons/barbershops
to delis, support day-to-day living for both residents and
employees.
SOCIAL SPACE
There are numerous public areas and gathering spaces that foster
and promote social interaction for the community.
CULTURAL CENTER
Oshkosh’s Center City is rich with cultural offerings, from symphony
concerts at the Grand Opera House to lectures at nearby University
of Wisconsin - Oshkosh.
ACTIVE WATERFRONT
The Fox River passes through the heart of Center City, connecting
Lake Butte des Morts to Lake Winnebago, providing energy and
activity both on and along the water.
ENTERTAINMENT DESTINATION
Center City is an entertainment district, with bars, restaurants,
concert venues, theatres, and more.
Imagine Oshkosh | Center City Reinvestment Strategy4
FOND DU LAC
WINNEBAGO
CALUMET MONITOWOC
SHEBOYGAN
BROWNOUTAGAMIE
Lake Michigan
Green Bay
Lake Poygan
43
43
41
41
CITY OF OSHKOSH
CENTER CITY
FOND DU LAC
SHEBOYGAN
MANITOWOC
GREEN BAY
SHAWANO
CLINTONVILLE
SEYMOUR
CHILTON
NEW LONDON
APPLETON
SHERWOOD
MENASHA
NEENAH
REGIONAL SETTING
Lake
Winnebago
1: Introduction 5
CITY OF OSHKOSHCOMMUNITY TIMELINE
1950 1975 200020001925185018751900
1853
Oshkosh incorporates
as a City named a er a Menominee
Indian Chief, with a population of 2,500
1858
Railroad comes to Oshkosh
1861-1865
Civil War, nearly 1,000
Oshkosh men serve in
the Union Army
1866
Oshkosh is the second largest
city in Wisconsin behind Milwaukee
1868
Oshkosh Yacht Club organizes;
Col. John Hicks starts the first daily
newspaper north of Milwaukee
1870
Oshkosh becomes “Sawdust City”
with ten sawmills producing over one million
board feet of lumber per year; the City’s
population grows to 12,673
1871
State Teachers College
(UW-Oshkosh) is founded
1878
Steam car “Oshkosh”
wins great race om
Madison to Green bay
1879
First telephone installed
1880
Population grows
to 15,749
1882
YMCA opens
1883
Grand Opera House
opens with the performance
of “The Bohemian Girl”
1884
Electric lighting
comes to Oshkosh
1885
Great cyclone strikes
the city on July 8
1889
North (Menominee)
and South Parks
established
1890
Population grows
to 22,836
1891
Sisters of Sorrowful Mother
establish the first hospital in Oshkosh
1912
Vocational School organized;
later became Fox Valley
Technical College
1895
OshKosh B’gosh is founded
1896
Raddatz Submarine tested
successfully in the Fox River;
electric street cars
replace horse drawn carriages
1898
Woodworkers strike
against seven mills
1900
Population grows
to 28,284; most numerous
immigrant group is German
1907
Oshkosh Chamber of
Commerce is established
1910
Population grows
to 33,000
1917-1918
World War I
claims 98 Oshkosh men
1920
Women’s sufferage succeeds; Oshkosh
suagette Jessie JackHooper becomes
a leader in the state and across
the nation; population grows to 33,162
1924
Edgar Sawyer Home becomes
Oshosh Public Museum
1926
Chief Oshkosh is reburied
in North Park which in his honor
is renamed Menominee Park
1927
Privately owned commercial
airport opens with mail service
1930
Last streetcar runs;
population grows to 40,108
1928
Oshkosh Area Community
Foundation founded
1930-1939
Great Depression
hits lumber industry hard
1940
Population declnes
slightly to 39,039
1941-1945
World War II takes servicemen
away and claims 160 Oshkosh men
1953
Oshkosh celebrates its centennial
1957
Council-City Manager system
replaces Mayor-Alderman
system of governement
1964
Pioneer Inn begins construction
1966
The largest land annexation
in Oshkosh history
1969
Airport is named Wittman Field
a er aviation pioneer Steve Wittman
1970
Population grows to 53,082;
EAA brings Fly-In to Oshkosh;
Park Plaza Mall opens in downtown
on 18 acres
1980
Population declines
slightly to 50,016
1986
Grand Opera House re-opens
and presents “The Bohemian Girl”;
Convention Center and Hotel are
built in downtown
1990
Population grows to 55,006
1996
Railroad tracks removed
om center of the city
2000
Mercy Medical Center
opens new hospital west of I-41
2002
Opera House Square dedicated;
Oshkosh YMCA opens on westside
2004
Leach Amphitheater opens
2008
Movie “Public Enemies”
is filmed in Oshkosh
2009
Oshkosh Corp. secures record
military contract; Oshkosh Convention
Center reopens a er renovations
2010
Population grows to 66,083;
Grand Opera House reopens a er
renovations; Main Street reconstructed
for first time since 1955
2016-2017
Imagine Oshkosh
is prepared
2015
Greater Oshkosh Economic
Development Corporation founded
1929
Stock Market crashed and Great
Depression starts; Oshkosh loses 40% of
manufacturing jobs; John D. Buckstaff’s ice
boat sets world record for speed at 124
mph and again in 1938 at 143 mph
2015
U.S. Army awards Oshkosh Corp. the
JLTV contract worth up to $30 billion
Imagine Oshkosh | Center City Reinvestment Strategy6
1950 1975 20002000 2015
Oshkosh incorporates
as a City named a er a Menominee
Indian Chief, with a population of 2,500
1858
Railroad comes to Oshkosh
1861-1865
Civil War, nearly 1,000
Oshkosh men serve in
the Union Army
1866
Oshkosh is the second largest
city in Wisconsin behind Milwaukee
1868
Oshkosh Yacht Club organizes;
Col. John Hicks starts the first daily
newspaper north of Milwaukee
1870
Oshkosh becomes “Sawdust City”
with ten sawmills producing over one million
board feet of lumber per year; the City’s
population grows to 12,673
1871
State Teachers College
(UW-Oshkosh) is founded
1878
Steam car “Oshkosh”
wins great race om
Madison to Green bay
1879
First telephone installed
1880
Population grows
to 15,749
1882
YMCA opens
1883
Grand Opera House
opens with the performance
of “The Bohemian Girl”
1884
Electric lighting
comes to Oshkosh
1885
Great cyclone strikes
the city on July 8
1889
North (Menominee)
and South Parks
established
1890
Population grows
to 22,836
1891
Sisters of Sorrowful Mother
establish the first hospital in Oshkosh
1912
Vocational School organized;
later became Fox Valley
Technical College
1895
OshKosh B’gosh is founded
1896
Raddatz Submarine tested
successfully in the Fox River;
electric street cars
replace horse drawn carriages
1898
Woodworkers strike
against seven mills
1900
Population grows
to 28,284; most numerous
immigrant group is German
1907
Oshkosh Chamber of
Commerce is established
1910
Population grows
to 33,000
1917-1918
World War I
claims 98 Oshkosh men
1920
Women’s sufferage succeeds; Oshkosh
suagette Jessie JackHooper becomes
a leader in the state and across
the nation; population grows to 33,162
1924
Edgar Sawyer Home becomes
Oshosh Public Museum
1926
Chief Oshkosh is reburied
in North Park which in his honor
is renamed Menominee Park
1927
Privately owned commercial
airport opens with mail service
1930
Last streetcar runs;
population grows to 40,108
1928
Oshkosh Area Community
Foundation founded
1930-1939
Great Depression
hits lumber industry hard
1940
Population declnes
slightly to 39,039
1941-1945
World War II takes servicemen
away and claims 160 Oshkosh men
1953
Oshkosh celebrates its centennial
1957
Council-City Manager system
replaces Mayor-Alderman
system of governement
1964
Pioneer Inn begins construction
1966
The largest land annexation
in Oshkosh history
1969
Airport is named Wittman Field
a er aviation pioneer Steve Wittman
1970
Population grows to 53,082;
EAA brings Fly-In to Oshkosh;
Park Plaza Mall opens in downtown
on 18 acres
1980
Population declines
slightly to 50,016
1986
Grand Opera House re-opens
and presents “The Bohemian Girl”;
Convention Center and Hotel are
built in downtown
1990
Population grows to 55,006
1996
Railroad tracks removed
om center of the city
2000
Mercy Medical Center
opens new hospital west of I-41
2002
Opera House Square dedicated;
Oshkosh YMCA opens on westside
2004
Leach Amphitheater opens
2008
Movie “Public Enemies”
is filmed in Oshkosh
2009
Oshkosh Corp. secures record
military contract; Oshkosh Convention
Center reopens a er renovations
2010
Population grows to 66,083;
Grand Opera House reopens a er
renovations; Main Street reconstructed
for first time since 1955
2016-2017
Imagine Oshkosh
is prepared
2015
Greater Oshkosh Economic
Development Corporation founded
1929
Stock Market crashed and Great
Depression starts; Oshkosh loses 40% of
manufacturing jobs; John D. Buckstaff’s ice
boat sets world record for speed at 124
mph and again in 1938 at 143 mph
2015
U.S. Army awards Oshkosh Corp. the
JLTV contract worth up to $30 billion
1: Introduction 7
Imagine Oshkosh | Center City Reinvestment Strategy8
2
COMMUNITY OUTREACH
Imagine Oshkosh is the result of a transparent and engaging
process that actively sought input from numerous stakeholders,
including residents, business owners, property owners, developers,
elected and appointed officials, and City staff. A variety of ongoing
outreach efforts, both in-person and online were used to gather
the concerns, ideas, and aspirations of the community as it related
to Center City. Feedback and input from those efforts were critical
in identifying key issues, challenges, and assets of Center City,
and formed the foundation for the recommendations for Imagine
Oshkosh. This section provides a summary of outreach conducted
throughout the planning process.
OUTREACH METHODS
MEETINGS & WORKSHOPS
In total, five separate meetings and workshops were conducted
during the Imagine Oshkosh planning process, including:
Elected & Appointed Officials Workshop (December 15, 2015)
Steering Committee Workshop (December 15, 2015)
Community Workshop (February 15, 2016)
Business Workshop (February 16, 2016)
Visioning Workshop (August 2, 2016)
The first four workshops that were conducted centered around
three key questions:
What are five issues or challenges facing Oshkosh’s Center City?
What are three specific projects or actions you would like to see
undertaken within Oshkosh’s Center City?
What are the primary strengths and assets of Oshkosh’s Center City?
Unlike the preceding workshop, the Visioning Workshop held in
August 2016 challenged participants to work as a team to discuss
and draw their vision for Center City on large maps of the Study
Area. Generally, participants felt strongly about making Center City
a destination for families, with a variety of year-round activities and
recreation spaces that provide entertainment for all members of
the family. Developing higher-end condominiums and apartments
were also a top priority, as were further activating the waterfront
and ensuring pedestrian friendliness and connectivity.
STAKEHOLDER INTERVIEWS
In addition to public workshops, a series of one-on-one
stakeholder interviews were conducted to gather greater detail
about important issues and more accurately assess “on the ground”
conditions and potentials.
PROJECT WEBSITE
An Imagine Oshkosh project website contained information and
updates concerning the project, meeting notices, and project
documents and reports. The project website also provided access
questionnaires for both residents and businesses, and sMap, an
interactive application that allowed visitors to create their own map
of the Study Area.
2: Community Outreach 9
KEY THEMES
The following is a summary of the key themes, including priority
issues, projects, and assets which were distilled through the
outreach process. These highlight the major issues and point of
interest which were consistently identified.
HOUSING
Capture unmet housing demand through new
condos, multi-family units, and townhomes.
Developing a Variety of Quality Housing Options
For Center City to thrive, participants would like to see more
residential units downtown, including quality condominiums
along, or proximate to, the waterfront. It was noted that currently
the only product in the Center City area is either traditional single
family homes on a residential block or rental multi-family units.
The community stated that it would like housing options such as
townhomes and condominiums in a full-range of cost and rents.
Revitalizing Surrounding Residential Neighborhoods
The health and vitality of the residential neighborhoods surrounding
Center City are seen as critical to its success. Participants noted that
many of the nearby neighborhoods suffer from disinvestment and
crime impacting the attractiveness of Center City. It was suggested
that additional investment in these areas can not only stabilize the
Downtown core but also provide a healthy consumer base for local
businesses. Participants also noted that they would like housing
standards for multi-family housing in the downtown area to be clear
and directly applicable to ensure quality housing.
Would You Live in Center City?
The questionnaire asked residents if they would consider living in
the Center City Study Area and to share either why they would or
why they wouldn’t. Respondents mostly stated that they would not
move to Center City. Reasons given included too much density, lack
of green space, noisiness, and need for larger housing units given
familial size. Some did respond that they would move if higher
quality housing was provided.
ECONOMIC DEVELOPMENT
Promote economic diversity and
enhance the retail experience.
Diversifying Retail
Workshop participants like to see a more diverse mix of retail
options than what is currently offered. Suggestions included the
addition of a grocery store, more businesses supporting day-to-day
living, entertainment destinations, diverse restaurant options, and
mixed-use developments.
Improving Retail
Outreach participants expressed concern about retail within
Center City. The concern was multi-faceted and included a need for
destination shopping, and concern that some existing tenants may
not be desirable in the long-term. It was argued that new tenants
should be recruited that can improve the appearance and vibrancy
of the district and help establish a more favorable retail experience.
Tax Incentives & Business Retention
Roughly two-thirds of residents and three-fourths of businesses
who responded to online questionnaires indicated they would
support the use of tax incentives to attract and retain businesses.
Tax incentives and other resources were also suggested by
workshop participants.
Factors Affecting Businesses
Business owners were asked to rate how several different factors
and issues affect their business. The top factors were: quality of
their building, visibility and access to customers, proximity to
public transportation, and character of the business district. Other
responses included the lack of a full-service grocery store, vacant
sites, presence of student housing, not enough traffic, and difficulty
parking. Despite these factors, the majority of participating
business owners (75%) would not move their business out of Center
City if given a chance.
Imagine Oshkosh | Center City Reinvestment Strategy10
COHESION
Improve the cohesion of different districts and
ensure consistent and appropriate design.
Inconsistent Design Aesthetic
Oshkosh’s Center City has many different areas and the character
changes throughout. Built form, density, building heights, land uses,
and streetscape can vary by parcel to parcel and block to block. It
was expressed that there should be more harmony, with some areas
having a more unified aesthetic. Participants suggested restoring
the historic character of downtown buildings as well as establishing
a consistent theme to tie different areas together. Participant noted
that the City should work with all business owners in Center City
to update signage and building facades to “historic standards” for
consistency.
CATALYTIC REDEVELOPMENT
Activate the waterfront and Center City by
completing the Riverwalk and promoting
catalytic redevelopment of key sites.
Underutilized Properties
The Center City Study Area contains several properties the
community would like to see better utilized to generate new
activity, increase density, and provide new tax revenue. In addition,
participants discussed a variety of projects they would like to see
completed, such as preservation of the Eagle’s Club, redevelopment
of the Town Motel, establishment of a healthcare facility, and
reconstruction of the two bridges over the Fox River.
Redeveloping Pioneer Island
The vacated Pioneer Island is a gateway into the community via
Lake Winnebago. In the summer months, the vacant site is often
the first thing that boaters see when approaching Oshkosh’s Center
City. Residents envision the site redeveloped into commercial or
residential uses and contributing to the vitality and aesthetic of
Center City.
Jeld-Wen & Buckstaff Properties
The Jeld-Wen and Buckstaff sites were regularly noted by
residents as opportunities for redevelopment. Residents suggested
developing mixed-use destinations on the parcels, including retail,
residential units, and hotels.
Fox River Development
Residents noted the positive impact the Riverwalk has had on the
waterfront, and would like to see it completed. Further, many feel
that this amenity could be complimented by additional private
investment that could also capitalize on the scenery and recreation
provided by the waterfront, including a mixed-use development,
a corporate campus, and relocation of the YMCA. Emphasis was
placed on the south shore and the vacant Jeld-Wen site.
2: Community Outreach 11
MOBILITY & ACCESS
Promote safe and easy mobility throughout
Center City for both vehicles and pedestrians.
Need for a Direct Artery
Participants believe that Center City lacks an attractive, direct, and
easy-to-follow route from Interstate 41. This can make accessing
Center City more complicated than other downtowns in the area.
Suggested improvements include constructing a more direct route
or installing better signage along existing routes. It was also noted
that City should improve unattractive areas along these routes to
help communicate a positive first impression of Oshkosh and to
help draw visitors into Center City.
Transportation Options
It was expressed that there is a lack of alternative methods of
transportation into, and throughout, Center City. More specifically,
the community would like to see better pedestrian access,
improved bus service on nights and weekends, and safe and well
connected bike paths.
Parking
Although the City Center’s parking supply was considered
adequate, some felt that it was not well located or distributed.
There was also concern that more conveniently located parking
spaces are being used by employees, forcing Center City visitors
to more remote parking. Some parking projects suggested by the
community included reconfiguring existing public parking to yield
more capacity, constructing additional parking behind Main Street
businesses, and converting vacant sites into public parking lots.
APPEARANCE
Elevate the appearance of this key area of Oshkosh.
Revitalizing Vacant/Blighted Areas
Participants stated that they would like to see vacant structures
either torn down or repurposed, based on the quality of the
building and the stability of the block. Much attention was paid to
former industrial areas on the south side of the river. Participants
noted that façade improvements for historic Main Street buildings
and investment in blighted residential neighborhoods as top
concerns.
Historic Character
Many individuals focused on the City’s past and Oshkosh’s rich
inventory of historic buildings, expressing a desire to preserve the
historic character. Specific actions noted included establishing a
façade rehabilitation program and updating all signage to historic
standards.
Imagine
OshkoshA MASTER PLAN FOR OUR CENT
E
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What should Oshkosh’s
Center City look like in
10-20 years?
Now’s your time to get
involved.
Imagine Oshkosh is a long-term vision and strategy for
Oshkosh’s Center City. It will direct grow
t
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city look like in 10 years and how do we
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YOU! It is critical that all of Oshkosh’s st
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ABOUT THE PLAN
WHO IS INVOLVED?
HAVE A QUESTION? CONTACT:
SHARE YOUR THOUGHTS ONLINE.
Visit http://www.ci.oshkosh.wi.us/ and
click on the “Imagine Oshkosh” link.
Darryn Burich, Planning Director
tel: (920) 236-5055 | email: dburich@ci.osh
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JOIN THECONVERSATION.
IMAGINE OSHKOSH WORKSHOPS
Now’s your chance to shape the future of your community.
Join us and be a part of the Imagine Oshkosh planning process.
Darryn Burich, Planning Director / phone: (920) 236-5055 / email: dburich@ci.oshkosh.wi.us
City of Oshkosh, 215 Church Avenue, Oshkosh, WI 54903
Can’t make the workshop? Participate online.
What should Oshkosh’s Center City look
like in 10-20 years? Now
’
s
your time to get
involved.
COMMUNITY WORKSHOP
for anyone who lives or works in Oshkosh
February 15, 2016 - 7:00PM-8:30PM
Oshkosh Convention Center
2 N. Main Street - Downtown Oshkosh
BUSINESS WORKSHOP
for anyone who owns or manages a business in Oshkosh
February 16, 2016 - 7:30AM-9:00AM
Oshkosh Convention Center
2 N. Main Street - Downtown Oshkosh
JOIN THEDISCUSSION.
Visit http://www.ci.oshkosh.wi.us/ and click on the “Imagine Oshkosh” link
Have a question? Contact:
Imagine
OshkoshA MASTER PLAN FOR OUR CENTER CITY
IMAGINE OSHKOSHVISIONING WORKSH
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Now’s your chance to sha
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August 2, 2016 - 7:00P
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Oshkosh Convention C
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Visit http://www.ci.oshk
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Imagine
Oshkosh
A MASTER PLAN FOR
O
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Imagine Oshkosh | Center City Reinvestment Strategy12
CHARACTER & IDENTITY
Improve the regional appeal and
recognition of Center City.
Improving the Regional Appeal
Concern was expressed that the reputation of Center City
needs improvement. It was cited that Downtown Appleton and
Downtown Neenah are often seen as more desirable destinations.
Participants noted a need for a better public image and deliberate
effort to elevate Center City’s regional appeal.
Enhancing the Brand
Residents called for a clear strategy to develop an identity which
would improve Center City’s brand and reputation. It was noted
that many Oshkosh residents, as well as those living in the greater
Fox Cities Region, do not frequent Center City. It is believed that
improving its reputation as an exciting and safe destination with
“something for everyone” will improve the business climate and
vitality of this critical area.
Community Amenities
Center City is a host to a variety of assets and amenities enjoyed by
Oshkosh residents. Throughout community outreach, participants
identified the following as strengths and assets to build upon:
Proximity of Library and churches
Cultural/recreational amenities
Concentration public services/facilities
YMCA
Leach Amphitheatre
Farmers Market
Best Western Hotel
Convention Center
Opera House
Events
Golf course
Gallery walk
Grand Theater
Morgan House
Art (murals, gallery walk, concerts)
Entertainment options and festivals
Winnebago County Historical Society
2: Community Outreach 13
Imagine Oshkosh | Center City Reinvestment Strategy14
This section presents land-use and development recommendations
for Oshkosh’s Center City. It includes an overview of existing land
use, and establishes the functional framework for the unique areas
that comprise the Study Area. The Land Use and Development
Framework are strongly influenced by the existing and well
established land use pattern. While most existing uses are expected
to remain in the short term, several development opportunities
exist within Center City providing the potential to increase
residential units and strengthen the retail and commercial sectors.
The recommendations are intended to be a guide for new
development and reinvestment in Center City. It is NOT a proposed
development plan of rigid and finite recommendations. The
recommendations are specific enough to provide guidance on
land-use decisions, but also flexible enough to allow for individual
negotiations and the consideration of creative approaches to
land development that are consistent with the overall policies and
guidelines included in Imagine Oshkosh.
3
LAND USE &
DEVELOPMENT
3: Land Use & Development 15
EXISTING LAND USE
An assessment and understanding of the Center City’s existing
land use plays an important role in shaping future land uses and
other plan recommendations. In addition to providing insight into
historical development patterns, an accurate assessment of existing
uses provides an accurate starting point for formulating a plan for
Center City to help protect existing uses and promote desired future
uses in suitable areas. To provide a clear understanding of how land
is used within the study area, an inventory and assessment of every
parcel and structure within Center City has conducted at the onset
of the planning process. Parcels within the Center City Study Area
can be classified in 13 distinct land use designations.
DETACHED RESIDENTIAL
This land use category consists of single-family detached homes,
many of which feature detached garages. These uses are generally
found in the fringe areas of Center City.
ATTACHED RESIDENTIAL
This land use category includes residential structures with two or
more dwellings that share a common wall, with each unit having
its own dedicated entry. Examples include including duplexes,
rowhomes, and townhomes, such as the development along 8th
Avenue east of Nebraska Street.
MULTI-FAMILY RESIDENTIAL
Multi-family residential uses include multiple housing units
typically sharing common internal building space such as lobbies
or hallways, including apartments and condominiums. The style
and scale of multi-family varies within the study area and include
newer multi-story apartment buildings as well as detached single-
family homes that have been modified to accommodate multiple
dwelling units.
RETAIL AND SERVICE
Retail and service are commercial buildings where businesses sell
and provide goods and services. This includes only stand-alone/
single-purpose and mixed commercial buildings, and does not
include mixed-use buildings with residential uses on upper floors.
ENTERTAINMENT & HOSPITALITY
Entertainment and hospitality uses include buildings restaurants,
bars, and taverns; hotels and lodging; the Oshkosh Convention
Center; and, other entertainment venues. These uses represent
some of the highest profile businesses in Center City, and although
found throughout the study area, they are primarily located along
Main Street and Oregon Street.
MIXED-USE
The Mixed-Use designation includes uses typically include multiple
distinct uses in a single building. The most common form of
mixed-use developments are ground floor commercial uses with
residential or office uses located on upper floors.
OFFICE & FINANCE
Office and finance uses include banks, law firms, medical offices,
and other office uses. The character and scale of office and finance
uses vary within Center City, ranging from businesses in converted
historic homes to banks with drive-through service.
INDUSTRIAL
Industrial uses in Center City include manufacturing, heavy
storage, printing, boat motor testing, boat storage, and more. Most
industrial uses are located south of the Fox River, which historically
has been an industrial area.
PUBLIC/SEMI-PUBLIC
Public and semi-public land uses include a variety of community
facilities including government uses, places of worship, schools, and
daycares.
PARKS & OPEN SPACE
Land classified as parks and open space include Opera House
Square, Riverside Park, and the Leach Amphitheatre and other
outdoor spaces. This designation also includes Growing Oshkosh,
urban agriculture use along Bay Shore Drive.
RAIL/UTILITY
Rail and utility uses include CN railroad right-of-way and other
railroad and utility uses.
PARKING
This land use classification includes on parcels whose primary use
is either public or private parking.
VACANT
Vacant property consists of sites that currently contain no standing
structure or use.
Imagine Oshkosh | Center City Reinvestment Strategy16
Lake
Winnebago
Fox River
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New York Ave
Melvin Ave
Baldwin Ave
Sterling Ave
Lincoln Ave
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Scott Ave
Union Ave Ida Ave
Churc
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Irving Ave
Washington Ave
Merritt Ave
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6th Ave
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9th Ave
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11th Ave
12th Ave
South Park Ave
14th Ave
15th Ave
16th Ave
4th Ave
3rd St
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Otter Ave
Ceape Ave
School Ave
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CENTER CITYEXISTING LAND USE
Detached Residential
Attached Residential
Multi-Family Residential
Retail & Service
Entertainment &
Hospitality
O ce & Finance
Mixed-Use
Industrial
Public/Semi-Public
Parks/Open Space
Rail/Utilties
Parking
Vacant
UNIVERSITY OF
WISCONSIN - OSHKOSH
3: Land Use & Development 17
FUNCTIONAL SUBAREAS
Based on existing land use, as well as built form, physical
boundaries, character, market potential, and other factors, Center
City has been separated into 10 functional subareas. These
subareas are intended to guide planning efforts within Center City,
allowing for recommendations and policies which address the
specific needs of each distinct area. By addressing the study area
as functional subareas, planning efforts should be context sensitive
while ensuring that separate districts work cohesively as a single
Center City.
Each functional subarea includes a description of desired
conditions which the City should work towards, broken into the
following categories:
DESIRED LAND USE
Identifies the land uses desired within the subarea, accounting for
existing uses and context, and market potential.
DESIGN/DEVELOPMENT GUIDELINES
Specifies the desired built form within that subarea, describing
physical characteristics of a structure and its relationship to other
structures and spaces – including height, setback, orientation,
architecture/design, overall size, and more.
RELATION TO SURROUNDING DISTRICTS
Details the preferred relationship between this and other adjacent
districts, providing context for how this subarea contributes to the
overall sense of place within the Center City Study Area.
Imagine Oshkosh | Center City Reinvestment Strategy18
Fox River
Lake
Winnebago
Fox River
Prospect Ave
New York Ave
Melvin Ave
Baldwin Ave
Sterling Ave
Lincoln Ave
Har
r
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s
o
n
A
v
e
Scott Ave
Union Ave Ida Ave
Churc
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Algon
m
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B
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High
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Cam
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P
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Marion
R
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Pearl
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Parkway Ave
Irving Ave
Washington Ave
Merritt Ave
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ff
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r
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5th St
6th Ave
7th Ave
9th Ave
10th Ave
11th Ave
12th Ave
South Park Ave
14th Ave
15th Ave
16th Ave
4th Ave
3rd St
Sta
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Co
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Bro
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Waugoo Ave
Otter Ave
Ceape Ave
School Ave
Co
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Downtown Core
Downtown Outer Core
North Main Commercial
Corridor
Northwest Transition
Marion Road Water ont
South Shore West
South Shore Central
South Shore East
Oregon Street
Supporting
Neighborhoods
CENTER CITYFUNCTIONAL SUBAREAS
1
1
2
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3
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UNIVERSITY OF
WISCONSIN - OSHKOSH
3: Land Use & Development 19
1 . DOWNTOWN CORE
The historic, mixed-use heart of
the Oshkosh Center City.
The Downtown Core Subarea is the traditional entertainment,
cultural, and social heart of Oshkosh. It is what everyone would
typically agree is “downtown” or the “central business district,” and
is home to some of Oshkosh’s most cherished destinations and
businesses.
Existing buildings in the Downtown Core are typically built to the
property line, two or more stories in height, and mixed-use with
commercial on the ground floor and residential or office uses
on the upper floors. Sidewalk bump-outs, streetscaping, and
pedestrian amenities create a walkable and inviting pedestrian
environment, and have reduced the width of travel lanes helping
reinforce the area’s pedestrian orientation.
The City should continue to encourage high-density, mixed-
use development within the Downtown Core, consistent with
the existing land use and development pattern. The City should
support redevelopment of underutilized properties and, should
opportunities arise, work to consolidate parking facilities in a
manner which will support the desired built form, including a
consistent streetwall and building mass.
DESIGN/DEVELOPMENT GUIDELINES
Buildings located at or near the sidewalk, with no side yard
setbacks, creating a consistent streetwall and sense of
enclosure
Mixed-use buildings include retail/commercial on the ground
floor with residential and office uses on the upper floors
Multi-story buildings, with strong orientation toward the street
Inviting storefronts with large windows and displays, prominent
entrances, and attractive architectural detail providing visual
interest
Buildings with historic and architectural value are preserved and
enhanced
Parking located at the rear of buildings, accessed by side streets
and rear alley and screened from public right-of-way by a low
masonry wall, decorative fencing, and landscaping
DESIRED LAND USES
Restaurants, cafes, and bars
Retail and service businesses
Multi-family residential (in upper floors)
Entertainment and cultural uses
Hotels and other hospitality uses
Financial, professional offices, and medical practices (in upper floors)
Public and institutional buildings
RELATION TO SURROUNDING DISTRICTS
The Downtown Core borders the following other subareas:
The Downtown Outer Core. The Downtown Outer Core should
benefit from investment within the Downtown Core. Over time,
development and investment in both subareas should result in
the gradual incorporation of the Outer Core into the Downtown
Core, creating a single, unified district.
The North Main Commercial Corridor. The auto-oriented nature
of the North Main Commercial Corridor is different than the
pedestrian oriented Downtown Core. Blending or “transitioning”
these areas together can erode the Downtown Core’s sense of
place and impact its desired pedestrian orientation. This North
Main Commercial Corridor should be considered an approach
route into the Downtown Core and exist only north of Parkway
Avenue.
The Supporting Neighborhoods. As growth occurs within the
Downtown Core, adjacent Supporting Neighborhoods should
remain largely residential and be protected from commercial
encroachment.
DOWNTOWN CORE
SUPPORTING
NEIGHBORHOODS
DOWNTOWN OUTER CORE
NORTH MAIN
COMMERCIAL CORRIDOR
Imagine Oshkosh | Center City Reinvestment Strategy20
2 . DOWNTOWN
OUTER CORE
A growth area for the historic core.
The Outer Core Subarea exhibits similar characteristics of the
Downtown Core, but with lower density and a less compact built
form. The prominence of surface parking, setbacks, and larger
buildings erodes the pedestrian friendly atmosphere present in
the Downtown Core. The Outer Core contains many prominent
destinations for the Oshkosh community, including the City Center
complex, City Hall, The Police Department, the Oshkosh Community
YMCA, the Best Western Premier Waterfront Hotel, and the Oshkosh
Convention Center.
The Outer Core is well positioned to benefit from “spill-over”
investment and activity generated by the Downtown Core. In
the long term, growth within both subareas should result in the
incorporation of the Outer Core within the Downtown Core,
creating a single, unified district at the heart of Center City. As such,
new development within the Outer Core should mimic the desired
land uses and built from of the Downtown Core. Other visual
elements, including streetscaping extensions, will help to both
visually and functionally connect the two areas and prepare the
Outer Core for increased activity.
DESIGN/DEVELOPMENT GUIDELINES
Buildings located at or near the sidewalk, with no side yard setbacks,
creating a consistent streetwall and sense of enclosure
Mixed-use buildings include retail/commercial on the ground floor
with residential and office uses on the upper floors
Multi-story buildings, with strong orientation toward the street
Standalone buildings/uses feature careful site design to physically and
visually integrate into the urban fabric of the Downtown Core and
Outer Core
Inviting storefronts with large windows and displays, prominent
entrances, and attractive architectural detail providing visual interest
Buildings with historic and architectural value are preserved and enhanced
Parking located at the rear of buildings, accessed by side streets and
rear alley and screened from public right-of-way by a low masonry
wall, decorative fencing, and landscaping
DESIRED LAND USE
Restaurants, cafes, and bars
Retail and service businesses
Multi-family residential (in upper floors)
Entertainment and cultural uses
Hotels and other hospitality uses
Financial, professional offices, and medical practices
Public and institutional buildings
RELATION TO SURROUNDING DISTRICTS
The Downtown Outer Core borders the following other subareas:
The Downtown Core. The Downtown Outer Core should benefit from
investment within the Downtown Core. Over time, development and
investment in both subareas should result in the gradual incorporation
of the Outer Core into the Downtown Core, creating a single, unified
district.
Northwest Transition & Marion Road Waterfront. The Northwest
Transition and Marion Road Waterfront subareas assist in transitioning
to the Center City, Downtown Core and the University of Wisconsin –
Oshkosh. Land use and built form should be similar on both sides of
Jackson Street in all districts, acting as a seam which links the subareas
together.
Supporting Neighborhoods. As development and investment occurs
within the Downtown Outer Core, adjacent Supporting Neighborhoods
should remain largely residential and be protected from commercial
encroachment.
DOWNTOWN OUTER CORE
SUPPORTING
NEIGHBORHOODS
MARION ROAD
WATERFRONT
SUPPORTING
NEIGHBORHOODS
NORTHWEST TRANSITION
DOWNTOWN CORE
3: Land Use & Development 21
3 . NORTH COMMERCIAL
CORRIDOR
The northern gateway and approach to the
Center City, supporting a gradual transition
to the historic pedestrian-oriented core.
The North Main Commercial Corridor is primarily an auto-oriented
corridor north of Parkway Avenue. Lot depths vary along the
corridor, with some parcels extending the depth of the entire block
while others are only half as deep and are backed by single-
family detached homes. While the City’s streetscaping project has
extended into the subarea, surface parking lots and pole signs are
prominent along the corridor, reflecting an auto orientation.
As a subarea of the Center City and approach to the Downtown
Core, the City should encourage a less auto-oriented approach to
land use and built form along the North Main Commercial Corridor.
While full-scale redevelopment as a pedestrian-oriented district
is unlikely, a review and update of certain zoning regulations may
help encourage development which better balances pedestrian
and automobile needs. This should include a review of building
setbacks, parking and parking lot landscaping, pedestrian access,
and signage regulations to meet the desired built form for the area.
DESIGN/DEVELOPMENT GUIDELINES
Buildings located at or near the sidewalk
Buildings between 1 and 3 stories, with ground floors oriented
toward the street
Inviting storefronts with large windows and displays, prominent
entrances, and attractive architectural detail providing visual
interest along Main Street
Buildings with historic and architectural value are preserved and
enhanced
Parking located at the rear of buildings, accessed by side streets
and rear alley
Surface lots fronting Main Streets are strongly discouraged, but
when unavoidable they are screened from public right-of-way
and sidewalks by a low masonry wall, decorative fencing, and
perimeter landscaping
DESIRED LAND USE
Restaurants, cafes, and bars
Drive-through and carry-out restaurants
Commercial retail and service businesses
Residential uses (upper floors)
Banks/financial, professional offices, and medical practices
RELATION TO SURROUNDING DISTRICTS
The North Main Commercial Corridor borders the following other
subareas:
The Downtown Core. The auto-oriented nature of the North
Main Commercial Corridor is different than the pedestrian
oriented Downtown Core. Blending or “transitioning” these
areas together can erode the Downtown Core’s sense of place
and impact its desired pedestrian orientation. This North Main
Commercial Corridor should be considered an approach route
into the Downtown Core which exist only south of Parkway
Avenue.
NORTH MAINCOMMERCIAL CORRIDOR
DOWNTOWN CORE
Imagine Oshkosh | Center City Reinvestment Strategy22
4 . NORTHWEST
TRANSITION
The gateway and transitional area
between the Center City and the adjacent
University of Wisconsin – Oshkosh.
The Northwest Transition Subarea serves as a transition area
between the higher density Downtown Core and the University of
Wisconsin – Oshkosh campus, containing a variety of uses. Auto-
oriented commercial uses form the eastern and western boundaries
along Jackson Street and Wisconsin Street, with single family
residential blocks between the two roadways. Institutional uses such
as the Winnebago County Courthouse and Most Blessed Sacrament
Parish can also be found on the eastern border of the subarea. In
addition, some properties in the northern-most tip of this subarea
are included in the Irving-Church historic district. Generally, uses
within the subarea are tailored towards college students, including
fast food restaurants and pizza chains, fraternity and sorority houses,
and single family homes converted into rentals.
This subarea should serve as a transition between the Downtown
Core and the University of Wisconsin – Oshkosh. In this capacity, the
subarea should include a variety of residential and commercial uses
which cater to both students and residents. However, the Northwest
Transition subarea must also act as a buffer to potential impacts
that the Downtown Core and University Campus may have on each
other. New investment within the subarea should be consistent with
the preexisting built form and may include the conversion of existing
structures to new uses or construction which mimics the character
and scale of the surrounding residential neighborhood.
DESIGN/DEVELOPMENT GUIDELINES
House, converted houses, and other buildings oriented to the
street
1-3-story structures with varying in architectural style, scale,
and overall design
Variable front- and side-yard setbacks, with a general rhythm
and consistency by street and/or block
Detached garages, covered parking areas, sheds, and other
residential accessory buildings
Home and buildings with historic and architectural value should
be preserved and enhanced
DESIRED LAND USE
Detached and attached residential
Multi-family residential
Commercial retail and service businesses
Banks/financial, professional offices, and medical practices
Public and institutional buildings
RELATION TO SURROUNDING DISTRICTS
The Northwest Transition borders the following other subareas:
The Downtown Outer Core. The Northwest Transition can assist
in transitioning to the Downtown Outer Core. Land use and
built form should be similar on both sides of Jackson Street in
all districts, acting as a seam which links the subareas together.
Marion Road Waterfront. The Marion Road Waterfront subarea
acts as a transition between the Downtown Core and the
University of Wisconsin – Oshkosh. While land use and built
form differ, careful planning and coordination of investment
within the Marion Road Waterfront subarea can help to visually
and physically connect the two areas.
NORTHWESTTRANSITION
MARION ROAD
WATERFRONT
DOWNTOWN OUTER CORE
3: Land Use & Development 23
5 . MARION ROAD
WATERFRONT
An urban neighborhood emphasizes waterfront
investment and orientation, providing access
to the various amenities of the Center City.
The Marion Road Waterfront Subarea is predominantly residential
and contains the largest concentration of multi-family units in the
study area. A former industrial district, the subarea has undergone
transformation with the addition of multi-family including Rivers
Senior Living. Commercial frontage forms the western and eastern
boundaries along Wisconsin Street and Jackson Street, and the
Riverwalk forms the southern boundary along the Fox River. Mercury
Marine motor boat testing facility and the vacant Lamico factory
are the two industrial properties remaining in the subarea.
Although in a more urban environment, the built form of this area
is somewhat suburban. Buildings are set back from the road with
large visible surface parking lots along the right-of-way, due to the
lot frontage being oriented to the Riverwalk.
The City should support larger lot redevelopment within the
subarea while requiring site design which fosters a more urban
environment. The vacant Lamico factory site provides an
opportunity to establish a new development at the center of
the subarea which contributes to a more urban, walkable, and
pedestrian-oriented district. The City should cooperate with
Mercury Marine for the long-term relocation of their facility. In
addition, the City should make improvements which will decrease
the impact of past industrial uses and establish a more distinct
character for the subarea. This could include removing overhead
utilities and providing greater pedestrian connections to the
Riverwalk.
DESIGN/DEVELOPMENT GUIDELINES
Standalone or clusters of multi-unit residential structures with
varied front, rear, and side yard setbacks
Multi-story residential structures with building orientation to
the street or waterfront
Single or multi-story commercial structures with consistent
setbacks, oriented toward the street
Parking located in surface lots and parking structures. Surface
lots are screened from public right-of-way by a low masonry
wall, decorative fencing, and perimeter landscaping
Common entrances and entryways, with ample fenestration
provide interest along the street and support walkability
DESIRED LAND USE
Multi-family residential
Commercial retail and service businesses
Banks/financial, professional offices, and medical practices
Riverfront public spaces
RELATION TO SURROUNDING DISTRICTS
The Marion Road Waterfront borders the following other subareas:
The Downtown Outer Core. The Marion Road Waterfront
subarea assists in transitioning to the Center City, Downtown
Core and the University of Wisconsin – Oshkosh. Land use and
built form should be similar on both sides of Jackson Street,
acting as a seam which links the subareas together.
Northwest Transition. The Marion Road Waterfront subarea acts
as a transition between the Downtown Core and the University
of Wisconsin – Oshkosh. While land use and built form differ,
careful planning and coordination of investment within the
Marion Road Waterfront subarea can help to visually and
physically connect the two areas.
MARION ROADWATERFRONT
DOWNTOWN OUTER CORE
NORTHWEST TRANSITION
Imagine Oshkosh | Center City Reinvestment Strategy24
6 . SOUTH SHORE WEST
A mixed-use, pedestrian-oriented district which
defines future investment along the south shore.
Unlike other subareas, the South Shore West Waterfront Subarea
may be best described as a “blank slate”. The subarea is defined by
the vacant 27-acre Morgan Door site, which has over 1,500 feet of
frontage along the Fox River. As of the drafting of this document,
plans are underway to redevelop the site into the “Morgan District”
- a mixed-use area comprised of a grocery store, commercial uses,
multi-family units, condominiums, and townhomes.
The City should continue to work with developers promoting the
construction of the Morgan District, which will have a significant
impact on the character of the south shore, and Center City as
a whole. Redevelopment within the subarea should consider
pedestrian mobility and include pedestrian connections. The
City should also explore extending the Riverwalk through this
subarea, connecting to any new development, along with adjacent
neighborhoods.
DESIGN/DEVELOPMENT GUIDELINES
Buildings located at or near the sidewalk, with no side yard
setbacks, creating a consistent streetwall and sense of
enclosure
Mixed-use buildings include retail/commercial on the ground
floor with residential and office uses on the upper floors
Multi-story buildings, with strong orientation toward the street
Standalone buildings/uses feature careful site design to
physically and visually integrate into the urban fabric of the
Downtown Core and Outer Core
Inviting storefronts with large windows and displays, prominent
entrances, and attractive architectural detail providing visual interest
Buildings with historic and architectural value are preserved and
enhanced
Parking located at the rear of buildings, accessed by side streets
and rear alley and screened from public right-of-way by a low
masonry wall, decorative fencing, and landscaping
DESIRED LAND USE
Restaurants, cafes, and bars
Commercial retail and service businesses
Attached and multi-family residential
Entertainment and cultural uses
Hotels and other hospitality uses
Banks/financial, professional offices, and medical practices
Riverfront public spaces
RELATION TO SURROUNDING DISTRICTS
The South Shore West borders the following other subareas:
South Shore Central. The South Shore West and South Shore
Central Subareas should feature similar types of uses, but will
differ in their character and built form. Consideration should
be given to ensuring the edges of these two subareas and
complimentary and compatible with one another.
Oregon Street. The South Shore West and Oregon Street
Subareas should feature similar types of uses, but will differ in
their character and built form. Consideration should be given to
ensuring the edges of these two subareas and complimentary
and compatible with one another.
Supporting Neighborhoods. The intensity and style of
development within the South Shore West subarea could
impact supporting neighborhoods to the southwest. Site
planning should strive to mitigate potential impacts new
development could have on adjacent residential areas.
SOUTH SHORE WEST
SUPPORTING
NEIGHBORHOODS
SOUTH SHORE CENTRAL
OREGON STREET
3: Land Use & Development 25
7 . SOUTH SHORE
CENTRAL
Incorporating Oshkosh’s industrial history into
a mixed-use district that acts as a gateway
to the south shore area of Center City.
The South Shore Central Subarea is located between the South
Shore West and South Shore East Subareas. It contains an eclectic
mix of light industrial, and commercial, and vacant properties which
give the area an edge and gritty look and feel. Unlike its neighboring
Subareas, the South Shore Central subarea is not expected to see
large-scale development and redevelopment.
The City should build upon this area’s industrial past and draw
from its ‘Sawdust City’ history by preserving the existing industrial
feel and warehouse “vibe” by accommodating commercial
and residential uses by adaptively reusing historic industrial
complimented by thoughtful infill development. This Subarea is
also best positioned to catalyze, kick start and unify all of Center
City’s south shore.
DESIGN/DEVELOPMENT GUIDELINES
Historic buildings and vacant industrial facilities preserved and
enhanced for adaptive reuse
Development features careful site design to provide a pedestrian-
oriented urban environment
Buildings built to the property line, with little or no front and side yard setbacks
1 to 4 story buildings, with ground floors oriented toward the street
Mixed-use buildings include retail/commercial on the ground floor with
residential and office uses on the upper floors
Inviting storefronts, prominent entrances and entryways, with ample
fenestration providing interest along the street and supporting
walkability
Parking located at the rear of buildings, accessed by side streets and
rear alley and screened from public right-of-way by a low masonry wall,
decorative fencing, and landscaping
DESIRED LAND USE
Restaurants, cafes, and bars
Commercial retail and service businesses
Multi-family residential
Entertainment and cultural uses
Hotels and other hospitality uses
Banks, professional offices, and medical practices
Marina related storage and service facilities
Compatible “light” industrial/commercial services uses
Riverfront public spaces
RELATION TO SURROUNDING DISTRICTS
The South Shore Central borders the following other subareas:
South Shore West & East. The South Shore Subareas should feature
similar types of land use but vary in their character and built form.
Consideration should be given to ensuring the edges of these two
subareas and complimentary and compatible with one another.
Oregon Street. Both the Oregon Street and South Shore Central
subareas should feature similar types of land use but vary in their
character and built form. Development within the blocks bounded by
7th Avenue, Nebraska Street, 8th Avenue, and Oregon Street should
be considerate of adjacent properties, with the aim of creating a seam
which visually connects the two areas.
Supporting Neighborhoods. The supporting neighborhood directly
southwest of the South Shore Central subarea should be protected
from the impact of industrial uses and more intense development.
SOUTH SHORE CENTRAL
SUPPORTING
NEIGHBORHOODS
SOUTH SHORE WEST
SOUTH SHORE EAST
OREGON STREET
Imagine Oshkosh | Center City Reinvestment Strategy26
8 . SOUTH SHORE EAST
A mixed-use, pedestrian-oriented district
bringing together corporate tenants,
entertainment venues, and regional hospitality.
The South Shore East Subarea is largely industrial, with some
auto-oriented commercial and single family detached homes.
The subarea also includes several light industrial properties on
the north shore of the Fox River, east of the Downtown Outer
Core subarea. The existing industrial character of this subarea is
out-of-place with its surrounding districts and uses are undesired.
Two of the most notable sites within the subarea are underutilized
and contain vacant structures: Pioneer Island and the Buckstaff
Company site. Given the size and prominence of these properties,
redevelopment will likely have a significant impact on the subarea.
The City should pursue execution of the Sawdust District
Redevelopment Plan, converting South Shore East into an exciting,
mixed-use district. As per the redevelopment plan, this would include
a stadium, hotel and resort, condominiums, office space, parking
deck, and variety of open spaces. Wholesale redevelopment of the
area will require parcel consolidation and clearing of vacant industrial
facilities. The City should also coordinate with industrial businesses
still operating in the area to seek long-term relocation to designated
industrial parks within Oshkosh. Redevelopment within the subarea
should include pedestrian connections and thoughtful roadways
design which provides mobility while minimizing pedestrian-
automobile conflicts. To the extent possible, buildings with historic
characteristics should be integrated into new development scenarios
or moved to a new location within the community.
DESIGN/DEVELOPMENT GUIDELINES
Historic buildings and vacant industrial facilities preserved and
enhanced for adaptive reuse where appropriate and feasible
Development features careful site design to provide a
pedestrian-oriented urban environment
Buildings built to the property line, with little or no front and
side yard setbacks
1 to 4 story buildings, with ground floors oriented toward the
street
Mixed-use buildings include retail/commercial on the ground
floor with residential and office uses on the upper floors
Inviting storefronts, prominent entrances and entryways, with
ample fenestration providing interest along the street and
supporting walkability
Parking located at the rear of buildings, accessed by side streets
and rear alley and screened from public right-of-way by a low
masonry wall, decorative fencing, and landscaping
DESIRED LAND USE
Corporate/Employment uses
Commercial retail and service businesses
Multi-family residential
Entertainment and cultural uses
Hotels and other hospitality uses
Banks, professional offices, and medical practices
Riverfront public spaces
RELATION TO SURROUNDING DISTRICTS
The South Shore East borders the following other subareas:
South Shore Central. The South Shore Subareas should feature
similar types of land use but vary in their character and built form.
Consideration should be given to ensuring the edges of these two
subareas and complimentary and compatible with one another.
Supporting Neighborhoods. The supporting neighborhood
directly southwest of the South Shore Central subarea should
be protected from the impact of industrial uses and more
intense development.
SOUTH SHORE EAST
SOUTH SHORE CENTRAL
SUPPORTING
NEIGHBORHOODS
3: Land Use & Development 27
9 . OREGON STREET
The south shore’s “downtown,” providing a similar
character and range of uses as the Downtown Core.
The Oregon Street Subarea is a linear neighborhood commercial
district that functions almost like its own downtown. It is largely
defined by commercial or mixed-use properties built to the property
line. Uses along the corridor are mostly local businesses catering to
Oshkosh residents. On-street parking exists throughout most of the
corridor, with on-site parking typically located in surface lots located
behind buildings. Single family residential uses can be found along
the southern part of the Oregon Street corridor, as well as behind
some of the commercial properties that front Oregon Street. Over
the years, some traditional inline buildings have been demolished
and replaced with surface parking lots or more auto-oriented
developments; however, the streetwall remains largely intact.
The City should reinforce the corridor’s existing character and
encourage mixed-use development. Maintenance and rehabilitation
of existing structures should be encouraged, to keep the charm
and character of the area. New development should maintain
and reinforce the traditional streetwall and provide a variety of
retail, service, office, and residential uses. As the area becomes
more intensely utilized, consolidated parking area may need to be
developed to enhance the economic viability of area businesses.
Upper floor residential and office uses are ideal for this area, and
rowhouses should be considered a viable infill development option.
The City should complete a streetscaping enhancement program for
the area that creates a unique and identifiable “district” for the area,
improving the appearance of the corridor and better connecting
Oregon Street to adjacent neighborhoods.
DESIGN/DEVELOPMENT GUIDELINES
Buildings located at or near the sidewalk, with no side yard
setbacks, creating a consistent streetwall and sense of
enclosure
Mixed-use buildings include retail/commercial on the ground
floor with residential and office uses on the upper floors
2-5 story buildings, with strong orientation toward the street
Inviting storefronts with large windows and displays, prominent
entrances, and attractive architectural detail providing visual
interest
Buildings with historic and architectural value are preserved and
enhanced
Parking located at the rear of buildings, accessed by side streets
and rear alley and screened from public right-of-way by a low
masonry wall, decorative fencing, and landscaping
DESIRED LAND USE
Restaurants, cafes, and bars
Retail and service businesses
Multi-family residential (in upper floors)
Attached Single Family/Rowhomes
Entertainment and cultural uses
RELATION TO SURROUNDING DISTRICTS
The Oregon Street borders the following other subareas:
South Shore West. The South Shore West and Oregon Street
Subareas should feature similar types of uses, but will differ in
their character and built form. Consideration should be given to
ensuring the edges of these two subareas and complimentary
and compatible with one another.
South Shore Central. Both the Oregon Street and South Shore
Central subareas should feature similar types of land use but
vary in their character and built form.
Supporting Neighborhoods. The supporting neighborhood
directly east of the Oregon Street subarea should be
protected from the impact of industrial uses and more intense
development.
OREGON STREET
SOUTH SHORE CENTRAL
SUPPORTING
NEIGHBORHOODS
SOUTH SHORE WEST
Imagine Oshkosh | Center City Reinvestment Strategy28
SUPPORTING
NEIGHBORHOODS
Providing a mix of high quality residential
options in close proximity to Center City,
with convenient access to shopping, services,
employment, and entertainment.
The Supporting Neighborhoods Subarea consists of residential
blocks located alongside, or in the midst of, predominantly
commercial or mixed-use districts on the fringe areas of Center
City. While neighborhood character may vary slightly by location,
generally these blocks are comprised of single-family detached
homes, with some townhomes and multi-family development also
present. A few properties within the Support Neighborhood district
directly north of Church Avenue are included in the Irving – Church
Historic District.
The City should take steps to protect supporting neighborhoods
from commercial encroachment and other negative impacts
caused by adjacent high-intensity uses. This may include screening,
buffering, or other regulations to limit potential nuisances. Because
these areas are adjacent to commercial/mixed-use areas, there
may be pressure over time to redevelop these areas for non-single-
family residential uses. While the priority is to maintain these
areas for single-family detached homes, infill redevelopment with
rowhomes may also be appropriate. In addition, the City should
strictly enforce its codes and ordinances and work cooperatively
with property owners to ensure residential structures are properly
maintained, particularly in areas with high rental occupancy.
DESIGN/DEVELOPMENT GUIDELINES
Single-family detached houses oriented to the street
Row Houses oriented to the street
Variable front- and side-yard setbacks, with a general rhythm
and consistency by street and/or block
Detached or attached garages at the rear of buildings
Structures vary in age, architectural style, scale, and overall
design
Historic homes are preserved and enhanced
DESIRED LAND USE
Detached and attached single-family residential
Public and institutional uses
RELATION TO SURROUNDING DISTRICTS
The Supporting Neighborhoods border several subareas. Supporting
neighborhoods should be protected from the impact of commercial,
industrial uses and other more intense development. In the long
term, supporting neighborhoods may face development pressure
given their location.
DOWNTOWN OUTER COREDOWNTOWN OUTER CORE
SOUTH SHORE WEST
OREGON STREET
SOUTH SHORE CENTRAL
SOUTH SHORE EAST
DOWNTOWN CORE
3: Land Use & Development 29
OPPORTUNITY SITES
Opportunity sites are vacant and/or underutilized parcels where
development, adaptive reuse, or redevelopment would have a
significant positive effect in Center City Oshkosh. To provide focus,
and with the aim of creating a “critical mass” of activity within
concentrated areas, 20 sites were identified, mostly in areas with
the greatest likelihood of development activity.
Opportunity sites have been broken down into three categories:
(1) Value-Add Sites, which include existing structures that should
be preserved but activated with expansion, higher occupancy,
repositioning, and/or adaptive reuse; (2)Redevelopment Priority
Sites, which include development of vacant parcels or demolition
of an existing structure for a new structure; and (3) Redevelopment
Catalyst Sites, which include large, highly visible and prominent
parcels, that if redeveloped would have a catalytic affect on
adjacent and surrounding parcels, leading to additional investment.
The City should work with property owners and investors to explore
options for future development of opportunity sites. This should
include incentives to encourage investment, such as regulatory
assistance or a ‘fast-track’ approval process for construction.
Where appropriate, the City should work with property owners to
consolidate or assemble adjacent parcels which could yield larger,
more market-viable redevelopment scenarios. It should be noted
that some opportunity sites are already the topic of on-going
development projects.
The following pages includes further disucssion and visualization
of the four redevelopment priority. All visualizations and proposed
land uses are based upon market realities, redevelopment potential,
existing conditions, and adjacent uses. They are also reflective of
functional subareas and recommendations for preferred uses, site
design, and connectivity.
OPPORTUNITY SITES (2016)
CENTER CITY OSHKOSH
TYPE CURRENT USE ACREAGE SUBAREA CURRENT ZONING # PARCELS # OWNERS
A Value-Add Parking Lot; Small Office 0 .86 Downtown Core Central Mixed-use 2 2
B Value-Add Commercial Building 0 .26 Downtown Core Central Mixed-use 1 1
C Value-Add Bank 0 .55 Downtown Core Central Mixed-use 1 1
D Value-Add Commercial; Bank; Parking Lot 1 .43 Downtown Core Central Mixed-use 3 3
E Value-Add Parking Lot 0 .27 Downtown Core Central Mixed-use 1 1
F Value-Add Bank 0 .89 Downtown Core Central Mixed-use 1 1
G Value-Add Parking Lot 0 .73 Downtown Core Central Mixed-use 2 2
H Priority Motel, Office, Education 2 .68 Downtown Outer Core Urban Mixed-use 12 12
I Catalyst Industrial; Vacant 7 .65 Marion Road Waterfront Urban Industrial 4 4
J Priority Vacant Lot 2 .58 Marion Road Waterfront Riverfront Mixed-use - RFO 1 1
K Catalyst Industrial; Vacant; Residential 36 .57 South Shore West Riverfront Mixed-use - RFO 14 8
L Value-Add Commercial 0 .75 South Shore Central Central Mixed-use 7 4
M Priority Vacant Lot; Tavern; Garage 2 .18 South Shore Central Central Mixed-use 10 5
N Value-Add Industrial; Commercial 0 .83 South Shore Central Central Mixed-use 1 1
O Value-Add Industrial; Commercial 0 .79 South Shore Central Central Mixed-use 6 5
P Catalyst Industrial; Commercial 39 .53 South Shore East Heavy Ind ., Central Mixed-use 25 16
Q Catalyst Commercial 15 .86 South Shore East Riverfront Mixed-use - RFO 1 1
R Priority Vacant 2 .75 South Shore East Urban Mixed-use - RFO 1 1
RFO: Riverfront Overlay
Source: Houseal Lavigne Associates; City of Oshkosh
Imagine Oshkosh | Center City Reinvestment Strategy30
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CENTER CITYOPPORTUNITYSITES
Add Value Site
Redevelopment Priority
Revelopment Catalyst
UNIVERSITY OF
WISCONSIN - OSHKOSH
3: Land Use & Development 31
4-5 Story Commercial/O ce
4 Story Multi-Family
Central courtyard for
residents
Perimeter landscaping screens
parking & maintains streetwall
Parking access om Pearl
Avenue & High Avenue
Centralized parking
Buildings hold corners &
maintain streetwall
REDEVELOPMENT PRIORITYSITE H
Located in the Downtown Outer Core Functional Subarea, this site is
bound by Jackson Street, Division Street, High Avenue, and Pearl Avenue.
The site is currently home to Town Motel, a few small residential
structures and office uses, a cosmology school, and an auto repair
facility. Collectively, the block represents a redevelopment opportunity
that can accommodate significant commercial and residential uses.
In this illustrative development concept, a 4-story residential
condominium/apartment building wraps around the western edges
of the block along Jackson Street, and a 4-story commercial/office
building anchors the eastern end of the block along Division Street.
Located in the central portion of the block between the two buildings
is a surface parking lot capable of serving both the residential and
commercial uses. Depending on the number of residential units and
total square footage of commercial/office, structured parking could be
included to accommodate increased densities.
Based upon existing market demand, residential development should
be mid- to high-range rental product. This could support some
affordable units, market rate owner occupied units, or senior living
options. The commercial/office structure is best suited as first floor
commercial with Class A office product above.
H
Imagine Oshkosh | Center City Reinvestment Strategy32
J
River ont plaza
for residents
6 Story Mixed-Use
At-grade enclosed
parking for residentsSurface parking in
ont for guests
Located on the corner of Jackson Street and Marion Road, this site
provides direct frontage along the Fox River within the Marion Road
Waterfront Functional Subarea. The site is approximately 2.58 acres
in size and is currently vacant. This is a highly desirable development
opportunity site as it provides a waterfront location and proximity to
the downtown core.
In this illustrative development concept, a 6-story mixed-use building
with first floor commercial and condominiums building above. The
building is located on the corner of the site with frontage along both
Jackson and Marion. The design of the building maximizes views to the
river for residents and provides an inviting open space/plaza along the
riverfront. Resident parking is provided with enclosed at-grade parking
on the first floor of the building, with guest parking provided in a
surface lot along Marion Street.
Based upon the site’s location, adjacent uses, market demand, and
water front access, the preferred type of residential product would be
market rate owner occupied condominiums. The site could also support
high-end rental or senior living options.
REDEVELOPMENT PRIORITYSITE J
3: Land Use & Development 33
REDEVELOPMENT PRIORITYSITE M
Central auto-court
with rear garage access
Rear surface parking lot
with access om 7th & 8th
Mixed-Use maintains
streetwall along Main
Rowhouses
Parking/alley acceess
om Nebraska
3-4 Story Commercial
M
Located in both the South Shore East and South Shore Central
Functional Subareas, this block serves as a transition between two
distinct, but adjacent areas, in the Center City. This opportunity site
is bound by S. Main Street on the east, Nebraska Street on the west,
7th Avenue on the north, and 8th Avenue on the south. Currently,
the majority of the block (eastern portion) is vacant, with a small bar
located along Nebraska at the west edge of the block, and a small
storage building just to the east of the bar.
Fronting S. Main Street and maintaining a strong streetwall, is a 4-story
mixed-use building with commercial/retail on the ground floor and
residential and/or office uses on the upper floors. Parking for this
building is located in a surface lot just behind (west) of the building,
with parking lot access from both 7th and 8th Avenues. To the west, is
a rowhouse development with units fronting 7th and 8th avenues. Rear
attached garages are accessed via a central driving aisle and auto court,
which is accessed from Nebraska, 7th, and 8th.
Given market demand and existing rowhomes on the site, the 3-4
story structure can best support high quality first floor spaces for local
commercial businesses. Upper floors should include either Class A
office spaces or high-end rental options. Market rate owner-occupied
units could also be supported, such as condominiums or lofts.
Imagine Oshkosh | Center City Reinvestment Strategy34
R
Located along the Fox River in the South Shore East Functional Subarea,
this development opportunity site is ideally suited for riverfront
residential development. This primarily vacant site is located at the
corner of Broad Street and Bay Shore Drive, just east of the railroad
tracks and adjacent to the Downtown Outer Core Functional Subarea.
This illustrative development concept shows a 5-story mult-family
building with at-grade enclosed parking on the first floor, with 4 floors
of residential on the upper floors. Guest parking is provided in a surface
lot to the north of the building along Bay Shore Drive. The development
is set in an open riverfront environment, with a riverfront plaza and
riverwalk trail for residents.
Given the location of this site, adjacent uses, and market demand,
the preferred type of residential product would be market rate owner
occupied condominiums; however, the site could also support high-end
rental or senior living.
River ont plaza
for residents
5 Story Multi-Family
At-grade enclosed
parking for residents
Surface parking in
ont for guests
REDEVELOPMENT PRIORITYSITE R
3: Land Use & Development 35
REDEVELOPMENT
CATALYSTS
Redevelopment of formerly industrial properties into residential,
mixed-use, and commercial uses has been occurring incrementally
for several decades, stretching back to the opening of the Park Plaza
Mall in July 1970 and the more recent residential development
along Marion Road and Pearl Avenue. The potential redevelopment
of vacant sites provides the City with a rare chance to shape the
City’s future in a big way. Further, redevelopment opportunities
such as these do not come along often and will have a lasting effect
on the community for generations to come.
These key redevelopment sites and projects include:
The Morgan Company Site (formerly a door manufacturer)
The Lamico Mobility Products Site (formerly a crutch
manufacturer)
The Buckstaff Edwards Company Site (formerly a casket and
furniture manufacturer)
Pioneer Island (formerly a resort)
The City should take a very active role in the future use, site design,
and overall planning of these redevelopment sites. This will include
final review of a development proposal; however, the City should
become involved as early as possible in the process. Given the
importance and impact of these projects, the City should provide
regulatory assistance and work collaboratively with potential
developers and property owners. This will help ensure that the final
product marries City and developer priorities in a way which will
benefit the Center City for decades to come.
Where appropriate, guidance has been provided as to the site’s
preferred role within the study area and the desired style of
development. Several broad elements should be encourage across
all key redevelopment sites and future opportunities sites within
the Center City, including:
Have an “urban” site design and architecture that fits into the
existing fabric of the center city.
Include residential units that can meet pent up residential
demand and increase density.
Provide amenities or experiences that are currently lacking in the
Center City and do not detract from existing uses and businesses.
Include quality office space that could support new office
tenants and accommodate expansion of existing businesses.
Have an engaging relationship with the waterfront, including open
spaces and attractive vista and view corridors to and from the water.
Pioneer Island (Q)
Pioneer Island is located east of Pioneer Drive, south of the
confluence of the Fox River and Lake Winnebago, within the South
Shore East subarea. Previously a resort, operations have since
ceased and the facilities remain vacant.
Moving forward, the City should use the Sawdust District
Redevelopment Plan as a guide for redeveloping Pioneer Island as a
new resort or entertainment-based facility, possibly including boat
slips, restaurants, lodging, entertainment, residential units, and
more. Given the unique location and high visibility of this site, it
should be developed as a pinnacle development and focal point for
the Center City, providing beautiful views of the lake and welcoming
individuals traveling into the community from the water.
Imagine Oshkosh | Center City Reinvestment Strategy36
The Morgan Company Site (K)
As of the drafting of this document, the Morgan Company Site is
being used by Oshkosh Corporation for vehicle storage, however,
plans are underway to redevelop the site. The new development,
called the Morgan District, would be a mixed-use district
comprised of a grocery store, commercial uses, multi-family units,
condominiums, and townhomes.
The City should continue to seek execution of this development
utilizing best practices to create a pedestrian-oriented, mixed-use
district. Completion of the project will dramatically alter the Center
City and place a significant emphasis on the south shore. As such,
the City should carefully review all proposed site designs to ensure
final construction results in an attractive, high quality, and inviting
development along the river. In particular, the Riverwalk should
be thoughtfully integrated to the development as an example of
riverfront development in the future.
The Lamico Mobility Products Site (I)
The Lamico Mobility Products Site is located at the center of the
Marion Road Waterfront functional subarea. Previously home to
Lamico Mobility Products, a crutch manufacturer, operations have
since ceased and the facility remains vacant. Given its location, the
redevelopment of this site will have a significant impact on the
surrounding area and should set a standard for future development
within the Marion Road Waterfront subarea. As of the drafting of
this Plan, the City has recieved a development proposal for this site.
New investment should be pedestrian-oriented, mixed-use,
and include some form of public space. The City should work
with potential developers to explore options for a public plaza,
pocket park, or other form of public space to be included as part
of redevelopment. Additionally, this should include a connection
to the Oshkosh Riverwalk and other adjacent residential
developments. This would help create a public gather space at the
center of the subarea which contributes to a more neighborhood
friendly environment. Adaptive reuse of the existing facility is
not recommended for this site given the nature of uses in the
surrounding area.
The Buckstaff Company Site (P)
The Buckstaff Company Site is located just east of Main Street
between 11th Avenue and South Park Avenue, within the South
Shore East subarea. Previously home to the Buckstaff Company, a
casket and furniture manufacturer, operations have since ceased
and the facilities remain vacant. As of the drafting of this Plan,
the City has received a development proposal for part of this site,
which is reflective of visualizations included in the Sawdust District
Redevelopment Plan. This development is now under construction.
Moving forward, the City should continue to utilize the Sawdust
District Redevelopment Plan for this site to guide redevelopment,
either individually or as part of a larger redevelopment project.
This site is large enough to accommodate a range of large-scale
development not accommodated in most parts of the Center
City. As such consideration should be given to larger uses that
require a greater land area, such as corporate/office complexes,
large entertainment venues, and more. New investment should be
pedestrian-oriented, provide a mix of uses, and help to bridge the
gap between residential neighborhoods and the Lake Winnebago
waterfront. In addition, new development should be considerate of
existing uses, including residences, on the west side of Main Street.
Development on this site will have a significant impact on the
appearance of the south shore and provide an example for future
development within the subarea.
3: Land Use & Development 37
45
3
11
10
13
12
9
4
5
2
1
8
6
1. Pedestrian gathering area
2. Riverwalk at breakwall
3. Open space and trails
4. Condos
5. Existing boat house
6. Existing boat docks
7. Pedestrian bridge connecting to the
riverwalk at breakwall
8. Existing boat storage area
9. Existing railyard
10. Parking for the temporary stadium,
trails, and open space
11. Temporary stadium (potential
recreational facility)
12. Parking for the permanent stadium
and open space
13. Parking deck for permanent
stadium, recreational facility, trails and
open space
14. Permanent stadium
15. Trails and open space
16. Hotel / resort
17. Access point to pioneer island
18. Condos
trails, and waterfront access
20. Pedestrian bridge
21. Parking deck (screen railyard)
22. Parking for Stadium and mixed use
development along Main Street
23. Plaza and open space
24. Mixed use development
(retail/restaurants on the groundfloor
with office/residential above)
25. Primary entry to class A office
building
27. Class A office building
28. Patio space overlooking the
waterfront and Downtown Oshkosh
Main Street
30. Gateway feature and plaza space
announcing the entrance into the
Sawdust District
31. Pedestrian bridge connecting
Sawdust District to Downtown
Oshkosh and waterfront trails
Sawdust DistrictRedevelopment Plan
Conceptual Visualization
Imagine Oshkosh | Center City Reinvestment Strategy38
45
15
23
14
7
17
16
20
18
19
21
22
25
26
28
27
30
31
24
29
1. Pedestrian gathering area
2. Riverwalk at breakwall
3. Open space and trails
4. Condos
5. Existing boat house
6. Existing boat docks
7. Pedestrian bridge connecting to the
riverwalk at breakwall
8. Existing boat storage area
9. Existing railyard
10. Parking for the temporary stadium,
trails, and open space
11. Temporary stadium (potential
recreational facility)
12. Parking for the permanent stadium
and open space
13. Parking deck for permanent
stadium, recreational facility, trails and
open space
14. Permanent stadium
15. Trails and open space
16. Hotel / resort
17. Access point to pioneer island
18. Condos
trails, and waterfront access
20. Pedestrian bridge
21. Parking deck (screen railyard)
22. Parking for Stadium and mixed use
development along Main Street
23. Plaza and open space
24. Mixed use development
(retail/restaurants on the groundfloor
with office/residential above)
25. Primary entry to class A office
building
27. Class A office building
28. Patio space overlooking the
waterfront and Downtown Oshkosh
Main Street
30. Gateway feature and plaza space
announcing the entrance into the
Sawdust District
31. Pedestrian bridge connecting
Sawdust District to Downtown
Oshkosh and waterfront trails
Sawdust DistrictRedevelopment Plan
Conceptual Visualization
3: Land Use & Development 39
Imagine Oshkosh | Center City Reinvestment Strategy40
4
ECONOMIC DEVELOPMENT
& COMMERCIAL AREAS
This section of Imagine Oshkosh focuses on those components
most important to maintaining, reinforcing, and improving the
Center City as an economic engine for the community. The
three primary goals that drive this focus of the plan include: 1)
Establishing a critical mass of commercial uses in the Center City; 2)
Promoting mixed-use development within Center City as a means
of establishing commercial uses and the supporting residential
densities; and 3) Attracting employers and jobs to the Center City.
These recommendations clearly elevate the importance of the
Center City as an employment hub, and activity and commerce
center. This section includes a detailed retail analysis of the
region and identifies the types, locations, and potential for new
development that will take advantage of the downtown’s regional
position. This section not only identifies opportunities for new uses
and development, but stresses the importance of reactivating the
existing building stock for the mixed-use. When taken together,
these primary objectives will substantially improve the economic
strength and position of the Center City.
4: Economic Development & Commercial Areas 41
RETAIL MARKET
OVERVIEW
Central to the establishment of critical mass within the Center City
will be the growth of commercial uses, including retail and service
businesses. These uses support residents, generate regular activity,
make the Center City livable, and contribute to a unique retail
experience and sense of place which will attract individuals from
across the region. A thorough understanding and analysis of the
Center City’s retail market is necessary to determine how critical
mass can be directed and achieved.
The existing retail mix is relatively healthy, with a diversity of shops
catering to different needs and populations. In 2016, Center City
Oshkosh contained 130 retail businesses, including 51 bars and
restaurants, and annual retail sales were estimated at roughly
$62 million dollars. The character, scale, and type of retail varies
throughout the study area, with more auto-oriented retailers
on the northern fringe of the study area and boutique retail and
restaurants mostly concentrated within the Downtown Core and
Oregon Street functional subareas.
Today, the growth of online shopping through retailers such as
Amazon has impacted local shopping habits and reduced reliance
on physical stores. The retail opportunity within Center City
Oshkosh lies in the ability to provide (a) much needed day-to-
day services for residents and employees and (b) unique products,
experiences, and atmospheres that cannot be obtained online or in
big-box locations.
ECONOMIC DEVELOPMENT & COMMERCIAL AREAS GOAL
ESTABLISH A CRITICAL MASS OF COMMERCIAL USES
Successful downtowns are activity hubs consisting of a mixture of offices, residences, restaurants,
entertainment venues, outdoor spaces, recreation areas, shopping, and civic uses. This creates activity
on the street with people walking, biking, dining, spending time in the park, and attending events and
festivals. Such bustle and interaction is what draws people to downtowns across the country and
provides them a unique sense of place. The level and type of activity within Center City Oshkosh varies
by location, time of day, day of the week, and season. Activity tends to peak during the summer months
and weekends with events and festivals such as shows at the Grand Opera House, concerts at the
Leach Amphitheatre, and the Oshkosh Farmers Market. Establishing a critical mass of activity requires
aligning multiple public and private investments that can strengthen one another. If activity is too widely
dispersed, investment can be diluted, creating small pockets of activity that fail to add up to something
larger. As such, the City should target specific locations in the study area to consider for development
and encourage uses that will generate critical mass and support greater activity in the Center City.
RETAIL SNAPSHOT (2016)
CENTER CITY OSHKOSH, DOWNTOWN APPLETON,
DOWNTOWN FOND DU LAC, AND DOWNTOWN NEENAH
CENTER CITY
OSHKOSH
DOWNTOWN
APPLETON
DOWNTOWN
FOND DU
LAC
DOWNTOWN
NEENAH
Population
(Residential)2,784 2,763 1,758 886
Primary Workers
(Any Industry)5,512 9,656 3,114 6,084
Retail &
Food/Drink Sales*$62,506,474 $81,858,126 $48,499,317 $28,262,770
Retail Businesses 130 145 72 47
Home
Improvement Stores 5 3 1 1
General
Merchandise Stores 2 2 1 1
Food Stores 8 5 6 2
Auto-Related Stores 5 7 4 3
Apparel &
Accessory Stores 12 6 3 3
Furniture and Home
Furnishing Stores 8 14 7 4
Eating &
Drinking Places 51 66 21 22
Miscellaneous Retail 40 42 29 11
*Excludes Non-Store Retailers (ex: automated vending, online sales, catalogue sales, telephone solicitations)
Source: Houseal Lavigne Associates; ESRI Business Analyst
Imagine Oshkosh | Center City Reinvestment Strategy42
FOND DU LAC COUNTY
WINNEBAGO COUNTY
41
41
26
44
91
21
76
45
45
45
LAKE
WINNEBAGO
LAKE BUTTE
DES MORTS
CENTRAL CITY
PLANNING AREA
CITY OF
OSHKOSH
RETAIL SECONDARY MARKET AREA
RETAIL PRIMARY MARKET AREA
RETAIL MARKET AREA
4: Economic Development & Commercial Areas 43
COMPETITION
Center City Oshkosh performs a dual function, providing for the
day-to-day needs of residents while also serving an employee
population and those visiting for events, dining, boutique shopping,
and more. As such, Center City Oshkosh serves several target
groups of patrons.
Within a 5-minute drive of the core of the Center City (primary
market area), there is virtually no retail and dining competition,
making the Center City the primary day-to-day retail option for
the population within the core.
Within a 15-minute drive (secondary market area), retail and
dining competition is robust along the I-41 corridor between
exits 116 and 119, with chain businesses such as, Best Buy,
Buffalo Wild Wings, Walmart, and Target.
UNDERSTANDING THE GAP
Simply put, a gap analysis compares retail sales (“supply”) with
what consumers spend (“demand”) within a market area. When
consumers spend more than businesses earn (demand > supply)
in the market area, consumers are spending dollars outside of the
area. This is referred to as “leakage”. Typically, market areas with
leakage are potential opportunities for growth, as local demand for
these goods and services already exists but is unmet by existing
supply.
Conversely, when retail sales are more than consumers spend
(supply > demand) in a market area, the market is saturated with
customers from both within and outside the area. This is referred to
as a “surplus”. As the market is oversupplied with spending, a retail
category with surplus is challenging for new retail development.
Primary Market Area: Undersupplied by $62.6 Million
It is estimated that there is unmet demand for retail goods and
services totaling approximately $62.6 million. The primary market
area (5 minute drive time) contains 8,727 households in 2016 and
total retail demand is estimated at $226 million. Many categories
are experiencing some level of leakage, including Grocery Stores,
Health & Personal Care Stores, and General Merchandising Stores.
Secondary Market Area: Oversupplied by $70.9 Million
It is estimated that there is an oversupply of retail goods and
services totaling $70.9 million. The secondary market area (15
minute drive time) contains 30,844 households in 2016 and
total retail demand is estimated at $988 million. Relative to the
primary market area, it is more oversupplied, albeit there are retail
groupings that are undersupplied, including Furniture and Home
Furnishings, Electronics and Appliance Stores, Health and Personal
Care Stores, and Other General Merchandise Stores.
DEVELOPMENT POTENTIAL
Annual sales-per-square foot can be utilized to translate leakage
dollars into development potential. While sales per square foot
vary by individual retailer and industry, general assumptions of
supportable square footage can be made by using an industry
benchmark of $200 to $400 per square foot. For purposes of this
analysis, $400 was utilized for a more conservative approach that
does not overstate retail demand.
Data indicates unmet demand for new retail development in
both primary and secondary markets. There are some categories
that demonstrate potential market support for additional retail
development. Some of the retail that the Center City may be best
positioned to capitalize include:
Grocery Stores, with leakage of $14.3 million (43,357 supportable
square feet)
Limited Service Eating Places, with leakage of $2.6 million (6,520
supportable square feet)
Health & Personal Care Stores, with leakage of $10.8 million
(27,023 supportable square feet)
General Merchandise Stores, with leakage of $37.4 million
(93,446 supportable square feet).
Imagine Oshkosh | Center City Reinvestment Strategy44
RETAIL GAP ANALYSIS SUMMARY
CENTER CITY OSHKOSH - 5 & 15 MINUTE DRIVETIME (2016)
SUMMARY DEMOGRAPHICS 5 MINUTE DRIVETIME 15 MINUTE DRIVETIME
2016 Population 23,282 76,170
2016 Households 8,727 30,844
2016 Median Disposable Income $27,901 $36,248
2016 Per Capita Income $17,090 $24,850
SUMMARY RETAIL GAP ($M)
5 MINUTE DRIVETIME 15 MINUTE DRIVETIME
Total Retail Trade and Food & Drink $62 .6 -$70 .9
Total Retail Trade $70 .5 -$63 .7
Total Food & Drink -$7 .9 -$7 .2
INDUSTRY GROUP RETAIL GAP ($M)SQ. FT. POTENTIAL1 RETAIL GAP ($M)SQ. FT. POTENTIAL1
Auto Parts, Accessories, & Tire $1 .6 4,057 ($9 .8)(24,574)
Furniture & Home Furnishings Stores $4 .2 10,471 $14 .0 34,964
Furniture Stores $3 .1 7,754 $12 .2 30,524
Home Furnishings Stores $1 .1 2,717 $1 .8 4,440
Electronics & Appliance Stores $1 .7 4,327 $15 .7 39,301
Bldg Materials, Garden Equip . & Supply Stores ($1 .8)(4,524)($30 .8)(77,124)
Building Material and Supplies Dealers ($3 .7)(9,321)($32 .2)(80,488)
Lawn and Garden Equipment and Supplies Stores $1 .9 4,797 $1 .3 3,364
Food & Beverage Stores $14 .3 35,742 ($7 .3)(18,159)
Grocery Stores $17 .3 43,357 ($14 .5)(36,323)
Specialty Food Stores ($2 .2)(5,625)$3 .6 8,935
Beer, Wine, and Liquor Stores ($0 .8)(1,991)$3 .7 9,230
Health & Personal Care Stores $10 .8 27,023 $16 .3 40,861
Gasoline Stations $2 .6 6,475 ($6 .2)(15,508)
Clothing and Clothing Accessories Stores ($1 .8)(4,516)$1 .3 3,249
Clothing Stores ($1 .5)(3,837)$3 .4 8,464
Shoe Stores $1 .1 2,711 ($4 .5)(11,184)
Jewelry, Luggage, and Leather Goods Stores ($1 .4)(3,391)$2 .4 5,969
Sporting Goods, Hobby, Book, and Music Stores ($1 .3)(3,126)($0 .2)(570)
Sporting Goods/Hobby/Musical Instrument Stores $1 .0 2,474 $0 .0 111
Book, Periodical, and Music Stores ($2 .2)(5,600)($0 .3)(681)
General Merchandise Stores $37 .4 93,446 ($2 .5)(6,234)
Department Stores Excluding Leased Depts .$32 .7 81,874 ($23 .1)(57,835)
Other General Merchandise Stores $5 .6 13,879 $20 .6 51,601
Miscellaneous Store Retailers $2 .8 6,893 ($54 .2)(135,536)
Florists $0 .2 580 ($3 .6)(8,966)
Office Supplies, Stationery, and Gift Stores $0 .7 1,708 ($0 .0)(29)
Used Merchandise Stores ($0 .3)(782)$0 .7 1,702
Other Miscellaneous Store Retailers $2 .2 5,387 ($51 .3)(128,243)
Food Services & Drinking Places ($7 .9)(19,739)($7 .2)(17,967)
Full-Service Restaurants ($4 .1)(10,264)$1 .7 4,215
Limited-Service Eating Places $2 .6 6,520 ($5 .2)(13,049)
Special Food Services $0 .0 83 $1 .2 3,082
Drinking Places - Alcoholic Beverages ($6 .4)(16,078)($4 .9)(12,215)
Non-Store Retailers, Automotive Dealers, and Motor Vehicle Dealers excluded from analysis.
1 Potential based on an average annual sales per-square-foot of $400.
Totals are subject to rounding errors.
Source: ESRI Business Analyst ; Houseal Lavigne Associates
4: Economic Development & Commercial Areas 45
CENTER CITY VACANCY
The City should guide infill development and investment within the
Center City to reduce overall vacancy but, more importantly, break
up clusters of vacant parcels and properties. This will help to limit
the visual impact of vacancy within the study area and contribute
to greater critical mass.
Within the Center City, only 12.5% of parcels are vacant and only
2.3% of buildings are fully vacant . Roughly one in ten buildings are
either fully vacant, partially vacant, or underutilized, based upon
field reconnaissance and assessment data provided by the City.
From a perception standpoint, vacancy can often seem more acute
due to the concentration of vacancy within a few areas and several
very prominent sites being vacant or underutilized.
The conversion of vacancies into new development can help
improve resident’s impressions of the Center City, demonstrating
the City’s dedication to the area and the potential for new
investment. In general, infill development should be guided to
properties south of the Fox River where the largest clusters of
vacant properties and buildings are found. However, the completion
of major development projects, such as the Morgan Door site, will
greatly decrease the appearance of vacancy south of the River and
should help attract further investment.
SHORT-TERM USES
As discussed, often the appearance of vacancy, rather than vacancy
itself, can be more damaging to activity within a community’s
downtown. To limit this visual impact, the City should explore
opportunities for short-term uses to occupy vacant properties by
creating activity on otherwise underutilized properties. Temporary
uses could include urban farms, pocket gardens, pop-up markets,
public plazas, or public art installations.
Further, these spaces can be seen as ‘workshops’ to test new
ideas on a short-term basis and determine if more permanent
development is viable. For example, the City could set up a
temporary dog park on a vacant property and measure activity
and frequency of uses. This would help to determine the feasibility
of developing a permanent dog park in the Center City prior
to permanent development. The City should coordinate with
property owners to seeks these types of temporary uses which will
contribute to critical mass within the Center City.
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VACANT LOTS &
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IMAGINE OSHKOSH VACANCY SNAPSHOT (2016)
CATEGORY NUMBER PERCENT OF
STUDY AREA
Vacant Parcels 66 parcels 12 .5% (acreage)
Fully Vacant Buildings 25 buildings 2 .3% (buildings)
Partially Vacant Buildings 73 buildings 6 .8% (buildings)
Imagine Oshkosh | Center City Reinvestment Strategy46
CRITICAL MASS
PRIORITY AREAS
Based upon market demand, vacancy, and existing conditions,
critical mass priority areas have been established within the
Center City. These areas indicate where future development and
investment will have the greatest impact and support increased
activity. The City should work with developers to encourage
investment within these areas. This can include new construction
as well as infill projects, renovation, or adaptive reuse. It is
important to note that the City should not discourage development
outside of these areas. Rather, critical mass priority areas should
be emphasized as preferable for development. The City should
consider offering incentives which will encourage development
within the critical mass priority areas, such as regulatory assistance
or a ‘fast-track’ approval process. Critical mass priority areas include
the following:
DOWNTOWN OUTER CORE
The Downtown Outer Core should be the City’s top priority for
new investment and development moving forward. This area
completely surrounds the Downtown Core, the most active district
of the Center City and the largest concentration of critical mass.
However; the lack of critical mass within the Downtown Outer Core
directly negates that in the Downtown Core and contributes to
an impression of vacancy or inactiveness within the Center City.
New development within the Downtown Outer Core should help
to round out a concentration of critical mass, activity, and vitality
at the community’s core. Over time, this district should also be the
beneficiary of developing expanding outward as the Downtown
Core sees continued investment.
DOWNTOWN CORE
Overall, the Downtown Core already has the greatest concentration
of critical mass within the Center City. However, this area functions
as the heart of the Oshkosh community. As such, the City should
continue to encourage development within this area and build
on the existing critical mass. Over time, investment within the
Downtown Core should expand outward, helping to generate
greater critical mass in the surrounding districts, in particular the
Downtown Outer Core.
SOUTH SHORE CENTRAL
The South Shore Central area acts as a gateway from districts
south of the Fox River into the heart of the Center City. As such,
investment here will have a significant impact on the appearance of
the Center City and can serve as a transition to the higher density
development north of the river. Further, the area is sandwiched
between the South Shore West and South Shore East functional
subareas, which could be the site of major development projects
in the next 5-10 years. Critical mass within the South Shore Central
subarea will help to link these development projects through a
unique and existing district.
SOUTH SHORE WEST
The South Shore West is largely defined by the vacant 27-acre
Morgan Door site, and is already planned for a mixed-use district
comprised of a grocery store, commercial uses, multi-family units,
condominiums, and townhomes, to be called the Morgan District.
This will certainly bolster the critical mass of the Center City and set
the tone for large scale investment south of the river.
SOUTH SHORE EAST
Containing some of the largest parcels with development
potential in the Center City, the South Shore East area represents
an incredible opportunity for transformative and critical mass
contributing development. Similar to the vacant Morgan Door site,
the vacant Pioneer Island and the Buckstaff Company sites present
a scale of development and investment not found in other areas of
the Center City. The South Shore East area is uniquely positioned
to accommodate large office/corporate uses, waterfront hospitality
uses, recreation and entertainment uses, and retail and dining uses
along Main Street.
4: Economic Development & Commercial Areas 47
Lake
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CENTER CITYCRITICAL MASSPRIORITY AREAS
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UNIVERSITY OF
WISCONSIN - OSHKOSH
Imagine Oshkosh | Center City Reinvestment Strategy48
PREFERRED USES TO
BUILD CRITICAL MASS
Based upon the retail market and Center City economy, the City should
attract the following preferred uses in order to generate activity within the
priority areas:
Large-scale corporate/office campus, bringing jobs and
employment opportunities to the Center City, helping to
support local retail, restaurant, and service uses, as well as
igniting investment in residential areas of the Center City and
surrounding neighborhoods.
Small independent or boutique stores which sell a variety of goods,
such as clothing, books, music, antiques, or furniture. These will help to
contribute to creating a retail district with a unique sense of place and
shopping experience.
Businesses which provide a variety of services, such as beauty
salons, barber shops, dry cleaners, tailors, or day spas. These
will support the daily needs of residents from throughout the
community.
Restaurants and eateries. This can include full-service
restaurants, coffee shops, bakeries, and cafés. Emphasis should
be placed on restaurants which offer a variety of dinner-time
options as well as those which service quick, take-away lunches
to support employees in the Center City.
Bars, taverns, and clubs. These provide spaces for community
interaction and should be encouraged to include spaces for live
music or performance.
Theaters, comedy clubs, or performance venues. These spaces
provide entertainment and support local arts and culture.
Art galleries, museums, dance studios, and other uses which
provide artistic, educational, or cultural experiences.
Grocery stores or niche food retailers, such as a grocery
which specializes in a specific cuisine. The current market
demonstrates demand for a grocery store within the Center City;
however, the study area can likely only support a single full-
sized grocery store. The on-going Morgan District development
may include a grocery store to fulfill this need.
Hotel and lodging uses to provide additional options for short-
term and long-term stays for visitors to Oshkosh.
It is important to note that these uses alone will not build critical
mass, and should be paired with other residential, office, and
commercial uses. However, given the nature of these uses, they
are most likely to result in greater activity and help reposition the
Center City as Oshkosh’s premier retail and entertainment district.
4: Economic Development & Commercial Areas 49
ECONOMIC DEVELOPMENT & COMMERCIAL AREAS GOAL
PROMOTE MIXED-USE DEVELOPMENT WITHIN CENTER CITY
Mixed-use development is a core component of most successful downtown areas, generating activity
by combining ground-floor commercial activity with residential uses above. Mixed-use buildings
exist throughout the Center City—including historic architecturally-significant mixed-use structures
that create a traditional streetwall along Main Street, to newer mixed-use development along the
river’s edge—mixed-use development embodies the essence of the traditional downtown fabric.
ACTIVATING MIXED-
USE BUILDINGS
CHALLENGES OF ACTIVATING EXISTING MIXED-USE BUILDINGS
Although the Center City Plan promotes mixed-use in many of the
functional subareas, at present, several buildings along North Main
(including within the downtown core as well as farther north) do not
fully utilize their mixed-use potential, with upper floors either vacant
or underutilized. This could be for a variety of reasons, such as the
complexity of converting a historic commercial building into residential
units, a lack of interest among ownership to activate the upper floors,
not meeting the requirements for contemporary office space or
residential floor plan layout, lack of sufficient dedicated parking, and/
or the need to use upper floors for building storage space.
ADVANTAGES OF UPPER FLOOR SPACE IN OLDER BUILDINGS
However, to counter the challenge of activating upper floors, there
are also benefits to upper floors of older mixed-use buildings,
including:
Often have lower rents than space in newer buildings
Typically located in the Downtown, rather than in fringe areas
Can provide a more authentic/historic/vintage charm including
brick walls, hardwood floors, high ceilings, and location within a
beautiful historic building
Close proximity to other goods, services, and activities
The space already exists
Imagine Oshkosh | Center City Reinvestment Strategy50
CAPITALIZING ON MIXED-USE OPPORTUNITIES
It is essential for the long term viability and vibrancy of the Center
City that existing mixed-use buildings, especially in the Downtown
Core and Downtown Outer Core, be fully activated, maintained
and enhanced as viable commercial and residential options within
the Center City marketplace. Many of these mixed-use buildings
represent the heart and soul and history of the Center City, and
provide unique opportunities for highly desirable residential units
and home for businesses that can help to define the Center City’s
overall identity, spirit, experience and unique sense of place.
To further capitalize on the mixed-use opportunities in the Center
City, the City of Oshkosh should consider the following:
Require Mixed-Used - Require that all new construction within
the Downtown Core and Downtown Outer Core be mixed-
use in nature – multi-story buildings with commercial on the
ground floor and office and/or residential on the upper floors.
Ease Implementation - Examine building codes and zoning
regulations (including occupancy and accessibility standards)
for opportunities to make it easier to activate, rehab, and
occupy the upper floors of older buildings, especially on Main
Street and Oregon Street.
Provide Assistance - Work with property owners of older/historic
buildings to seek and obtain grants to help cover the costs
associated with rehabilitating upper floors for occupancy.
Maintain an Inventory - Work with the Oshkosh Chamber of
Commerce, Downtown BID, Greater Oshkosh EDC, property
owners, and the business community to develop an inventory of
all available or underutilized upper floor spaces. This inventory
should be utilized to attract new businesses and encourage
development of new residential options.
4: Economic Development & Commercial Areas 51
ECONOMIC DEVELOPMENT & COMMERCIAL AREAS GOAL
ATTRACT EMPLOYERS AND JOBS TO THE CENTER CITY
A daytime workforce forms the backbone of many successful downtowns by stimulating retail and entertainment
spending, and generating significant daytime activity. The International Council of Shopping Centers (ICSC)
estimates that workers spend an average of $129 a week at stores and restaurants that are near their place of
work, including groceries, convenience items, and larger-ticket retail purchases. Over the past decade, employers
across the country have begun leaving their suburban and interstate-oriented office parks in favor of downtown
locations. This is due, in part, to employers needing to attract and retain talented young professionals, who prefer
downtown workplaces for their accessibility, affordability, and urban lifestyle options. Center City Oshkosh is well-
positioned to capitalize on these trends by attracting a variety of new businesses and employers to the community.
CENTER CITY ECONOMY
Center City Oshkosh is nearing the completion of a decades-
long transition away from being a manufacturing center and
retail hub towards an economy grounded in “knowledge”
industries, professional services, hospitality, boutique shopping,
and entertainment. A physical representation of this trend is the
transformation of the Park Plaza Mall, formerly a suburban-styled
indoor shopping mall, into City Center, a mixed-use office building
with more than 1,500 employees in various sectors.
In 2014, the Center City contained 5,521 jobs, a noticeable increase
over 2005 employment levels of 3,059 jobs. Total employment
also grew in both the City of Oshkosh (33,549 to 37,341) and the
five-county region (355,178 to 381,109) during the same time period.
Six of Oshkosh’s fifteen largest employers have a presence in the
Center City, including Winnebago County (1,018 jobs), 4Imprint (729
jobs), Silver Star Brands (650 jobs), the City of Oshkosh (569 jobs),
and Clarity Care (569 jobs).
Employment growth in the Center City over the past ten years has
outpaced the rest of the City, demonstrating the attractiveness of
opening or expanding a business within the Downtown area. Most
business leaders interviewed during the planning process believe
that the Center City is a desirable location for additional job growth,
with ready access to a regional talent pool and favorable business
climate at both the local and state level. Proximity to Oshkosh
Center City is also increasingly attractive for employers seeking to
recruit and retain younger talent.
0
1,000
2,000
3,000
4,000
5,000
6,000
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
TOTAL PRIMARY JOBS (2005 - 2014)
CENTER CITY OSHKOSH
3,059
5,512
11 .1%
14 .7%
17 .3%
21 .3%
32 .0%
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
30.0%
35.0%
Fond du Lac(3,114 jobs)
Oshkosh
(5,512 jobs)Green Bay(10,148 jobs)Appleton(9,656 jobs)Neenah(6,084 jobs)
%
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% OF A CITY'S JOBS LOCATED IN DOWNTOWN (2014)*
OSHKOSH & PEER CITIES
Imagine Oshkosh | Center City Reinvestment Strategy52
Menasha - The new One
Menasha Center (eight
stories; 115,000 square feet)
is an example of high quality
commercial development
that may be possible in
Center City Oshkosh to
accommodate new, existing,
and expanding employers.
Source: Menasha
Development Corporation
and Appleton Post-Crescent
Neenah - The proposed
Gateway office building in
Downtown Neenah is another
example of neighboring
communities building quality
office space in city cores.
Source: Neenah Downtown
Redevelopment Associates
and Appleton Post-Crescent
for the photo.
COMPETITION
Oshkosh’s Center City is in direct competition with other
downtowns across the region. Only 2.4% of Center City employees
live in the study area, while 42.5% of these workers are traveling
from other communities in the region. As of June 2016, there
was roughly 450,000 square feet of commercial space for lease
and 424,161 square feet for sale collectively in the downtowns of
Appleton, Fond du lac, Neenah, Menasha, and Oshkosh. The ability
of the Center City to compete will depend on pricing, amenities,
the location requirements of the tenant, housing availability for
employees, and more.
Based upon both projected trends and the current economy of the
study area, the City should aim to attract 21st Century employers to
the Center City through the following recommendations.
Actively recruit new businesses and employers to move to the
Center City. The City should work collaboratively with the
Chamber of Commerce, the Downtown BID, Greater Oshkosh
Economic Development Corporation, and other organizations
to seek out opportunities to bring a variety of employers,
businesses, and industries to the Center City.
Foster the development of additional office space, with
a particular focus on “Class A” product. Employers and
stakeholders often cited the lack of quality office space as
a limiting factor for the Center City. While there has been
considerable residential development in recent years, office
development has been modest and the majority of commercial
buildings are dated, lack modern amenities, and do not offer
the necessary floor plans or square footage for larger tenants.
The City should encourage the development of a variety of
office space products, including the potential for high quality
office towers, such as those in Neenah (Neenah Towers, Gateway
Tower) and Menasha (One Menasha Center). The greatest
emphasis should be placed on development of office spaces
which are sizable, class A product, and provide high quality,
modern amenities.
Incorporate office spaces within mixed-use redevelopment
projects of considerable size. This should include, in particular,
the Morgan Door Site.
ECONOMIC BENEFITS OF NEW
OFFICE EMPLOYEES (2016)
CENTER CITY OSHKOSH
IF THE CENTER
CITY ADDED X
NEW OFFICE
EMPLOYEES…… .POTENTIAL ECONOMIC BENEFITS INCLUDE
NEW SQUARE
FOOTAGE
DEMAND (SF)
NEW RETAIL
SPENDING ($)
NEW
RESIDENTIAL
DEMAND (UNITS)
50 9,250 $335,400 1
100 18,500 $670,800 2
250 46,250 $1,677,000 6
500 92,500 $3,354,000 12
750 138,750 $5,031,000 18
1,000 185,000 $6,708,000 24
1,500 277,500 $10,062,000 36
Assumes 185 square feet per office worker; $129 in spending at nearby businesses per week; and a 2.4% capture rate of employees to residents (existing rate)
Source: Houseal Lavigne Associates; International Council of Shopping Centers; US Census Bureau; CoStar
Employed in Center City
Live Outside
Live in Center City
Employed Outside
Employed & Live
in Center City
INFLOW / OUTFLOW VENN DIAGRAM
CENTER CITY OSHKOSH
696people
134people
5,378people
4: Economic Development & Commercial Areas 53
RECOMMENDATIONS
Encourage development of office space along the south shore
of the Fox River. Vacant or underutilized parcels on the south
shore should accommodate new office space and help improve
the appearance of the study area. The City should consider
appropriate parcel consolidation to form larger redevelopment
opportunities along the south shore which could help recruit
larger users. In addition, waterfront access and proximity to
amenities could assist with attracting a corporate headquarter
or higher-profile company.
Encourage the conversion of underutilized industrial buildings
into mixed-use office spaces. Though this should be encouraged
throughout the study area, the South Shore Central subarea is
the most appropriate locations for these kinds of conversions.
Renovations should result in high-quality, viable office spaces
which are competitive in the modern economy. All conversions
should feature a mix of uses beyond just office space, including
retail, restaurant, and services uses on the ground floor.
Develop an inventory of all vacant and available office spaces within
the Center City to encourage infill and attract new businesses. This
should include vacant upper floor spaces, vacant buildings, vacant
parcels, and an evaluation of the current state and necessary repairs
for use as an office space. This inventory can be used to promote
business growth in the Center City and help with businesses looking
to move or expand to the Center City. A focus should be placed on
filling vacancies in the City’s three largest office buildings (111 N. Main
Street, 217 N. Main Street, and 404 N. Main Street) which collectively
account for 90,000 square feet of available space.
Assist property owners and developers with making necessary
improvements to existing office spaces. These improvements
should seek to update dilapidated or outdated spaces to
be competitive within the current economy. This can be
accomplished through loans and grants that support necessary
maintenance, regulatory assistance, and help with applying for
state or national funding.
EMPLOYMENT BY INDUSTRY (2014)
CENTER CITY OSHKOSH
EMPLOYEES
INDUSTRY (NAICS CODE)5,512 100%
Public Administration 1,223 22 .2%
Professional, Scientific, and Technical Services 903 16 .4%
Retail Trade 779 14 .1%
Accommodation and Food Services 727 13 .2%
Finance and Insurance 393 7 .1%
Health Care and Social Assistance 319 5 .8%
Other Services (excluding Public Administration)319 5 .8%
Admin & Support, Waste Mgmt & Remediation 259 4 .7%
Wholesale Trade 151 2 .7%
Information 117 2 .1%
Real Estate and Rental and Leasing 79 1 .4%
Manufacturing 62 1 .1%
Management of Companies and Enterprises 61 1 .1%
Construction 43 0 .8%
Arts, Entertainment, and Recreation 40 0 .7%
Educational Services 37 0 .7%
Agriculture, Forestry, Fishing and Hunting 0 0 .0%
Mining, Quarrying, and Oil and Gas Extraction 0 0 .0%
Utilities 0 0 .0%
Transportation and Warehousing 0 0 .0%
Source: U.S. Census Bureau; Houseal Lavigne Associates
EMPLOYMENT BY INDUSTRY (2014)
CITY OF OSHKOSH
EMPLOYEES
INDUSTRY (NAICS CODE)37,414 100%
Manufacturing 8,955 23 .9%
Health Care and Social Assistance 5,770 15 .4%
Retail Trade 4,776 12 .8%
Accommodation and Food Services 3,037 8 .1%
Educational Services 3,011 8 .0%
Public Administration 2,682 7 .2%
Wholesale Trade 1,390 3 .7%
Finance and Insurance 1,342 3 .6%
Other Services (excluding Public Administration)1,288 3 .4%
Professional, Scientific, and Technical Services 1,197 3 .2%
Construction 1,182 3 .2%
Admin & Support, Waste Mgmt & Remediation 1,035 2 .8%
Transportation and Warehousing 671 1 .8%
Management of Companies and Enterprises 329 0 .9%
Real Estate and Rental and Leasing 274 0 .7%
Information 271 0 .7%
Arts, Entertainment, and Recreation 167 0 .4%
Utilities 31 0 .1%
Agriculture, Forestry, Fishing and Hunting 3 0 .0%
Mining, Quarrying, and Oil and Gas Extraction 3 0 .0%
Source: U.S. Census Bureau; Houseal Lavigne Associates
Imagine Oshkosh | Center City Reinvestment Strategy54
Establish an innovation district dedicated to fostering
technology and creativity based industries. Between 2005 and
2014, the number of Center City jobs within the “Professional,
Scientific, and Technical Services” industry doubled from 457
jobs to 903 jobs. Examples of such employers include Oraculur
Systems, ImproMed, Dealersocket, AccuCom, and 4Imprint.
Understanding the importance of these industries, the City
should create a dedicated innovation district in the Center City.
Innovation districts provide both the regulatory and physical
atmosphere to support less conventional industries which
deal most in creativity and innovation. Amplify Oshkosh, a
local organization focused on growing the tech economy in
Oshkosh, should be a partner in this project, and other tech-
based companies should be consulted in development of the
innovation district.
Work with Amplify Oshkosh to explore the potential of a
shared-use or collaborative space. These kinds of uses provide
space for multiple, separate companies and entrepreneurs, as
well as workshops and shared-spaces which foster collaborative
and interaction between individuals working in different
industries and sectors. They foster innovation and creativity by
allowing greater communication between a variety of industries
and fostering an atmosphere of cooperation and support
between diverse users. The City should research existing
shared-use and collaborative spaces elsewhere in the country,
such as the South Boston Waterfront, to assist with the creation
of a similar space in Oshkosh.
Develop a ‘Work Oshkosh, Live Oshkosh’ campaign geared
toward promoting the community as the best place in the
region to live, work, and establish a business. Given the high
percentage of individuals commuting to Oshkosh from other
communities, this campaign should advertise the benefits
of living and working within Oshkosh and demonstrate the
quality of residential products and local amenities. In addition,
this campaign should promote the benefits of developing
property within the Center City compared to other downtown’s
in the region. Ultimately, the campaign should give the City a
competitive edge over other communities in the region and
elevate Oshkosh as the premier community in Wisconsin to live
and work. Establishment of such a campaign will require careful
coordination and cooperation between the City and various
distinct groups, such as the Oshkosh Convention & Visitors
Bureau, the Oshkosh Chamber of Commerce, the Greater
Oshkosh EDC, the Rotary Club of Oshkosh, and others.
Establish clearly marked, easily navigable routes into the
Center City. These should include not only wayfinding signage
and gateway markers, but also streetscaping and other
improvements that make a visual route that invites visitors into
the Center City.
South Boston Waterfront In 2010,
Boston Mayor Tom Menino renamed
the South Boston waterfront the
“Innovation District,” given the
growing amount of creative industry
companies moving to the area. While
previously the focus of numerous
planning initiatives, the district’s
new image as a home for innovation
helped to attract start-ups, creative
industry companies, and a mix of
commercial and residential uses. This
included the creation of District Hall,
the nation’s first public innovation
center.
4: Economic Development & Commercial Areas 55
Imagine Oshkosh | Center City Reinvestment Strategy56
5
HOUSING & RESIDENTIAL
AREAS
A robust residential component and strong housing market is
a hallmark of most successful downtowns. As such, a priority of
Imagine Oshkosh is to increase Center City’s residential density
and stabilize the surrounding residential neighborhood areas.
While Center City does offer a variety of residential dwelling types,
with more currently being proposed and developed, increased
residential density and a greater variety of residential product will
strengthen the draw of the Center City as a viable and attractive
residential destination for empty nesters, young professionals, and
many others looking to live in an attractive and active mixed-use
environment.
Additionally, the predominantly single-family neighborhoods that
surround a downtown must remain well maintained and attractive.
In cities with strong downtowns, the surrounding neighborhood are
among the most desirable, often providing an affordable home in
close proximity to dining, shopping, and entertainment. A goal for
Oshkosh is to ensure the neighborhoods surrounding the Center
City improve over time, attract reinvestment, and are considered an
important component and a strength of the Center City
5: Housing & Residential Areas 57
In 2016, the Center City population was an estimated 2,784,
accounting for 4.2% of the City’s total population. This is the
highest percentage of any downtown in the region, compared to
Fond du Lac (4.1%), Green Bay (4.0%), Appleton (3.7%), and Neenah
(3.5%). The Center City population is projected to see steady
growth in the next five years mirroring trends in the surrounding
community. A growing population shows continued interest and
desirability in living in Center City Oshkosh. With several new
market-rate housing developments either proposed or underway,
it is very possible that Center City Oshkosh will outperform
population projections.
Compared with the surrounding community, Center City Oshkosh
residents are much younger and less affluent, likely due in part
to the concentration of University students and the location of
housing authority developments in Center City.
In 2016, there were an estimated 1,458 housing units in the
Center City study area, accounting for 5.1% of housing units within
Oshkosh, the highest concentration of any downtown in the region.
Similar to the population, the total number of housing units is
expected to grow in the next five years, and may exceed projects
based upon on-going or proposed development projects. Multi-
family units account for the majority (49%) of the housing stock,
compared to single-family detached units (28%) and single-family
attached units (23.1%).
HOUSING & RESIDENTIAL AREAS GOAL
INCREASE CENTER CITY’S RESIDENTIAL DENSITY
Residents create vitality by simply strolling through a downtown, patronizing businesses,
and filling public spaces. Downtown dwellers afford round-the-clock activity, offering a
consistent customer base for Center City businesses, particularly on weekends and evenings
when the daytime workforce is not present. Along these lines, developers and businesses
would be more likely to invest in a Center City with a solid residential population.
Center City Oshkosh can support a greater level of residential density, including new
“ground-up” construction on sites that are currently vacant or used for parking, the
conversion of vacant or underutilized upper floors of existing buildings into apartments
or condominiums, adaptive re-use of historic structures for multi-family redevelopment,
and reinvesting in single-family detached homes and rowhomes in neighboring blocks. The
City should encourage new residential growth in a manner that will increase the residential
population while reinforcing and enhancing the urban atmosphere of the Center City.
Imagine Oshkosh | Center City Reinvestment Strategy58
41
41
LAKE
WINNEBAGO
APPLETON
MENASHA
OSHKOSH
FOND DU LAC
NEENAH
RESIDENTIALMARKET AREA
5: Housing & Residential Areas 59
0.0%
1.0%
2.0%
3.0%
4.0%
5.0%
6.0%
Oshkosh Appleton Fond Du Lac Green Bay Neenah
% of City Residents Living Downtown % of City Housing Units Located in Downtown
DOWNTOWN SHARE OF POPULATION & HOUSING
OSHKOSH & PEER CITIES
4.2%4.1%4.0%
3.5%
5.1%
4.7%4.6%4.9%4.9%
3.7%
Single Family Detached Single Family Attached & Duplex Multi Family
CENTER CITYOSHKOSHMARKETAREA
AVERAGE HOUSING TYPE (2010 - 2014)
CENTER CITY OSHKOSH & MARKET AREA
62.9%
12.9%
24.2%28.0%
23.1%
1939 or Earlier
1940 - 1949
1950 - 1959
1960 - 1969
1970 - 1979
1980 - 1989
1990 - 1999
2000 - 2009
2010 - 2014
0%10%20%30%40%50%60%
Center City Oskhosh Market Area
AVERAGE HOUSING UNITS BY AGE (2010 -2014)
CENTER CITY OSHKOSH & MARKET AREA
0
200
400
600
800
1,000
1,200
1,400
1,600
2010 2016 2021
Owner Occupied Renter Occupied Vacant
TOTAL HOUSING UNITS (2010, 2016, 2021)
CENTER CITY OSHKOSH
1,4581,431 1,505
DEMOGRAPHIC SUMMARY (2010, 2016, 2021)
CENTER CITY OSHKOSH, PRIMARY MARKET AREA (PMA),
SECONDARY MARKET AREA (SMA)
CENTER CITY
2010 2016 2021
Projected Change
(2010-2021)
Population 2,630 2,784 2,874 +244 +9 .3%
Households 1,315 1,390 1,437 +122 +9 .3%
Average Household Size 1 .96 1 .97 1 .97 +0 .01 +0 .5%
Median Age 25 .0 25 .4 26 .5 +1 .5 +6 .0%
Median Household
Income --$21,101 $20,673 -$428 -2 .0%
PRIMARY MARKET AREA - 5 MINUTE DRIVETIME
2010 2016 2021
Projected Change
(2010-2021)
Population 22,070 22,223 22,396 +326 +1 .5%
Households 8,446 8,589 8,691 +245 +2 .9%
Average Household Size 2 .31 2 .30 2 .29 -0 .02 -0 .9%
Median Age 25 .8 26 .8 27 .4 +1 .6 +6 .2%
Median Household
Income --$33,607 $32,398 -$1,209 -3 .6%
SECONDARY MARKET AREA - 15 MINUTE DRIVETIME
2010 2016 2021
Projected Change
(2010-2021)
Population 75,396 76,036 76,629 +1,233 +1 .6%
Households 30,192 30,785 31,179 +987 +3 .3%
Average Household Size 2 .27 2 .25 2 .24 -0 .03 -1 .3%
Median Age 35 .2 36 .1 37 .1 +1 .9 +5 .4%
Median Household
Income --$45,916 $51,103 +$5,187 +11 .3%
Sources: U.S. Census; ESRI Business Analyst; Houseal Lavigne Associates
Imagine Oshkosh | Center City Reinvestment Strategy60
ACTIVATING EXISTING
UPPER FLOOR SPACES
Oshkosh’s Center City contains a considerable stock of upper floor
spaces, particularly within the Downtown Core and Oregon Street
functional subareas. These spaces are often found within historic
structures of buildings with unique architectural elements which
contribute to overall character. As previously discussed, the City
should promote mixed-use within the Center City, not just through
new development, but also through the utilization of vacant upper
floors spaces. As an application of this strategy, the City should look
to activate existing upper floor spaces as residential units. Given
that many of these spaces are currently unoccupied, this allows
the City to grow the Center City population and provide a variety
of housing options without pursuing new construction or costlier
development scenarios.
Many of the existing upper floor spaces, while available, are
obsolete and do not meet market standards for residential use.
These spaces are often older and utilize outdated construction
materials and designs which do not support modern utilities or
appliances. In addition, many upper floor spaces do not offer
available parking, ADA accessibility, or other features commonly
offered today.
However, when modernized, older or historic spaces are often
highly competitive on the residential market. Unique architectural
elements, such as exposed brick wall interiors, are generally
uncommon in today’s market and are highly sought after for their
character and sense of history. The City should work with property
owners to emphasize the potential benefits of activating upper
floor spaces and provide assistance where possible. This can
include regulatory assistance with permitting and project approval,
as well as other creative ideas to best position these spaces for
success. In particular, the City should work collaboratively to
identify options for properties without available parking and ensure
ADA accessibility where applicable.
NEW MULTI-FAMILY
DEVELOPMENT
In recent years, multi-family development is driving an increase
in building permits in the greater residential market area. Of all
permits issues in the market area, 74.6% were for multi-family
units, demonstrating the strength and desirability of multi-
family construction. However, while multi-family development is
increasing, multi-family development has been very limited within
area downtowns. Within Center City Oshkosh, however, there has
been no development of condominium buildings during the last
several years.
Throughout the outreach process, residents, developers, and local
stakeholders expressed interest in high-quality condominium
development within the Center City, particularly on vacant or
underutilized land near the waterfront. It is believed that such
development could set Oshkosh apart from other communities
because the market inventory for high quality waterfront
condominiums in an urban setting is very limited.
The typical condominium unit available in 2016 is a two-bedroom,
two-bathroom property with 1,788 square feet of space and
a price of $191,358. However, as one expects, prices vary based
upon location, size, and quality. New condominium developments
can list as high as $350,000 due to scenic views, high quality
finishes, and generous square footage; examples include the Banta
Court Townhomes in Appleton. Market support for higher end
condominium pricing is reflected in the Tax Increment Financing
Application for the new mixed-use Morgan District, submitted
by the developer in December 2015. The developer proposes 24
waterfront condominiums on the former Jeld Wen site will sell for
an average of $375,000 per unit.
0
100
00
00
00
00
00
00
2011 2012 2013 2014 2015
Single Family Two Family Multi Family
NEW CONSTRUCTION PERMITS - TOTAL UNITS (2011 - 2015)
MARKET AREA
149 182
18 30
421
622
5: Housing & Residential Areas 61
RESIDENTIAL DEMAND &
MARKET SHARE
Put simply, the demand for housing will be determined by the lease
rates or sales price of residential units and the types of product
offered. Traditionally, young professionals (age under 35) and empty
nesters (age over 55) are the predominant occupants of multi-
family units, while families (aged 35-54) are the predominant buyer
of single family homes. By examining how many householders fall
into various age and income cohorts, the demand for units of a
given housing type can be estimated.
It is assumed that approximately 28.4% of the eligible households
in the market area will purchase or rent a multi-family unit
in Oshkosh. These market share estimates are based on the
proportion of households in Oshkosh compared to the number
of total households in the market area. This percentage is applied
to the pool of potential qualifying home buyers and renters
to estimate the annual demand for similarly priced housing in
Oshkosh as a whole. Given this market share, it is estimated there is
potential demand within Oshkosh for:
205 middle-end condominium units
108 high-end condominium units
HOUSEHOLD DEMAND FOR APARTMENTS (2016)
MARKET AREA
APARTMENTS
($1,000 MONTHLY PRICE POINT)
Part 1: Age & Income 25-34 55-64 65-74 75+Initial Total
2016 Income Qualifying
Households
5,816 6,434 3,106 1,773 17,129
Part 2: Mobility 20 .9%5 .3%3 .4%3 .7%
Refined
Total
2016 Movers 1,216 341 106 66 1,728
Part 3: Ownership 48 .6%74 .9%75 .5%65 .0%
Refined
Total
2016 Home Ownership 624 86 26 23 759
Part 4: Oshkosh
Share 28 .4%28 .4%28 .4%28 .4%
Refined
Total
2016 Oshkosh
Buyers
177 24 7 7 216
Possible Demand for Apartment Units in Oshkosh: 216 Units
Source: Houseal Lavigne Associates; US Census Bureau; Zillow
HOUSEHOLD DEMAND FOR CONDOMINIUMS (2016)
MARKET AREA
MIDDLE-END CONDOMINIUMS
($200,000 PRICE POINT)
Part 1: Age & Income 25-34 55-64 65-74 75+Initial Total
2016 Income Qualifying
Households
3,998 5,801 2,319 1,038 13,156
Part 2: Mobility 20 .9%5 .3%3 .4%3 .7%
Refined
Total
2016 Movers 836 307 79 38 1,260
Part 3: Ownership 48 .6%74 .9%75 .5%65 .0%
Refined
Total
2016 Home Ownership 406 230 60 25 721
Part 4: Oshkosh
Share 28 .4%28 .4%28 .4%28 .4%
Refined
Total
2016 Oshkosh
Buyers
115 65 17 7 205
Possible Demand for Middle-End Condominiums in Oshkosh: 205 Units
HIGH-END CONDOMINIUMS
($375,000 PRICE POINT)
Part 1: Age & Income 25-34 55-64 65-74 75+Initial Total
2016 Income Qualifying
Households
2,066 3,167 1,312 482 7,027
Part 2: Mobility 20 .9%5 .3%3 .4%3 .7%
Refined
Total
2016 Movers 432 168 45 18 662
Part 3: Ownership 48 .6%74 .9%75 .5%65 .0%
Refined
Total
2016 Home Ownership 210 126 34 12 381
Part 4: Oshkosh
Share 28 .4%28 .4%28 .4%28 .4%
Refined
Total
2016 Oshkosh
Buyers
60 36 10 3 108
Possible Annual Demand for High-End Condominiums in Oshkosh: 108
Units
Source: Houseal Lavigne Associates; US Census Bureau; Zillow
Imagine Oshkosh | Center City Reinvestment Strategy62
216 apartment units
MARKET IMPLICATIONS
The Center City housing market is trending in a positive direction,
with a growing number of units, low vacancy, and significant
development activity. Based on recent development activity and
the potential for new investment, Center City Oshkosh is extremely
well-positioned for further residential growth, particularly in the
condominium market, which is likely currently undersupplied.
Continued residential density will facilitate spin-off retail spending
as well as increase the attractiveness for new retail development.
While there is demand for condominium and apartment units in
Oshkosh, several items must be noted:
First, the estimated demand numbers do not necessarily justify
new construction; demand could also be absorbed by turnover
of existing units and activation of the upper floors of existing
mixed-use buildings. However, few quality residential units are
located within or near the Center City or along the waterfront.
New units that are well-positioned, well-marketed, and well-
built have an excellent chance of capturing potential demand.
Second, the estimated demand numbers are city-wide and not
unique to the Center City. However, it is believed that the Center
City is the best positioned neighborhood within Oshkosh for
the type of multi-family development desired.
Thirdly, new residential development in Center City Oshkosh
will have to compete with new residential development that
occurs elsewhere in the market area, such as Appleton, Fond du
Lac, Menasha, and Neenah. To remain competitive, Oshkosh’s
units must be better positioned and offer greater value to the
prospective tenants or home buyers.
Lastly, one additional opportunity for residential growth
could be to market Oshkosh homes as vacation properties.
Condominiums on or near the waterfront could be attractive
summer properties for home buyers in other markets, such as
Chicago.
TENURE BY AGE OF HOUSEHOLDER (2010)
MARKET AREA
AGE
COHORT
OCCUPIED
UNITS
OWNER
OCCUPIED
UNITS
% OWNER
OCCUPIED
% RENTER
OCCUPIED
< 25 6,594 794 12 .0%88 .0%
25 - 34 16,598 8,073 48 .6%51 .4%
35 - 44 15,670 10,310 65 .8%34 .2%
45 - 54 18,517 13,339 72 .0%28 .0%
55 - 64 14,868 11,132 74 .9%25 .1%
65 - 74 8,390 6,335 75 .5%24 .5%
75+10,454 6,799 65 .0%35 .0%
Sources: Houseal Lavigne Associates; US Census Bureau; ESRI Business Analyst
HOME PRICING (2016)
CENTER CITY OSHKOSH
CONDOMINIUM
PRICING MIDDLE END HIGH END
Asking Price $200,000 $375,000
Downpayment 15%15%
Interest Rate 3 .38%3 .26%
Monthly Mortgage Payment $752 $1,389
Annual Mortgage Payment $9,024 $16,668
Annual PMI & Home
Insurance
$1,548 $2,208
Annual Assessments $3,600 $4,800
Annual Property Taxes $4,162 $7,804
Housing Costs as % of
Income
30%30%
Minimum Income Required $61,113 $104,933
APARTMENT PRICING
Monthly Rent $1,000
Annual Rent $12,000
Housing Costs as % of
Income
30%
Minimum Income Required $40,000
Sources: Houseal Lavigne Associates; Zillow Mortgage Calculator; Winnebago County; Investopedia
5: Housing & Residential Areas 63
RECOMMENDATIONS
Residential Growth - Encourage residential development within
the Center City in accordance with the described functional
subareas. This will support residential growth while ensuring
that development is in line with the City’s vision for distinct
areas of the Center City. Functional subareas should permit
residential uses as follows:
Downtown Core . Mixed-use residential, consisting of
apartments and condominiums on upper floors
Downtown Outer Core . Mixed-use residential, consisting
of apartments and condominiums on upper floors
North Main Commercial Corridor . Mixed-use residential,
consisting of apartments and condominiums on upper floors,
and single-family attached in limited select locations
Northwest Transition . Apartments, condominiums, single-
family attached and detached
Marion Road Waterfront . Apartments, condominiums,
and single-family attached. In particular, the Marion Road
Waterfront is a prime location for rowhomes which provide
high quality housing adjacent to the Fox River
South Shore West . Apartments, condominiums, and
single-family attached. In particular, the Marion Road
Waterfront is a prime location for rowhomes which provide
high quality housing adjacent to the Fox River
South Shore Central . Mixed-use residential, consisting of
apartments and condominiums on upper floors
South Shore East . Apartments, condominiums, and single-
family attached
Oregon Street . Mixed-use residential, consisting of
apartments and condominiums on upper floors, and single-
family attached in limited select locations
Supporting Neighborhoods . Single-family detached and
single-family attached in select locations
Limit Low Density - Prohibit single-family detached uses except
within the Supporting Neighborhoods functional subarea.
Prioritize Center City - Work with investors and developers to
focus residential investment to the Center City rather than
other areas of Oshkosh.
Direct Investment - Focus on the Downtown Core, Downtown
Outer Core, and Oregon Street functional subareas in the short-
term. This will help generate activity within the Center City by
building a critical mass of residential units intermixed with
commercial businesses.
Convert Upper Floors - Encourage the conversion of upper
floor spaces of mixed-use buildings to residential units where
appropriate. This should be strongly encouraged within the
Downtown Core and Downtown Outer Core subareas.
Follow the Plan - Review development proposals to ensure that
new residential investment is consistent with the surrounding
uses of that functional subarea or match the City’s desired
vision for that area, as described within the Plan.
Promote Adaptive Reuse - Work with property owners and
developers to explore adaptive reuse of historic or underutilized
properties for multi-family residential. This should be strongly
encouraged within the South Shore Central functional subarea.
Market Center City - Develop a ‘Work Oshkosh, Live Oshkosh’
campaign geared toward promoting the community as the best
place in the region to live, work, and establish a business. This
campaign should advertise the benefits of living and working
within Oshkosh and demonstrate the quality of residential
products and local amenities. In particular, this program should
target young professionals, professional households without
children, single mid-career professionals, and empty nesters.
Imagine Oshkosh | Center City Reinvestment Strategy64
MIXED-USE RESIDENTIAL
SINGLE-FAMILY DETACHED SINGLE-FAMILY ATTACHED
APARTMENT/CONDOMINIUM
SUPPORTING
NEIGHBORHOODS
SUPPORTING
NEIGHBORHOODS
SUPPORTING
NEIGHBORHOODS
SUPPORTING
NEIGHBORHOODS
SUPPORTING
NEIGHBORHOODS
SUPPORTING
NEIGHBORHOODS
SUPPORTING
NEIGHBORHOODS
NORTHWEST TRANSITION
NORTHWEST TRANSITION
NORTHWEST TRANSITION
NORTH MAIN
COMMERCIAL CORRIDOR
NORTH MAIN
COMMERCIAL CORRIDOR
OREGON STREET
OREGON STREET
SOUTH SHORE EAST
SOUTH SHORE EAST
SOUTH SHORE CENTRAL
DOWNTOWN CORE
DOWNTOWN OUTER CORE
MARION ROAD
WATERFRONT
SOUTH SHORE WEST
CENTER CITYRESIDENTIALGROWTH AREAS
5: Housing & Residential Areas 65
While surrounding residential neighborhoods are not
included within the study area, the health and vitality of these
neighborhoods is vital to the success of Center City Oshkosh. A
downtown cannot be successful unless its neighboring residential
areas are thriving, stable, and invested in. A well-maintained
Center City housing stock provides a consumer base for downtown
businesses; viable housing options for Center City employees;
families to put eyes on the street and populate public spaces and
parks; visual interest for walking and bike rides; and a positive first
impression as one travels into the City’s core.
Understanding the importance of adjacent residential
neighborhoods, the City should work to stabilize these residential
areas. This should include improvements which will improve the
quality and appearance of surrounding neighborhoods and act as
support to complement projects within the Center City. It should
be noted that the following recommendations do not regard
properties within the study area and as such, should be taken into
consideration and incorporated within other planning efforts that
more directly address these residential neighborhood areas.
Neighborhood Groups - Establish new neighborhood groups for
residential areas directly adjacent to the Center City, or work
with existing neighborhood groups to incorporate un-addressed
pockets.
Neighborhood Engagement - Coordinate with neighborhood groups
to host outreach events or community meetings designed to gather
feedback about important issues and concerns to address within
the distinct neighborhoods surrounding the Center City.
Property Maintenance - Explore opportunities to incentivize
property maintenance, upkeep, and renovations within
neighborhoods surrounding the Center City. This can include home
improvement loans, volunteer assistance programs, time share
programs, and other mechanisms to assist property owners with
necessary or desired property improvements.
Funding Assistance - Develop educational materials and provide
assistance to property owners and landlords regarding available
local, state, and national home improvement funding mechanisms.
Rental Inventory, Standards, and Inspections- Complete a full
inventory of all rental properties within Oshkosh that provides as
much detail as possible regarding specific properties. This should
include any information about owners and landlords with the aim
of creating greater accountability for property maintenance and
upkeep.
Rental Property Standards, and Inspections – Establish a rental
inspection program that includes a rental property “standards”
checklist and conduct annual inspections to insure compliance and
property upkeep.
Promote Home Ownership - Develop a program or commission to
encourage home ownership within neighborhood surrounding the
Center City. This can include grants and funding mechanisms to
loan money to existing residents, educational materials regarding
the process, or branding elements geared toward promoting the
benefits of living proximate to Oshkosh’s Center City. (Maybe a
program targeting new employees in the Center City).
HOUSING & RESIDENTIAL AREAS GOAL
STABILIZE SURROUNDING RESIDENTIAL AREAS
The areas surrounding the Center City are primarily traditional residential neighborhoods comprised
of mostly single-family detached homes built in the first half of the 20th century. Relative to the rest
of the City’s housing stock, homes in the Center City tend to be older, are more likely to be renter-
occupied, and report a higher number of code violations per block (particularly in the neighborhoods
to the northwest of the study area). Although most homes in the Center City are not within a historic
district, many have historic and architectural attributes that lend them a distinctive character.
Imagine Oshkosh | Center City Reinvestment Strategy66
Neighborhood Safety - Coordinate with the Oshkosh Police
Department and neighborhood groups to identify issues regarding
safety and crime within residential areas surrounding the Center
City.
Lighting - Review existing lighting infrastructure within
neighborhoods surrounding the Center City and identify necessary
improvements, such as new light fixtures or LED lightbulbs, which
could better light these areas.
Enhance Mobility and Connectivity - Ensure safe and efficient
access to the Center City for pedestrians and cyclists. This should
include a review of existing sidewalks to identify necessary
maintenance as well as exploring opportunities for shared-
use pathways and other routes which would increase mobility,
particularly where superblock development patterns may challenge
accessibility.
Infrastructure and Roadway Improvements - Coordinate with the
Public Works Department to identify necessary improvements
to roadway infrastructure and other maintenance projects which
would elevate the appearance of surrounding neighborhoods and
the experience for those traveling to the Center City.
Promote Center City Neighborhoods - Actively promote and
encourage growth and investment in Oshkosh’s central
neighborhoods through targeted marketing efforts and
coordination with various real estate and development
organizations and interests.
Fox River
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RESIDENTIAL YEAR BUILT
5: Housing & Residential Areas 67
Imagine Oshkosh | Center City Reinvestment Strategy68
6
TRANSPORTATION &
MOBILITY
At the functional heart of the Center City is the need to get around
– by foot, bike, car, boat, and bus. Any successful downtown must
provide a pedestrian-oriented environment while accommodating
the automobile and necessary parking. This chapter of Imagine
Oshkosh focuses on promoting the Center City as a multi-modal
district. Given the Center City’s mixed-use environment and
intensity of uses in close proximity, convenient access and mobility
is essential for residents, businesses, and visitors alike.
By building on the existing street network and current facilities
and programming, this section of the plan identifies planned
and necessary capital improvement projects, highlights parking
recommendations from this and previous studies, incorporates
complete street principles and emphasizes pedestrian and bicycle
mobility, and reinforces the importance of transit that connects the
Center City to the surrounding areas and region.
6: Transportation & Mobility 69
ONGOING &
PLANNED CAPITAL
IMPROVEMENTS
Each year the Metropolitan Planning Organization (MPO) prepares
the Transportation Improvement Program (TIP), which outlines
transportation projects needing federal funding assistance to
achieve the goals in the Long Range Transportation Plan (LRTP).
The TIP aligns with the capital improvement program of local
governments, considering available budgets and timelines. Projects
within the study area for the 2015-2018 period are limited to
design work for the Oregon/Jackson Street Bridge.
The LRTP recommends several projects within the study area. Each
of the projects listed are considered Illustrative Projects. These
types of projects are recommended to repair identified deficiencies,
but do not at present have dedicated funding.
TRANSPORTATION & MOBILITY GOAL
PROMOTE THE CENTER CITY AS A MULTI-MODAL DISTRICT
The ability to safely and efficiently move through the Center City is critical to enhancing the quality of life
for its residents and encouraging economic development. As such, the Center City should provide a safe
and attractive pedestrian environment while meeting the needs of automobiles and cyclists. To meet the
needs of a diverse population, the Center City must also provide a broad range of transportation options
that allow residents to walk, bike, drive, or ride to their destinations. Careful management transportation
options and their related infrastructure will be essential to the Center City’s continued success.
PLANNED CAPITAL IMPROVEMENT
PROJECTS (2015-2018)
CENTER CITY OSHKOSH
PROJECT DESCRIPTION
COST
(THOUSANDS)JURISDICTION
City of Oshkosh Bridge
Lift Structures
Rehabilitation
for remote
operations
$864 WisDOT
Oregon/Jackson Street
Bridge
Bridge
Replacement
$2,000 (2016)
$44,795 (2019)
WisDOT
Main Street, from New
York Avenue to Irving
Avenue
Roadway
Reconstruction
$2,525 City of Oshkosh
Main Street, from the Fox
River to 16th Avenue
Roadway
Reconstruction
$4,363 City of Oshkosh
Source: Houseal Lavigne Associates; East Central Wisconsin Regional Planning Commission
Imagine Oshkosh | Center City Reinvestment Strategy70
Lake
Winnebago
Fox River
Fox River
Lake
Winnebago
Fox River
Prospect Ave
New York Ave
Melvin Ave
Baldwin Ave
Sterling Ave
Lincoln Ave
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Street Classification
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Signalized Intersection
Average Daily Tra c
CENTER CITYCIRCULATION
X X
UNIVERSITY OF
WISCONSIN - OSHKOSH
900 10,500
10,100 12,700
13,900
10,900
9,600 5,700
3,100
8,500
6: Transportation & Mobility 71
TRUCKS ROUTES
The City of Oshkosh has several designated multi-axle truck
routes used for the delivery of industrial and commercial goods.
While designated truck routes prevent significant noise and traffic
impacts to neighborhood/local streets, the concentration of truck
traffic on other key corridors can have negative impacts on the
areas in which they cross. Several designated truck routes run
through the Center City, most notably along N. Main Street, S. Main
Street, WI 44, Oregon Street, and Jackson Street.
The City should divert the existing truck routes along N. Main
Street to avoid the Downtown Core and Downtown Outer Core
subareas. These districts represent the heart of the Center City and
the most pedestrian-oriented areas of the community, thus truck
traffic should be discouraged. It is recommended that the following
segments of existing truck routes be removed and traffic diverted
accordingly (These alterations must be made in coordination with
the overall system which includes routes outside the Center City):
N. Main Street between Irving Avenue and the Fox River
High Avenue between Jackson Street and N. Main Street
Algoma Boulevard between Jackson Street and N. Main Street
Otter Avenue east of N. Main Street
Ceape Avenue east of N. Main Street
In addition, the City should closely monitor existing truck routes
in the subareas located south of the Fox River. As these subareas
redevelop and move away from their industrial past, truck routes
may become a hindrance to pedestrian-oriented developments
along S. Main Street and Oregon Street. As necessary, truck routes
should be reviewed to protect pedestrian-oriented environments
while still allowing for efficient movement of trucks within the
community.
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Truck Routes
TRUCK ROUTES
Imagine Oshkosh | Center City Reinvestment Strategy72
ROAD CONDITIONS
The Pavement Surface Evaluation Rating System (PASER) is a
system to evaluate roadway conditions. The system ranks the
quality of roadway segments on a scale of 1-10 with the following
specifications:
10-9 – Excellent: no maintenance required
7-8 – Good: needs routine maintenance such as crack sealing
and minor patching
5-6 – Fair: needs preservation treatments (non-structure),
surface repairs, and partial-depth patching
3-4 – Poor: requires structure renewal (overlay), and extensive
slab or joint rehabilitation
1-2 – Failed: needs complete reconstruction
The City should work with the Public Works Department to make
necessary roadway repairs or reconstructions within the Center City
study area. Top prioritization should be given to reconstruction or
rehabilitation of roadways in the 1-2 rating, as well as improvement
projects for those in the 3-4 rating. In addition, improvements to
roadways within the Downtown Core and Downtown Outer Core
subareas should be a priority. Improvements to these roadways
will yield the highest return in terms of visibility of the projects and
their potential contribution to the appearance of Oshkosh’s central
focal point.
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ROADWAY CONDITIONS
6: Transportation & Mobility 73
CENTER CITY PARKING
The availability of on- and off-street parking is a critical component
to the overall transportation network. In early 2016, a Downtown
Parking Study was authored by Walker Parking Consultants that
provides parking and operating strategies for Downtown Oshkosh. It
is intended that this separate study serve as the parking strategy for
the Downtown, complementing Imagine Oshkosh.
The following is a brief summary of the central findings of the
report:
The current downtown parking supply includes 4,860 parking
spaces: 37% are publicly owned and operated with public
access, 31% are publicly owned and operated but with limited
public access, 20% are privately owned and operated with
limited public access, and 12% are located on-street.
Roughly 1 in 3 parking spots within downtown is controlled by
the City Center Mall, with limited public access (31%).
The current peak weekday parking demand in downtown
Oshkosh does not exceed the current supply. Approximately
49% of the current parking supply is occupied during peak
weekday conditions (2,414 parked vehicles). Conversely, there are
approximately 2,446 unoccupied parking spaces during peak
weekday conditions
The distribution of parking supply is within reasonable
standards when compared to similar size cities
Based on current data and future development scenarios
analyzed by Walker, a new parking ramp is not needed to
support current or future parking demand in downtown
Oshkosh. While current parking conditions do not warrant the
construction of a new parking ramp, it is recognized that some
stakeholders believe a ramp is desired. The preliminary estimate
of conceptual cost for a 400-space parking ramp is $7.2 million.
The Parking Fund, under current policies and practices, would be
unable to support the annual debt service payment, operating
expenses, and capital repair and maintenance associated with
the public parking ramp
Given the recentness of this dedicated parking study,
recommendations for parking include strategies identified within
Downtown Parking Study as well as those developed through the
Imagine Oshkosh planning process.
PARKING RECOMMENDATIONS
No Structure - Development of a new public parking structure
in downtown Oshkosh is not recommended at this time.
Awareness - Invest in methods to inform the community of
public parking options within the Center City through the
development and implementation of a signage and wayfinding
program, community outreach efforts, and a public parking
branding strategy.
Fee Parking - Implement an on-street paid parking system
in the Downtown Core subarea to more effectively manage
the use of public parking resources. By value pricing the core
on-street supply and offering free off-street and peripheral
on-street parking, the City can use price as a tool to redistribute
parking demand and maximize the use of existing resources.
This system offers access to Center City destinations and events
while providing a range of parking products to choose from that
best align with personal preferences.
Coordinating Supply - Encourage the long-term consolidation
of both public and private parking facilities in a manner which
will support desired built forms within specific subareas.
Regulatory Updates - Update zoning regulations to encourage
and incentivize site design which places parking on the rear of
a property.
Better Screening - Update zoning regulations to require
appropriate screening of surface parking lots which have street
frontage.
Imagine Oshkosh | Center City Reinvestment Strategy74
Fox River
Lake
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Fox River
Fox River
Lake
Winnebago
Fox River
Prospect Ave
New York Ave
Melvin Ave
Baldwin Ave
Sterling Ave
Lincoln Ave
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Scott Ave
Union Ave Ida Ave
Churc
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High
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Parkway Ave
Irving Ave
Washington Ave
Merritt Ave
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On-Street Parking
City-Owned Public Parking
CENTER CITYDOWNTOWNPARKING
UNIVERSITY OF
WISCONSIN - OSHKOSH
6: Transportation & Mobility 75
PEDESTRIAN &
BIKE MOBILITY
A distinguishing characteristic of any successful center city
is a strong pedestrian orientation. Even visitors that arrive by
automobile become pedestrians the moment they park and
exit their cars. Unlike suburban commercial corridors, which are
primarily oriented toward the automobile, downtown areas should
orient toward the pedestrian. The movement of pedestrians
between stores, employment areas, dwelling units, theatres,
restaurants, parking areas, and the riverfront are critical. A safe
and attractive pedestrian environment can significantly contribute
to the overall character and appeal of the Center City and help
catalyze additional investment. While the Center City should
accommodate both vehicles and pedestrians, walking should be the
primary mode of transportation within most areas of the Center
City.
STREET GRID
The street grid of any area impacts its function, walkability, and
pedestrian-friendliness. Smaller blocks are more walkable and
accessible and are the preferred block type in a center city. When
blocks are ‘walkable’, pedestrian comfort and friendliness are
achieved. A visitor can park in one spot and make multiple stops in
the Center City by walking from business to business.
While much of Oshkosh’s street grid remains intact, there are many
“super blocks” that reduce walkability, such as along N. Main Street,
Church Avenue, Algoma Boulevard, and Marion Road. The City
should take an active approach to ensuring “super blocks” contain
pedestrian amenities, visual interest, and other forms of activity.
As redevelopment occurs within the study area, the City should
look for opportunities to make new pedestrian connections where
possible. For example, redevelopment projects south of the Fox
River should incorporate on-site pathways and other pedestrian
connections to avoid the creation of “super block” developments.
COMPLETE STREETS
A “complete street” is a roadway that is designed to be safe for all
users of the transportation network, including motorists, transit
riders, bicyclists, and pedestrians. At its foundation, complete streets
is a response to this trend which reclaims the roadways and equally
accounts for the full spectrum of potential users. This does not
mean that automobile movement is ignored, but rather, seeks to
incorporate sidewalks, bike lanes, transit stops, and other elements
within the roadway. A key recommendation in Vision Oshkosh Plan
(2009) was to prepare and adopt a “complete streets” plan.
The City should seek the development of complete streets
throughout the Center City study area, in accordance with a
potential complete streets plan. The development of complete
streets will require context specific roadway treatments which
are dependent upon a variety of factors, such as right-of-way
width, traffic counts, or roadway jurisdiction. While the City should
incorporate complete streets improvements as opportunities
arise throughout the Downtown, a few specific complete street
projects have been identified based on past planning efforts. These
have been included on the accompanying Pedestrian and Bicycle
Mobility Map.
SIDEWALKS
The City of Oshkosh has an extensive, well-connected sidewalk
network, which includes provisions for pedestrian access between
parking lots, building entrances, and street sidewalks (City of
Oshkosh Zoning Ordinance, Section 30-36.E.9). It should be
noted; however, that not all pedestrian facilities provide the same
experience. The width, placement, and design of sidewalks, as
well as their use on different roadway classifications, can have a
significant impact on pedestrian comfort and overall use.
As opportunities arise, the City should utilize sidewalk best
practices which take into consideration the specific needs of
individual roadways within the city. These should be incorporated
within streetscaping, general maintenance, and other public works
projects to gradually update sidewalks across the Center City. While
the City’s sidewalk network and best practices are presented within
the 2011 Pedestrian and Bicycle Circulation Plan, the following
recommendations should be taken into consideration.
0 0.5 10.25 0.75
Miles Miles Miles Miles
0 0.5 10.25 0.75 0 0.5 10.25 0.75 0 0.5 10.25 0.75
Downtown Appleton Center City Oshkosh Oshkosh
(I-41 Commercial District)
Suburban Oshkosh
STREET GRID COMPARISONS
Imagine Oshkosh | Center City Reinvestment Strategy76
Sidewalk Typology
The Center City study area includes two types of sidewalks:
Curb-side Sidewalk - Curb-side sidewalks are those in
which the sidewalk is directly adjacent to the roadway. This
sidewalk placement can create an uncomfortable pedestrian
experience, with pedestrians adjacent to moving traffic.
Curb-side sidewalks should be a minimum of 6’ in width with
a preferred width of 8’ to provide a wider buffer to the travel
lanes. The presence of on-street parking can assist to create
a barrier between the sidewalk and traffic, while textured
pavers, planters, and street trees can enhance long expanses of
pavement.
Parkway Sidewalks - Parkway sidewalks are those in which turf,
grass, flowers, or trees divide the sidewalk from the roadway.
Where the right-of-way allows, parkway sidewalks are the
preferred sidewalk gap treatment to provide a landscaped
buffer between pedestrians and vehicles. In addition to
enhancing pedestrian safety, parkways have the potential to
accommodate sustainable landscaping techniques including
bioswales, rain water inlets, and rain gardens, as well as provide
opportunities to establish tree canopy.
Where the right-of-way width exists, the City should widen
sidewalks and pedestrian amenities appropriately by reducing
traffic or parking lanes. In addition, the City should take advantage
of redevelopment and other projects to convert existing curb-side
sidewalks into parkway sidewalks. In general, sidewalks within the
Center City, particularly the Downtown Core, should mimic those
along N. Main Street, which were updated as part of the City’s
streetscaping initiative.
Sidewalks along S. Main Street are curb-site sidewalks. Their
narrowness and proximity to the roadway, which is also a truck
route, can create a less inviting pedestrian experience.
As part of a recent streetscaping initiative, sidewalks along
N. Main Street are wide and buffered from the street with
plantings, decorative brick, benches, and other amenities.
Crosswalks
While streets with low traffic volume (<3,000 ADT), low speeds (<20
mph), and few lanes (1-2) do not warrant marked crosswalks, they
are generally in place at all other intersections within the study
area. Center City crosswalks are painted with a standard, transverse
crosswalk design; however, there are more high-visibility design
solutions that may increase crosswalk visibility and pedestrian
safety. Moving forward, the City should utilize more visible
crosswalk designs, such as continental or brick paver/decorative
crosswalks, and existing crosswalks should be updated to match
over time. In addition, the City should improve mid-block crossings
with higher visibility crosswalk designs, including stop lights, signals,
and timers to better mark these locations.
Transverse Crosswalks
These serve as traditional crosswalk marking, using two parallel
bands to delineate pedestrian space. This type of crosswalk
marking is difficult for motorists to see, which poses a safety hazard
to pedestrians.
Continental Crosswalk
These crosswalks are considered high-visibility, which are more
easily seen by motor vehicle drivers. Use of continental crosswalks
rather than transverse crosswalk markings have been shown to
significantly increase intersection safety.
Brick Paver/Decorative Crosswalk
These crosswalks delineate pedestrian crossing areas through the
use of decorative or brick pavers. It serves to create a sense of place
and identity within an area; however, low contrast designs can lead
to low visibility of these crosswalks. This crosswalk treatment is best
used for roadways with slow travel speeds and few travel lanes, and
can be combined with continental crosswalks to further increase
visibility.
6: Transportation & Mobility 77
BICYCLE
INFRASTRUCTURE
Bike lanes, Sharrows, Wayfinding - As previously discussed, the City
should seek the development of various complete street projects
within the Center City, as shown on the Pedestrian & Bicycle
Mobility Map. These projects will include bike lanes and sharrows
(shared-lane routes) within the Center City, marked by necessary
signage, striping, and pavement markings. All bicycle routes should
be clearly designated with signage, which can be incorporated
within a broader wayfinding program as well as streetscaping
enhancement projects.
Bicycle Parking - The City should also develop additional bicycle
parking to encourage bicycle usage within the study area and
attract students from the University of Wisconsin – Oshkosh into
the Center City. While a few bicycle racks do exist, they are largely
concentrated within the Downtown Core functional subarea.
Additional racks should be added along designated bicycle routes
and at key destinations within the Center City. Bicycle racks
and parking should be incorporated within any streetscaping
enhancement projects.
BICYCLE EDUCATION
While communities across the country have rushed to add bicycle
infrastructure and develop more bicycle-friendly transportation
networks, this has not always resulted in increased bicycle traffic.
This is often because residents are uneducated about what
bicycle facilities exist and how to properly use the infrastructure
and facilities and remain safe. To best capitalize on bicycle
improvements, the City should match them with a bicycle
education program. This should include necessary information
about the bicycle network, designated routes, safety, and how to
use the system. Further, this program should not only educate
but also promote bicycle usage and the benefits of automobile
transportation alternatives.
RIVER CROSSINGS
Although the new Wisconsin Street Bridge has accommodations
for pedestrians and cyclists, the other two bridges serving the heart
of the area are less welcoming routes for non-motorized travel.
Improvements should be made to expand the pedestrian right-of-
way and provider barriers between pedestrians and automobiles.
However, making these improvements would require a considerable
renovation or potentially reconstruction of the Main Street and
Jackson/Oregon Street bridges. Given the difficulty and high costs
of these kinds of projects, the City should complete a study of the
existing bridges and potential improvements to determine the best
course of action. The City could also consider developing dedicated
pedestrian bridges adjacent to the existing bridges and integrated
within the overall Riverwalk system and design.
PUBLIC TRANSIT
Public transportation is provided through GO Transit, which
offers 10 fixed bus routes, 7 of which serve the project area. Buses
typically run between 6:15 am and 6:45 pm. The University of
Wisconsin - Oshkosh runs two fixed route bus routes during its
14-week semesters. These bus lines provide an extended and late-
night transit option, supplementing GO Transit regular hours. All
bus routes operate through the Downtown Transit Center, located
at the intersection of Pearl Avenue and Market Street. Transit
stops are marked by signage and some feature covered rest areas;
however, other improvement could benefit patrons and encourage
greater ridership. Overall, the existing transit routes provide
comprehensive coverage for the Center City and all functional
subareas are well served.
TRANSIT RECOMMENDATIONS
System Improvements - Improve all transit stops with benches,
shelters, lighting, informational signage, and other pedestrian
amenities. These improvements could be included with a
branding effort to contribute to the image of the Center City.
Coordinate with Development - Review new development
projects to identify potential changes to existing routes and
new transit stops which should be added based on investment
within the Center City, particularly projects within the South
Shore West and South Shore East subareas.
User Feedback - Conduct an annual or biennial community
survey to identify potential service extensions, concerns, or
opportunities to improve public transit.
Imagine Oshkosh | Center City Reinvestment Strategy78
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CENTER CITYPEDESTRIANMOBILITY
UNIVERSITY OF
WISCONSIN - OSHKOSH
6: Transportation & Mobility 79
RAILROADS
An active Canadian National (CN) rail line runs through the eastern
portion of the study area in a north-south direction. Roughly
26-30 trains per day utilize the rail line. It extends from Fond du
Lac through Oshkosh, heading north to Neenah, Menasha, and
Appleton. The rail line and switching lines form a physical barrier
between Pioneer Island and the properties to the west along S.
Main. North of the Fox River, the rail line runs at grade along Broad
Street, forming the eastern boundary of the study area and cutting
off properties along Bay Shore Drive from the rest of the Center City.
With no grade-separated railroad crossings, the rail line threatens
connectivity between adjacent neighborhoods, Pioneer Island,
and the Center City. The height of the railroad bridge over the Fox
River creates an additional barrier which disrupts boat travel and
blocks extension of the Riverwalk further east to Lake Winnebago.
In addition, the rail line acts as a major barrier to lakefront
development and investment to the south of the Center City study
area. While the feasibility and cost of grade separations, new bridge
construction, and other projects can be prohibitive, the City should
still consider projects of various sizes which could help overcome
the physical barrier created by the railroad.
MITIGATING RAIL IMPACT
Grade Separated Crossings - The City should coordinate with
Canadian National to install various grade-separated automobile
and pedestrian crossings along the railroad right-of-way. These
crossings will act as short-term solutions which complement the
long-term goals described. Regardless of whether the railroad
will be relocated or not, grade-separated crossings will support
continued investment and greater connectivity that is essential
to the short- and long-term success of Oshkosh’s Center City.
Improvements should include, at a minimum:
Grade-separated automobile crossings both north and south of
the Fox River
Grade-separated extensions of the Riverwalk on both sides of
the Fox River
At grade-separated pedestrian crossings along Broad Street
Integrated ROW and Streetscaping - The City should also complete
a streetscaping project along the railroad where it runs parallel
to Broad Street. This project should aim to better define railroad,
automobile, and pedestrian rights-of-way and increase overall
safety within the area. The streetscaping project should include the
following improvements:
Update all crossings with pedestrian amenities including
marked crosswalks, pedestrian railroad gates, and pedestrian
refuge islands between the roadway and rail lines.
Repave Broad Street and all railroad crossings to smooth out
elevation changes and replace rough timbers with durable
rubber or concrete surfaces.
Construct a continuous curb and install a fence or barrier
between the railroad and roadway to clearly mark rights-of-way
and discourage pedestrians from crossing the tracks mid-block.
Incorporate beautification elements, such as landscaping,
decorative streetlights, or new railroad gates, to decrease
the relatively industrial character and improve the overall
appearance of the corridor.
Imagine Oshkosh | Center City Reinvestment Strategy80
Lake
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Bus Stop
UNIVERSITY OF
WISCONSIN - OSHKOSH
6: Transportation & Mobility 81
Imagine Oshkosh | Center City Reinvestment Strategy82
7
CIVIC & INSTITUTIONAL
RESOURCES
Successful downtowns often have a significant civic component
and serve as the focal point for civic activity, facilities, and services.
Oshkosh Center City is home to several civic uses including City
Hall, Oshkosh Public Library, Winnebago County Courthouse,
US Post Office, Convention Center, and more. Collectively, these
facilities contribute to the character, employment base, and overall
sense of place for center City. Additionally, University of Wisconsin
– Oshkosh is located adjacent to the City Center and is responsible
for a sizable local student resident population and thousands of
visitors to the area annually.
This section of Imagine Oshkosh focuses on maintaining Center
City as the community’s civic center and balancing the University
of Wisconsin - Oshkosh’s presence. The numerous civic uses and
the University provide tremendous benefit to the Center City,
but they also present challenges that must be managed and
accounted for. Public uses do not generate property tax revenue
and aging facilities can face issues of functional obsolescence
and aging. The University can strain local housing conditions and
the concentration of 18-22 year olds can significantly impact the
uses, intensity, and character of an area. This section of the plan
addresses these conditions in a manner that accommodates the
needs and priorities of a successful Center City.
7: Civic & Institutional Resources 83
CIVIC USES
The following government, civic, and public facilities are located
within the Center City study area:
Oshkosh City Hall – Located in Downtown Outer Core
Oshkosh Police Department – Located in Downtown Outer Core
Oshkosh Recreation Department – Located in Downtown Outer
Core
Oshkosh Public Library – Located in Downtown Core
Downtown Transit Center – Located in Downtown Outer Core
Winnebago County Administrative Offices– Located in
Downtown Outer Core
Winnebago County Courthouse – Located in Northwest
Transition
Winnebago County Human Services – Located in Downtown
Outer Core
U.S. Post Office – Located in Downtown Outer Core
Oshkosh Convention Center – Located in Downtown Outer Core
State of Wisconsin Community Corrections Division – Located in
South Shore West
Historically, city centers have served as the cultural, shopping,
dining, entertainment, and civic heart of a community. While
communities across the country have seen civic institutions move
outside of the city center to accommodate growing facility needs,
Oshkosh has retained its civic core, and this is a great thing.
CHALLENGES
AND BENEFITS
As civic institutions’ needs change over time, it is often the case
that relocation is the easiest way to accommodate space needs and
facility upgrades. Given this ever looming reality, Oshkosh needs
to carefully monitor and coordinate the needs of the different
government entities with Center City facilities, and work creatively
and diligently to retain the uses and facilities in the core of the
community. A strong civic core helps to anchor and establish the
Center City as a vital part of every Oshkosh resident’s experience
and community identification, further solidifying the importance of
the Center City.
The most significant challenge of having a large civic component in
a downtown is that it is not a revenue generating land use, in terms
of property tax. However, due to the size and economic strength of
the Oshkosh Center City, the civic uses serve as an appropriately
scaled tax-exempt use within the overall matrix of tax-generating
uses and activities located in the Center City. Further, the civic uses
more than offset their tax exempt status by bringing in hundreds of
employees and visitors a day into the Center City to shop, dine, and
recreate.
CIVIC & INSTITUTIONAL RESOURCES GOAL
MAINTAIN CENTER CITY AS THE COMMUNITY’S CIVIC CENTER
Center City is home to numerous government buildings, that serve as Oshkosh’s civic heart, as well
being the county seat for Winnebago County. These public facilities contribute significantly to the
overall character and image of the Center City. These institutions bring residents, business owners,
and hundreds of government employees to the City Center daily, creating liveliness and supporting
economic activity within the district. Oshkosh’s central government functions are contained within
some of the most beautiful, architecturally rich, and historic structures in the City. Buildings like the
City Hall impart a sense of ownership for residents who feel invested in their community. Together,
these buildings form a unique sense of place and emphasize the Center City as a civic focal point.
Imagine Oshkosh | Center City Reinvestment Strategy84
RECOMMENDATIONS
Understanding both the positive impacts and challenges of a large
civic presence in downtown, the City should work to retain civic
buildings and facilities within the Center City.
Maintain open communication with government departments
and agencies regarding their future plans and needs.
Work cooperatively with government departments or agencies
to retain government agencies within the Center City and
address specific facility issues as they arise.
In the event that a department or agency needs to downsize or
minimize costs, work collaboratively to analyze the potential for
facility consolidation which would keep that body within the
Center City.
In the event that consolidation or relocation outside the Center
City is necessary, seek adaptive reuse of historic structures and
facilities, possibly for use by other government bodies in need of
facility expansion.
7: Civic & Institutional Resources 85
UNIVERSITY IMPACT
While the Center City does greatly benefit from the University’s
proximity, there is the potential for negative impacts. Student
populations tend to be largely transient, leaving the City during
the summer months and not placing permanent roots within the
community given a perception that they will move away from
Oshkosh following graduation. This can also result in a lack of
investment or care for the surrounding area, given that many
students see themselves as temporary residents.
In addition, student populations often attract uses which
specifically cater to their demographic, such as rental housing,
fast food restaurants, college bars, and liquor stores. While these
uses are not exclusive to students, when grouped together they
can challenge the character and perceived nature of an area.
Over time, many college towns develop a “campustown,” that
is, a neighborhood or commercial area that is understood to be
student-oriented, and generally not catering to or accommodating
of other groups, particularly young children, teenagers, and families.
Understanding the relationship between these two separate
areas, the City should take a careful and balanced approach to the
University of Wisconsin – Oshkosh. This should include efforts to
incorporate the University within the Center City and capitalize on
the activity generated by the institution, while protecting against
potential negative impacts. Primary to this direction should be
close communication and coordination with the University itself.
This will help ensure that new strategies or improvements are in the
best interest of both the University and the Center City.
TRANSITION ZONE
The Northwest Transition and Marion Road Waterfront functional
subareas are located directly between the Downtown Core and
the University of Wisconsin – Oshkosh. The City should treat these
two subareas as a transitional zone, which supports both the
University and Center City. These two subareas differ considerably
from development found elsewhere in the Center City, which can
be partially contributed to the presence of the University. Over
time, student-oriented residential and commercial options have
developed within both sub-areas. The Waterfront subarea has
proven to be more prone to development, and the Northwest
Transition subarea has a more traditional neighborhood setting.
While student-oriented uses will remain a reality of these subareas,
the City should take steps to maintain and enhance the overall
appearance and character of the area. Property maintenance
and upkeep of student housing should be a priority so as not to
let the area suffer from deferred maintenance and dilapidation.
Commercial uses in these areas should be held to the same design
and aesthetic standards and upkeep as other commercial uses in
the Center City.
Student-oriented uses should be encouraged to locate within these
two subareas, rather than other parts of the Center City. That said,
many uses in the Center City appeal to students and non-students
alike. The trick is finding the balance so as to prevent the greater
Center City area from being known as a college bar scene.
CIVIC & INSTITUTIONAL RESOURCES GOAL
BALANCE THE PRESENCE OF THE UNIVERSITY
The Center City is directly neighbored by the University of Wisconsin – Oshkosh on the west, which
employs roughly 1,300 people and enrolls over 13,000 students annually. Although the University’s
campus is not located within the study area, western portions of the Center City cater to the student
population, including fraternities and sororities, student housing, fast food establishments, and numerous
pizza delivery restaurants. The University is an important component that contributes significantly
to the City Center. Students and faculty live, work, dine, and spend their leisure time within the area
generating economic activity and adding to its vitality. In addition, the University helps promote
the City and bring visitors to the community for alumni gatherings, lectures, and athletic events.
Imagine Oshkosh | Center City Reinvestment Strategy86
STREETSCAPING
& WAYFINDING
Both the Northwest Transition and Marion Road Waterfront subareas
would benefit from streetscaping enhancements along High
Avenue and Algoma Boulevard. Improvements to these roadways
would help to better connect the University and Downtown
Core. At the same time, the inclusion of wayfinding and gateway
signage, as well as other landscaping and beautification elements,
will help to distinguish the two areas as interconnected but
separate. Streetscaping enhancements will demonstrate the City’s
commitment to improving these subareas, and further encourage
greater investment and upkeep of private properties and businesses.
In addition, the City should install wayfinding and gateway signage
within these subareas, to better connect the University and Center
City. These improvements will clearly mark the transition between
the University and Downtown Core, signaling to students that they
are leaving the campus. By creating a physical reminder of the
distinction between these two areas, students will come to better
understand the Center City as a shared space that belongs to a
multitude of stakeholders. Promotional materials inviting students
to events and activities in the Center City can be used to bring
students into the Downtown Core.
RECOMMENDATIONS
Regular Communication - Maintain close communication with
the University regarding priority issues and opportunities, with a
particular focus on the interaction between the Center City and
University’s campus. This should include regularly scheduled
meetings of key decision makers from both organizations.
Coordinated Events - Work with the University of Wisconsin
– Oshkosh to coordinate events, festivals, parades,
and community gatherings, with the aim of identifying
opportunities for collaboration and cross promotion while
reducing potential conflicts.
University Events in Center City - Strengthen the connection
and patronage between the University and Center City by
encouraging the University, and affiliated groups, to host events
and activities within Downtown.
Public Art - Engage with individual University departments to
identify opportunities for student projects integrated within the
Center City. For example, the Art Department could sponsor a
rotating public art installation to display student art.
Bike Share - Coordinate with the University to conduct a
feasibility study regarding a bike share program to make
bicycling conveniently available at low costs. If feasible, the City
and University could jointly sponsor this kind of program.
Innovation District - Coordinate with a potential “innovation”
district to offer students classes, experience, and create a
direct path between education in Oshkosh and employment in
Oshkosh.
Inspection Program - Strengthen the registering, inspection, and
required maintenance of student housing properties within the
identified subareas.
7: Civic & Institutional Resources 87
Imagine Oshkosh | Center City Reinvestment Strategy88
8
ARTS & CULTURAL
RESOURCES
Oshkosh Center City has a rich history and provides arts and
cultural amenities for residents and visitors. This section of Imagine
Oshkosh focuses on two primary goals, including the preservation
and enhancement Center City’s rich history and the expansion of
arts and culture. Much of Center City’s history and sense of place
is captured in the architecturally significant and historic building
stock. This historic charm these buildings provide cannot be
replicated with new development. They contribute an authentic
sense of place that is part of the fabric and culture of the area.
With the backdrop of a historic and architecturally rich built form,
the Center City is home to a variety of arts and culture amenities
that significantly contribute to the “downtown experience” and
enhanced enjoyability, appeal, and interest. By promoting public art,
supporting arts and culture initiatives, celebrating unique Center
City features, and enhancing year-round events and activities, the
arts and culture offerings of Center City will continue to improve
and help to define a successful and vibrant Center City.
8: Arts & Cultural Resources 89
EXISTING PROTECTIONS
DISTRICTS & DESIGNATIONS
The Center City contains three historic districts on the National
Register: 1) Irving-Church Historic District, 2) the North Main Historic
District and, 3) the Neo Classical Historic District. Additionally, some
other Center City buildings are also on the register as individual
properties, such as the Daily Northwestern Building (224 State
Street) or the Brooklyn No. 4 Firehouse (17 W. 6th Avenue). These
designations are authorized through the U.S. Department of
the Interior and are primarily used for federal rehabilitation tax
credits as well as marketing and publicity. Other benefits include
exemptions from the State Historic Building Code and protection
from negative impacts of federally funded projects nearby. They
do not regulate demolition or exterior alteration of the properties
unless federal tax credits are requested.
LOCAL ORDINANCES
Local ordinances often provide the toughest protection of historic
properties, regulating alteration, renovation, improvement,
demolition, and more. The City has a historic preservation
ordinance, found within Chapter 30 - Article XVIII of the City Code.
One key element of the ordinance is a heightened standard for
demolition, requiring close scrutiny and public input. However, City
policy has been to only designate a property when initiated by
the property owner, even though the City Code dictates that the
Common Council or Landmarks Commission could also initiate
a historic designation. As such, only two properties are currently
protected in the study area: 226 High Street (a residence) and 50 W.
6th Avenue (The Granary).
ARTS & CULTURAL RESOURCES GOAL
PRESERVE & ENHANCE CENTER CITY’S RICH HISTORY
Oshkosh’s Center City contains many historic structures built in the 19th and early/mid-20th century
when Oshkosh was one of the largest cities in Wisconsin and known as “Sawdust City.” These historic
structures range in style from Italianate to Romanesque, and contribute to an attractive physical
environment and distinct sense of place. Because of downtown’s traditional “Main Street” aesthetic,
several scenes of the film Public Enemies (set in the 1930s and featuring Johnny Depp as gangster John
Dillinger) were filmed along Oshkosh’s North Main Street. As a distinctive characteristic of the Center
City area, the City should take an active stance in preserving historic properties and structures.
Imagine Oshkosh | Center City Reinvestment Strategy90
Lake
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CENTER CITYHISTORICDISTRICTS
UNIVERSITY OF
WISCONSIN, OSHKOSH
8: Arts & Cultural Resources 91
Built in 1912 and designed by famous Oshkosh architect
William Waters, 913 Oregon Street once housed both
the State Exchange Bank and the Oshkosh Public
Library South Side Bank. Its rusticated neoclassical style
is distinctive along the Oregon corridor. This property is
not currently listed on the National Register of Historic
Places, but may be eligible.
This N. Main bar is one example of a historic property
that could benefit from a façade improvement to return
the exterior to its historic character, remove unappealing
additions, and create an attractive storefront.
While the remainder of the factory complex was torn
down, the bottling department of the former Peoples
Brewery Company was preserved and incorporated into
a new building, now occupied by Blended Waxes. The
brewery was local to Oshkosh, founded in 1911 and the
first black owned brewery in the United States.
DealerSocket, an automotive website and digital
marketing firm, recently moved into 531 N. Main
Street. The former Frank Percy Gun and Fur Shop, built
in 1900 and 1908, was repainted and improved to
accommodate this new tech user. It is one of many
examples of new investment in historic buildings in
the Center City. State and Federal Historic Tax Credits
were utilized in the renovation.
Stricter regulations regarding permitted uses, signage,
and built form could prevent buildings that are
incongruent with the surrounding historic character of
the Center City, such as the Chase Bank Building on the
corner of Waugoo and High.”
501 N. Main Street, also referred to as the Webster Block,
was built in 1895 in the Queen Anne style. Its prominent,
castle-like turret is one of Oshkosh’s most distinctive
architectural elements. This property is one that should
be considered for protection under the City’s Historic
Preservation Ordinances.
CONSIDERATIONS FOR HISTORIC PRESERVATION
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RECOMMENDATIONS
Update existing historic preservation ordinance - Complete
a full review and update of the existing historic preservation
ordinance to ensure it thoroughly addresses alteration,
renovation, improvement, and demolition of historic properties
using modern best practices. The update should include
preservation of not only buildings and structures, but also
historic elements such as façades, structural elements, mosaics,
ironwork, and other architectural features.
Provide historic preservation education - Provide informational
materials and hold meetings to inform the City Council,
Landmarks Commission, and community in general about their
role in historic preservation and the process for designating
historic districts and properties.
Update historic properties inventory - Coordinate with the
Landmarks Commission to develop a thorough inventory
of historic properties and structures within the City Center.
This should include details about the condition for those
properties, current uses, and prioritization of properties for local
preservation.
Seek designation for “at risk” properties - Seek immediate
landmark designation and preservation of high priority or high
risk historic structures within the City Center.
Develop a plan for historic designation - Coordinate with the
Landmark Commission and property owners to develop a long-
term plan for receiving state and national historic designations,
including inclusion on the National Register of Historic Places.
Support adaptive reuse - Encourage and incentivize
reinvestment and re-use of historic buildings. This should
include expanded availability of financing tools, technical
assistance with the conversion process, assistance with grant
applications, complimentary public right-of-way improvements,
and other updates to City policy which will streamline the
process for reinvestment. Dealersocket (531 N. Main Street), Bar
430 (430 N. Main Street), and Ski’s Meat Market (502 N. Main
Street) are great examples of reinvestment projects within
historic Center City buildings.
Support façade restoration - Encourage and incentivize the
restoration of historic facades within the Center City era,
including those which have been covered up, significantly
altered, or fallen into disrepair. The City should consider
developing new funding assistance for façade restoration. In
addition, the existing grants available through the Downtown
Business Improvement District could be expanded to offer
greater funding or include all properties within the Center City.
Enforce guideline recommendations – Working cooperatively
with property owners and developers, the City should enforce
and put into action the guidelines and recommendations
contained in this plan document. Recommendations and
guidelines address built form, scale, orientation, entrances,
setbacks, uses, and more. These recommendations collectively
serve as guidelines to inform development and improvement
investment and decision-making in the Center City, and serve
to ensure the compatibility and context of Oshkosh Center
City’s historic structures.
Salvage and reuse historical architectural elements - Encourage
the creative utilization of pieces of older buildings and
infrastructure when demolition or replacement of older
structures occurs to show a connection to the past and
cultivate a sense of place. For example, if the CN rail bridge was
to be replaced, the existing bridge could be re-purposed as a
bike/pedestrian crossing.
Improve/expand historic preservation signage - Expand the
use of signage that celebrates Oshkosh’s history and provides
information regarding cultural events. Signage should be tied
to any Center City branding efforts and mimic existing signage
along the banks of the Fox River explaining Riverside Park, and
Oshkosh’s lakes and rivers.
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ESTABLISH AN ARTS &
CULTURE COALITION
As a first step to facilitating arts and culture, the City should
establish a dedicated Arts & Culture Coalition that manages
existing amenities while building a network of arts, cultural, and
entertainment uses. This organization would be responsible for
bringing together private and public bodies and organizing local
arts and cultural resources in Oshkosh’s Center City.
Establish a Coalition - Establish an Arts & Culture Coalition that
will be responsible for coordinating between entities, venues,
and other stakeholders, including events, festivals, parades, art
installations, and community gatherings.
Local Representation and Coordination - Ensure that local
groups, such as the Public Arts & Beautification commission,
the Opera House, and the University of Wisconsin – Oshkosh’s
Art Department, are represented as part of the Arts & Culture
Coalition to ensure cooperation and coordination of resources.
Membership Structure - Help support and organize arts and
culture businesses and amenities through the inclusion of a
“membership” program as part of the Arts & Culture Coalition.
Marketing – Promotion of arts and cultural events, particularly
existing and future community gatherings, will be pivotal
to their success. The Arts & Culture Coalition should work
to market arts and culture within the Downtown, including
cooperation with partner agencies such as University of
Oshkosh – Wisconsin, Fox Valley Technical College, and local
public and private schools.
ATTRACT NEW USES
WHICH FOSTER
LOCAL CULTURE
The Center City contains ample space and opportunities for
new uses which foster local culture through art, entertainment,
education, and community. In accordance with desired land use
as established in the functional subareas, the City should attract
new culture and entertainment based uses such as art galleries,
museums, movie theaters, bowling alleys, and live music venues,
amongst others. This could include incentives and regulatory
assistance provided for uses which significantly contribute to local
culture and activity on a regular basis. The Arts & Culture Coalition
should be a partner in attracting these kinds of uses and providing
assistance to incoming businesses. The City should also work with
the potential “innovation” district and local developers to explore
the possibility of art-lofts or a shared-use art studio.
ARTS & CULTURAL RESOURCES GOAL
EXPAND ARTS & CULTURE IN CENTER CITY
Oshkosh’s Center City offers a variety of arts, entertainment, and cultural amenities, including the
Grand Opera House and Backlot Comedy House. These types of amenities help to create a unique
sense of place and promote a greater sense of community pride. To elevate Oshkosh’s profile as
a destination for arts and culture, the City should work to encourage unique public art displays,
interactive installations, festivals, activities, and live music. Full dedication to this principle will
enable the Center City to become one of the most unique and creative downtowns in the region.
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PROMOTE PUBLIC ART
Public art can create a greater sense of community, enhance and
showcase the City of Oshkosh, and reinforce the Center City as a
community focal point and social, cultural, entertainment center. In
addition, public art can attract visitors to the Center City, generating
economic activity. By promoting public art, the City can better
position the Center City to become a stronger and more vibrant
center for art and culture.
Center City as a Focal Point - Use the Center City as a focal point
for installations, outdoor events, and activities relating to arts,
entertainment, and culture. Both permanent and temporary
public art installations and activities such as sculptures, murals,
mosaics, live music, and more, should be incorporated into a
variety of Center City initiatives and events.
Identify Locations for Public Art - Conduct an analysis of all
City-owned properties and rights-of-way to identify locations
for public art installations in the Center City. Coordinate
with business owners to identify additional spaces at key
destinations throughout the area, including large blank facades
on buildings that can be used for murals and mosaics depicting
local culture, history, and stories important to Oshkosh.
Establish a Public Art Program - Establish a public art program
distinct to the Center City, including specific locations for art
installations and parameters for thematic design.
Center City Calendar - Establish a “Center City Calendar” for
events, parades, and festivals occurring in and nearby the Center
City. The calendar should be promoted through the City and the
Arts & Culture Coalition’s websites, social media, and fliers or
banners in the Center City.
Incorporate Public Art - Incorporate artistic elements and
local artists into streetscape or infrastructure projects to
create a more cohesive identity in the Center City and take full
advantage of capital improvement projects and investment.
Local Artists and Students as a Resource - Coordinate with
local artists and students to create artistic designs for Center
City amenities that incorporate elements of Oshkosh’s culture
and heritage. This can include coordination with University of
Wisconsin - Oshkosh, Fox Valley Technical College, and local
public and private schools. The City can engage students
in conceptualizing, designing, and building unique gateway
features, wayfinding elements, bicycle racks, and street furniture
for installation throughout the Center City.
Vacant Storefronts for Art and Engagement - Work with
property owners to transform vacant store fronts into displays
for public art and the promotion of investment opportunities,
which will help to eliminate the abandoned appearance of
unoccupied properties in the Center City.
Student Art Space - Establish a program or annual contest to
display local student art in spaces in the Center City. The City
should coordinate with the University of Wisconsin – Oshkosh
to curate a rotating art space as a class project.
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INTERACTIVE
ART
PRECEDENTS
1 MUSICAL SWINGS
The 21 Balancoires (21 Swings) installation
in Montreal, Canada combines pre-
recorded sounds with movement. Riding on
the swings results in different notes from
pianos, xylophones, and other instruments,
creating fun melodies as multiple swings
are used.
2 FLEXIBLE GRASS
The SWAY’D installation in Salt Lake City
includes more than 1,000, 10 foot nylon
rods, designed to look like a giant field of
grass. As visitors walk through the field,
the blades of grass hit against each other,
causing ripples of movement.
3 BUBBLE FEATURES
The Bubble Building installation in
Rotterdam, The Netherlands, includes
fountains filled with soapy water. By lifting
flexible steel frameworks that rest on
the top of the ponds, visitors can create
bubbles of all sizes and shapes.
4 INTERACTIVE LIGHTS
The Light Drift installation in Philadelphia
displayed a group of 90 colored orbs
floating in the Schuylkill River. These orbs
changed colors based on pedestrians
moving along the adjacent riverwalk, using
a system of sensors to capture movement.
5 CROCHET PLAYGROUND
The colorful “play sculpture” located in the
Hokone Open-Air Museum in Tokyo, is a
fully crocheted playground for children.
Designed and constructed by artists, the
crochet playground combines public art
and recreational equipment to create a
playground that is not only fun but also
beautiful.
6 PULSE OF THE CITY
Pulse of the City project installed heart
shaped heart monitors in 5 locations
around the City of Boston. The heart
shaped installations were designed to
play music to the rhythm of the user’s
heartbeat. The goal of the project was to
encourage Boston residents to improve
their health through a fun and engaging
experience.
7 MONOPOLY GAME
In 2012, giant Monopoly pieces were installed
throughout the City of Chicago. These sculptures
were intended to contribute a fun and whimsical
element to the streetscape through the use of
the third dimension, rather than as flat, ‘2D’ art.
8 LED SEESAWS
The A Tilt of Light installation in Melbourne,
Australia includes LED lighting stripes
tucked inside the body of a seesaw. As the
seesaw tils back and forth, the lights moves
where weight is shifted, demonstrating the
kinetic physics of playground equipment in
a fun learning experience.
3
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INCORPORATE
OSHKOSH’S UNIQUE
FEATURES
The City of Oshkosh’s natural features, rich heritage, and influential
institutions help to define the community in a unique and exciting way.
Fox River and Lake Winnebago -As a community with access
to a river and lake, Oshkosh has the advantage of drawing in
residents and visitors to partake in a variety of water-based
recreation, events, and activities.
UWO- The University of Wisconsin – Oshkosh attracts and
shapes young professionals, boosting economic investment in
the City.
Heritage - Additionally, the history of Oshkosh includes a wealth
of interesting stories that can be integrated in the Center City,
from the City being named after Menominee Chief Oshkosh, to
its identity as “Sawdust City” and the founding of the famous
OshKosh B’gosh overalls in the late 1800s.
The City should build upon these and other unique features by
incorporating them in public art, public spaces, informational
destinations, and the general design of the Center City’s physical
environment.
SUPPORT GRASS
ROOTS INITIATIVES
Enhancing and activating the Center City is a community effort that
will rely on actions from the City as well as “bottom-up” initiatives
from the community. The efforts of individuals, non-profit
organizations, and volunteer groups help support the vision of the
Plan and strengthen the Center City. The City should empower local
organizations and grass roots initiatives to assist with achieving the
vision of Imagine Oshkosh.
Local Food - Support the local food movement, such as the
Farmers Market, local farmers, and urban farmers to help create
a more self-reliant and resilient food network and improve the
local health, economy, environment, and social fabric of the
community.
Little Free Pantries- Work with non-profit and charitable
organizations to establish Little Free Pantries in areas where
neighbors might convene to meet neighborhood needs and
combat food insecurity. Pantries are designed similarly to Little
Free Libraries, and examples of contents include preserved
foods, toiletries, diapers, and sealed beverages.
Open Door/Open Ear - Encourage and support local activism
for all things in the Center City by fostering and promoting an
“open door policy” with City officials and staff, encouraging
greater communication between passionate individuals and the
City as it relates to the Center City. Consider hosting an annual
or bi-annual “Center City Idea Forum” to hear and discuss ideas
from interested residents, business owners, and stakeholders.
Imagine Oshkosh | Center City Reinvestment Strategy98
BOLSTER YEAR-ROUND
EVENTS & ACTIVITIES
IN THE CENTER CITY
Much of Oshkosh’s outdoor entertainment and activities is
dependent on the season. In the summer, Oshkosh draws in
residents and visitors to the Center City with activities such as
boating, concerts at the Leach Amphitheater and Opera House
Square, Waterfest, and the Farmers Market.
In the winter months, while the Center City’s activities and events
may be less robust, other seasonal activities are thriving in the
community. Ice fishing, ice boating, and snowmobiling on the lake
is popular during the winter. During the world famous sturgeon
spearing season in February, more than 13,000 special spearing
licenses are issued and Lake Winnebago is covered with ice
shanties.
The City should elevate existing events and develop additional
festivals and gatherings to help activate the Center City year-
round. These new events will in turn support additional economic
activity and help to create a more robust year-round economy.
Efforts to bolster year-round activities and events will require
careful coordination and cooperation between the City and various
distinct groups, such as the Oshkosh Convention & Visitors Bureau,
the Oshkosh Parks Department, the Rotary Club of Oshkosh, and
others.
Winter Fest – Following Oktoberfest, establish a Winter Fest
that incorporates tents with seasonal food, beverages, and
merchandise.
Ice Fishing Season “Kick-off” - Explore the possibility of creating
a ‘kick-off’ event for seasonal ice-fishing or the sturgeon
spearing season.
Ice Rink - Create an ice rink in the City Center, potentially in
the Opera House Square, and establish and promote winter
activities, such as ice skating, community snowman contests,
snowmobiling, ice fishing, and hot chocolate competitions.
Taste of Oshkosh - Create a “Taste of Oshkosh” or a similar
event offering inexpensive food and beverages demonstrating
local cuisines, restaurants, and cafes, as well as community
organizations demonstrating cuisines from various cultures.
Food Trucks - Promote the use of food trucks in the Center
City as supportive amenities for events in the area. This should
include an assessment of the City’s zoning regulations regarding
the usage of food trucks and the potential establishment of
designated food truck areas.
Designated Community Event Space - Identify various properties
within the Center City that could be potential spaces for
community events at varying scales, such as a larger venue for
regular Center City events and festivals as well as smaller spaces
for shorter, minor events.
“All Seasons” Campaign - Launch a promotional campaign to
advertise Oshkosh as both a summer and winter destination
for vacationers. This should include information about unique
winter-time activities available in Oshkosh.
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9
URBAN DESIGN &
PUBLIC SPACES
Urban design is about making connections between people and
places, movement and urban form, nature and the built fabric,
public spaces and private places. Urban design draws together the
many components of place-making and seeks to create a place
with distinct beauty and identity. For any successful downtown,
urban design and public spaces must be integrated into the mixed-
use fabric and pedestrian-oriented environment. Urban design and
public spaces goals for the Center City include establishing and
preserving a sense of place and scale, providing a welcoming and
attractive streetscape to enhance the pedestrian environment, and
improving and activating the Center City’s public spaces.
This section of the plan addresses many facets of urban design, and
among them, streetscape is one of the most important. This section
established and prioritizes a streetscape hierarchy and identifies
best practices and key components to achieving a successful
streetscape improvement program. As another key component
of urban design, public open spaces provide opportunities for
relaxation, outdoor gatherings and events, and the ability to better
engage amenities such as the Fox River and Lake Winnebago. Public
spaces help connect different areas of the Center City and help to
establish the area’s overall character, image, and sense of place.
9: Urban Design & Public Spaces 101
URBAN DESIGN & PUBLIC SPACES GOAL
ENSURE NEW INVESTMENT & DEVELOPMENT IS COMPATIBLE AND ATTRACTIVE
New development and investment will have a significant impact on the atmosphere of
Oshkosh’s Center City. Since individual parcels are oftentimes viewed as separate development
projects, it can be difficult to create a consistent, attractive development pattern if appropriate
guidelines are not put into place. The Design and Development Guidelines build upon
recommendations set forth in Chapter 3: Land Use & Development, and present more specific
recommendations to improve the quality, appearance and overall character of private
development, the waterfront and riverfront, public rights-of-way, and other public areas.
Imagine Oshkosh | Center City Reinvestment Strategy102
ARCHITECTURAL STYLE
New development in the Center City provides the opportunity
to establish an architectural style that can strengthen the
area’s character and distinguish Oshkosh from surrounding
communities. While the City should not attempt to dictate any
one specific architectural style, it can promote new construction
that complements the traditional/historic building styles evident
within much of the area. In areas lacking adjacency or proximity
to historic/traditional buildings, contemporary architecture and
building design can be appropriate and positively contribute to the
character and visual interest of Center City.
Development within the Downtown Core should consist of
traditional architectural styles. Modern architectural styles in
this functional subarea should be discouraged.
New buildings need not be historic replicas, but should offer
high quality and compatible interpretations of the traditional
styles present within core areas of Center City.
Regardless of style, new buildings are encouraged to use high
quality materials and reflect the predominant scale, height,
massing, and proportions of traditional developments or
downtowns.
New buildings should incorporate decorative cornices, columns,
reliefs, terra cotta tiles, and other significant façade detailing to
ensure visual interest and appeal.
If contemporary architectural styles are proposed, consideration
should be given to their relationship and impact on existing
buildings and development patterns within Center City.
9: Urban Design & Public Spaces 103
BUILDING HEIGHT,
BULK & PROPORTION
Vibrant developments are successful in creating an intimate
pedestrian atmosphere, or an outdoor “room” for visitors and
shoppers. Much of this atmosphere can be attributed to the bulk
and proportion of buildings as they relate to the street and one
another. Development within the Center City should be comprised
of primarily of two- and three-story buildings. Buildings of this
height contribute to a sense of enclosure and an intimate and
pedestrian scale.
Center City buildings should have a strong orientation towards
the street on which they front and, if located along the
waterfront, a strong orientation toward the water. All buildings
should incorporate 360 degree architecture.
Redevelopment/development within the Center City
boundaries should avoid extreme differences in building
height. Consideration should be given to the height of adjacent
buildings, particularly when located with the same Functional
Subarea, as designated in Chapter 3, Land Use & Development.
Buildings taller than four stories could be acceptable in select
locations, provided they are in character with the surrounding
area.
Vertical architectural elements should be incorporated
where appropriate and could include clock towers, spires or
bell towers. These elements should be considered design
“highlights” at key locations.
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BUILDING PLACEMENT &
ORIENTATION
Two primary orientations should be reinforced in the Center
City – street frontage orientation and waterfront orientation.
Outdoor dining, pedestrian arcades and plazas should complement
buildings whenever possible and should provide interest and
engagement along the street frontage and waterfront. Buildings
located at or near the sidewalk help to establish a distinctive
“streetwall” effect that adds visual interest, enhances the pedestrian
environment, and establishes a “human” scale within an area.
This streetwall pattern is essential in the Downtown Core, and
highly desirable in the Downtown Outer Core, North Main Street
Commercial Corridor, Oregon Street, South Shore Central, and Main
Street frontage of the South Shore East functional subareas.
Any development along the waterfront should provide
orientation and visual interest toward the water to reinforce the
Center City as a unique water-oriented mixed-use destination.
Buildings within the Downtown Core, and other functional
subareas as outlines above, should be located at or near the
sidewalk.
New construction in the Downtown Core is recommended to
occupy the entire, or nearly the entire, width of the lot to avoid
gaps between buildings and discontinuities in the streetwall,
except where pedestrian linkages or access to rear parking is
designed and planned for.
Where maintaining a continuous streetwall is not possible or
desirable, the streetwall should be maintained through the use
of landscaping, pedestrian amenities, and decorative walls or
fencing.
Buildings along the waterfront should be double-sided, with
one main entrance fronting the water, and a second entrance
oriented toward the street on which the building fronts.
The placement of buildings at odd or irregular angles should
be avoided. However, corner buildings might take advantage
of their prominent locations with angled, rounded or recessed
corner entrances or other small setbacks.
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PARKING AREAS
Parking within the Center City is recommended to accommodate
visitors, employees and residents. Parking areas should consist of
a combination of on-street parking and off-street parking lots.
Off-street parking lots should be designed and located so that they
are safe, efficient, and do not disrupt the pedestrian scale of the
Center City. On-street parking areas should be designed to provide
short-term convenient parking, which will assist in protecting
the pedestrians, calming traffic and contributing to the desired
character of Oshkosh’s Riverfront.
Parking lots shall be located behind buildings whenever possible
and practical, but always in the Downtown Core. Parking lots in
front of buildings are not recommended within the Center City,
except for larger parcels and development along the waterfront
where the building is adjacent/oriented toward the water.
Vehicular access to parking lots should be provided from
cross streets and not from the frontage street, particularly for
development located on Main Street and Oregon Street. Curb
cuts and access drives are discouraged along all pedestrian
shopping streets.
Pedestrian access to parking lots should be provided through
planned walkways located in gaps between buildings and plazas.
Parking lots should have curbed perimeters; landscaped islands
and clearly marked pedestrian pathways are encouraged within
the interior of parking areas.
Parking lots should be screened from view along sidewalks and
roadways through the use of low masonry walls or evergreen
plantings and decorative fencing.
All parking lots should be paved, well marked, sufficiently lit, and
provided with proper drainage.
Parking lot lighting should consist of vehicular scale lighting and
pedestrian scale lighting. Excessive lighting and light pollution
is discouraged.
Parking lot landscaping should include “landscape islands” at a
ratio of approximately one per fifteen to twenty parking spaces.
Landscape islands should consist of canopy trees (3 to 4 inches
in caliper), attractive groundcover, and/or decorative bushes (2
to 3 feet in height).
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BUILDING MATERIALS
The building materials most common within traditional
developments are earth-toned brick and stone. Ceramic tile and
terra cotta are also used as ornamentation around doors, windows
and cornices. Contemporary building styles use a wider range of
exterior materials which can be quite attractive, but not appropriate
within the context of infill sites in areas of predominantly
traditional architecture and material application.
In the Downtown Core and Downtown Outer Core, new
buildings should be constructed of traditional masonry building
materials such as brick or stone; these materials should be used
on all sides of the building. Stucco, siding of all types, and any
other exterior wall covering are not recommended within the
Center City.
New construction within Oshkosh’s Center City should have a
“360 degree” appearance, with design and detail consideration
for all visible sides.
Rough sawed wood, aluminum panels and siding, and plastic or
metal panels are strongly discouraged within the Center City.
Exterior insulation finish systems (EIFS) or Dryvit are strongly
discouraged within the Center City.
9: Urban Design & Public Spaces 107
DOORS & ENTRANCES
The doors and entrances to the new buildings along the street
frontage or waterfront should provide an open invitation to
potential customers, be attractive and inviting to pedestrians, and
add visual interest to the street, pedestrian environment, or from
the water. However, doors should be appropriately sized and in
scale with a building’s façade.
The front doors of new buildings should reflect the scale,
placement, and proportions of traditional downtown buildings;
recessed entrances are encouraged.
Main entrances should be at the front of the building and
face the sidewalk. Buildings situated on corner lots may take
advantage of their prominent locations with angled, or rounded
corner entrances.
Doors and entryways of buildings should be compatible with
the style and character of the façade.
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WINDOWS
Display windows on the ground floor of commercial buildings
are one of the distinguishing features of a pedestrian oriented
development. They allow passersby to see merchandise and activity
within a commercial building from the sidewalk. Windows on
the upper floors of traditional developments are smaller and less
prominent, but often have attractive detailing and decorative trim.
Large ground-floor display windows and bays are strongly
encouraged for retail and entertainment uses within the Center
City.
Windows on the upper floors of new buildings should appear
to be “punched” openings within a solid wall, rather than as
continuous rows of windows separated only by their frames.
Curtain-wall window treatments are not appropriate within the
Center City. Upper floor windows should be recessed, and not
flush with the surface of the building.
Windows should complement the architectural style of the
building.
Window glazing should be clear or slightly tinted; dark, mirrored,
or reflective glass is discouraged.
Ground floor windows can be used for displays, however
business owners are encouraged to allow full and unobstructed
views into their businesses. Obstructing windows from the
interior of a building with shelving, display cases, signage or
other objects should be discouraged.
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ROOFLINES & PARAPETS
The rooflines of new buildings should be similar to the rooflines
of a traditional downtown area in terms of shape, alignment, and
architectural detailing.
The roofs of most commercial buildings should be flat, shallow-
sloped or gabled.
Roof parapets should be utilized to create an interesting
building profile and to hide vents and other rooftop equipment.
Cornices, and other decorative detail are encouraged along the
rooflines of buildings.
Sloped mansard style (shake or shingle) roofs are discouraged
within the Center City.
Cedar shingles are recommended within the Center City. Cedar
shakes are discouraged.
Rooflines and architectural details should complement the
buildings architectural style, and contribute to the Center City’s
character, image and appeal.
Color should be used to unite the elements of a façade and
to highlight architectural features. However, the colors on
individual buildings should complement and be compatible
with the predominant hues of nearby buildings.
The predominant colors for Center City buildings should consist
of earth tones. The natural brick and stone colors should
predominate. Darker or lighter hues should be used as accent trim.
Ceramic tile, terra-cotta, brick, stone, and glass surfaces should
not be painted, unless it is appropriate to the architectural style.
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AWNINGS & CANOPIES
Awnings (temporary/seasonal) and canopies (permanent) protect
shoppers from the elements, add color and visual interest to the
street, and contribute significantly to an area’s pedestrian scale and
interest.
Awnings and canopies should be integrated into the façade
of commercial buildings within the Center City and shall be in
character with the architectural style of the building.
Awnings are encouraged above entrances and may extend over
storefront windows.
The color of awnings and canopies should complement and
enhance the overall color scheme of the building façade.
Awnings and canopies should be positioned at least eight feet
above the sidewalk or other pedestrian pathways.
Awnings should be made of a canvas or durable fabric material
that can be easily cleaned. Hard plastic, or other materials that
could be cracked or broken are not recommended. Awnings and
canopies that become windblown or torn should be replaced
immediately.
Back lit awnings and canopies, shingle and mansard canopies,
and metal and plastic awnings are not recommended within
the Center City.
Awnings and canopies should be used only when they are
compatible with, or complement the architectural style of the
building. Awnings should not appear out of place, “forced”, or as
an afterthought.
9: Urban Design & Public Spaces 111
BUILDING SIGNAGE
Signage not only communicates the nature of individual
businesses, but also influences the overall image and character of
Oshkosh’s Center City.
Raised, individual letters mounted directly on the building, as
well as signs that use light colors for lettering and darker colors
for backgrounds, are encouraged throughout the Center City.
Wall-mounted signs should be designed as an integrated
component of the building façade, and should not cover
important architectural details.
The size, material, color, and shape of signs should complement
the architectural style and scale of the building.
When a building contains multiple storefronts, signage for all
businesses should be compatible in design and consistent in
placement.
Pole signs and internally illuminated box signs are strongly
discouraged in the Center City.
Street numbers should be prominently displayed at the main
entrance to every home or business and be clearly visible from
the street.
Imagine Oshkosh | Center City Reinvestment Strategy112
BUILDING LIGHTING
The lighting of a building’s façade can help identify stores and
businesses, promote a sense of safety and security, and highlight
prominent buildings and architectural features.
Lighting is encouraged to illuminate entryways in the Center
City, signage, displays, pedestrian and parking areas, as well as
to highlight significant architectural elements.
Building lighting should be subtle and understated; light fixtures
should be designed and oriented to produce minimal glare and
spillover onto nearby properties, the river, and the night sky.
Most exterior lighting sources should be concealed to provide
direct illumination; where concealment is not practical, light
fixtures should be compatible with overall storefront design.
Spotlighting is not encouraged for commercial buildings within
the Center City.
Incandescent lighting creates a warm atmosphere and
is encouraged; if neon lighting is used, colors should be
compatible with and complement the façade of the building.
High pressure sodium (orange lighting), or a diffused, soft white
light is encouraged. LED lighting is also appropriate. Extensive
lighting should also be avoided to reduce light pollution.
REAR YARDS &
REAR FAÇADES
The rear portions of all properties should be clean, attractive and
well maintained, particularly where these areas are visible to the
public.
The backs of existing buildings should be well kept, with rear
façades being “comparable” to front façades.
Secondary rear entrances to stores and shops are strongly
encouraged in businesses where public parking or pedestrian
walkways are located behind the buildings.
Trash receptacles, dumpsters and service areas should be
located inside the primary building or be fully enclosed in small
masonry structures.
Outdoor storage and service facilities should be screened from
view along sidewalks and roadways through the use of low
masonry walls or evergreen plantings.
9: Urban Design & Public Spaces 113
URBAN DESIGN & PUBLIC SPACES GOAL
ESTABLISH A SENSE OF PLACE AND SCALE
SENSE OF ENCLOSURE
Enclosure refers to a room-like feeling that occurs on streets and
other public spaces that are visually and physically defined by
buildings, walls, trees, and other elements. It creates a special sense
of place and intimacy that are an important element of successful
downtowns.
A sense of enclosure is established when the total width of a street
does not exceed the height of the buildings on the street and
when buildings are lined next to one another to form a continuous
street wall. Landscaping, in the form of trees and tall shrubs used
to screen surface parking areas, can also contribute to a street wall.
The sense of enclosure is disrupted when there are breaks in the
street wall for curb cuts, parking lots, vacant sites, and inconsistent
buildings setbacks. Additionally, streetwalls provide ground-level
visual interest in the form of architecture, window shopping,
plantings, and public art, amongst others.
STREETWALLS
Streetwalls can vary dependent upon the adjacent land use. For
example, a residential street wall that consists of single-family
homes can maintain a consistent street wall given the structures
have a similar setback. Although they will have a number of curb
cuts for driveways, they do not necessarily break up the street wall
when considering the low-density nature. Conversely, curb cuts
within a commercial district such as Main Street, where buildings
are in close proximity, can significantly reduce the sense of
enclosure.
BLANK FACADES
Blanks walls and fences can create an empty and uninviting
appearance, and convey the appearance of an unsafe environment.
Where these areas exist, whether permanently or temporarily,
the City can engage local artists to repurpose these visual
impediments.
One example is Cindy Chang’s Before I Die project, installed on
the plywood walls surrounding an abandoned house in her New
Orleans neighborhood. The project used chalkboard paint, chalk,
and a spray paint stencil to prompt viewers “Before I Die I Want To
_____.” The wall quickly filled with answers from the surrounding
community, and the concept has spread to over 70 countries. Other
prompts have also been used, such as “I wish this was...” or “In my
Downtown I want to see...”to measure what residents want to see
done with vacant buildings and undeveloped lots. These kinds of
installations convert private barriers into spaces for community
interaction and expression.
Successful downtowns provide a unique sense of place which set them apart from other areas of the
community and make them inviting and comfortable. Creating a sense of place requires consideration
to the human scale as perceived by a pedestrian. The Center City Study Area encompasses a large
amount of land, extending north to south roughly twice the distance of Chicago’s Magnificent Mile. As
a pedestrian, this area can seem vast. However, through building placements and proper heights and
proportions, key areas can function as “outdoor” rooms and foster a welcoming, comfortable district.
Imagine Oshkosh | Center City Reinvestment Strategy114
RECOMMENDATIONS
Updated Regulations - Review and update zoning regulations
throughout the Center City study area to facilitate the creation
of consistent streetwalls and ensure new development is
required to match existing streetwalls where previously
established.
Infill Priorities - Prioritize infill development which will
contribute to existing streetwalls or fill streetwall gaps within
the Downtown Core, Outer Core, Oregon Street, and Northwest
Transition.
Outer Core Development - Support development within
the Downtown Outer Core which will facilitate creation of a
consistent streetwall and, where possible, connect with the
established streetwall within the Downtown Core subarea.
Landscaped Streetwall - Require a landscaped streetwall,
consisting of foliage, fencing, berms, or other decorative
elements, for all surface parking lots with street frontage.
Temporary Walls - Coordinate with property owners of vacant
properties to explore innovative options for temporary walls
or other barriers which will contribute to an existing streetwall
while providing a space for public art, community postings,
interactive displays, and other forms of public engagement.
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STREETSCAPE
IMPROVEMENTS
The City should enact additional streetscaping projects within the
Center City. These can be implemented incrementally, or in tandem
as part of a larger beautification project. Given the sheer amount
of roadways included within the study area, the City should take
advantage of opportunities as they arise and utilize a variety of
methods to make desired streetscape improvements. For example,
streetscaping improvements can be tied to other public works
and maintenance projects or completed collaboratively with new
developments or renovations.
In general, streetscaping enhancements should mimic the style of
those recently completed along N. Main Street in order to create
a unified and collective appearance to the Center City. However;
the intensity of streetscaping must be responsive to the context of
distinct roadways, taking into account traffic counts, right-of-way
width, roadway jurisdiction, adjacent uses, and other contributing
factors. Further, long-term projects may be affected by issues or
changes that arise in the future. Thus, the completed streetscaping
along N. Main Street should be utilized as a set of best practices
which can be applied throughout the study area as appropriate.
The highest intensity streetscaping should focus on creating
enhanced pedestrian environments. Sidewalks should be as wide as
possible per right-of-way widths to provide an enlarged pedestrian
realm and allow opportunities for outdoor dining. To make walking
more pleasant for pedestrians, visually interesting details such
as landscaping, water features, wayfinding and gateway signage,
and street-level retail should be incorporated. Sidewalks should
be buffered from the automobile right-of-way using on-street
parking, landscaping, bump-outs, and other amenities. By featuring
various pedestrian-friendly elements, these roadways should be
inviting and provide a unique environment for individuals to spend
their time in the Center City.
Lower intensity streetscaping enhancements should focus on
balancing the pedestrian realm and automobile right-of-way to
ensure that all modes of transportation are managed safely and
efficiently. These improvements should be adapted to specific
roadways with regard to scale and types of amenities included. For
example, as a higher traffic roadway located on the periphery of the
Center City, Wisconsin 44 should not feature the same intensity of
pedestrian amenities as N. Main Street.
URBAN DESIGN & PUBLIC SPACES GOAL
PROVIDE A WELCOMING & ATTRACTIVE STREETSCAPE
The public right-of-way encompasses a significant holding of land within the study area. These
corridors are not only a means of transportation and utility transmission, but also play a large role
in defining the character of the community. Recent streetscape improvements along North Main
Street—from the Fox River in the south to Irving Avenue to the north—have helped establish a unique
character and increased pedestrian friendliness that sets it apart from other parts of the City. Brick
accents mark the edge of the sidewalk while trees, lighting, and banners create a safe and inviting
feel. In addition, the use of planters, trash receptacles, and benches help to create small hubs of
activity. Oshkosh’s Center City should be pedestrian-oriented throughout to enhance the pedestrian
experience and encourage people to walk around and engage in their surroundings. Streetscaping
projects provide an opportunity to improve the physical appearance of Center City in a significant
way, helping to define the character of the district and generating positive momentum for future
development. A well-designed and attractive public realm convey a sense of community pride.
Imagine Oshkosh | Center City Reinvestment Strategy116
STREETSCAPING
PRIORITIZATION
Roadways within the study area have been categorized as part
of a streetscaping prioritization, intended to provide the City
with a guide as to where streetscaping projects will yield greatest
impact. These kinds of improvements require careful scheduling,
coordination of funding, and cooperation with other jurisdictional
bodies. Thus, it is highly important that the City knows where
available funding and effort should be spent with regard to short-
and long-term streetscaping projects.
Roadways have been categorized as follows based upon traffic
counts and patterns, visibility, and their role within the existing
transportation network.
PRIORITY 1 (HIGH PRIORITY)
Streets designated as Priority 1 should receive first consideration
for streetscape improvements and be the focus of a dedicated
enhancement projects within the next 2-3 years. These roadways
are highly visible and often accommodate the highest volume of
automobile and pedestrian traffic within the Center City. Priority
1 streetscape enhancements will have the highest impact on the
character and appearance of the Center City.
PRIORITY 2 (MEDIUM PRIORITY)
Streets designated as Priority 2 should receive second consideration
for streetscape improvements and be the focus of a dedicated
enhancement projects within the next 4-5 years. These roadways
provide support for many of the highest visibility areas of the
Center City but do not have the same visual impact or traffic counts
as Priority 1 roadways. Priority 2 streetscape enhancements will
contribute to an improved pedestrian experience in the Center City
and support future growth and investment.
PRIORITY 3 (LOW PRIORITY)
Streets designated as Priority 3 should receive third consideration
for streetscape improvements and be the focus of a dedicated
enhancement projects within the next 6-10 years. These roadways
experience less frequent traffic and have low visibility compared to
higher priority roadways. Priority 3 roadways comprise many of the
central roadways for functional subareas outside of the Downtown
Core. Priority 3 streetscape enhancements will help to elevate the
appearance of individual subareas and allow for improvements to
the character of distinct areas of the Center City.
PRIORITY 4 (RESIDENTIAL STREETS)
Streets designated as Priority 4 are largely residential in nature
and as such, should not be cited for dedicated streetscaping
enhancement projects. However, the appearance of these roadways
will contribute to the overall character of the Center City. As such,
the City should regularly review these roadways and complete
regular maintenance to avoid deterioration. This should include
roadway and sidewalk repairs, street cleaning, repaving, and
other basic upkeep. If opportunities arise, smaller streetscaping
enhancements may be implemented, such as landscaping,
decorative lighting fixtures, or introduction of street trees.
SIDEWALK ZONES
& FUNCTION
Sidewalks within the core of the study area generally fall in line
with sidewalk zone best practices. Well-functioning sidewalks
consist of four distinct “zones” of activity that provide for a safe and
comfortable pedestrian experience. The zones include a frontage
zone to buffer the building from pedestrians and allow space for
dining or merchandise displays; a pedestrian zone that is free of
obstacles for people to travel; a furniture/utility zone for trees,
planters, and light and utility poles; and a curb zone that serves as a
transition area between the sidewalk and road.
OTHER STREETSCAPE
IMPROVEMENTS
Given the success of the recently completed streetscaping
along N. Main Street, additional projects should include similar
improvements and aim to expand the distinct character and
atmosphere. While other streetscaping improvements have been
made in the past, the enhancements made along N. Main Street
should be utilized as an example of best practices. Further, the City
should seek opportunities to improve upon the existing and future
streetscaping by incorporating best practices and new innovations
which will enhance the pedestrian realm and contribute to a
distinct sense of place.
9: Urban Design & Public Spaces 117
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UNIVERSITY OF
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Imagine Oshkosh | Center City Reinvestment Strategy118
BEST PRACTICES &
NEW INNOVATIONS
OUTDOOR DINING & ACTIVITIES
Oshkosh Center City should promote opportunities for restaurants
to feature outdoor patios and rooftop decks. Outdoor dining should
be designed in a way that doesn’t impact pedestrian circulation.
The character and materials used should be in line with the
character of its principal structure.
Outdoor activities do not need to be limited to dining. The Center
City can provide opportunities for community events and festivals.
Live music, art fairs, farmers markets, and more will attract to
people the Center City and continually promote the area on a local
and regional level.
BUMP OUTS
Bump outs are curb extensions that “bump out” into the right-of-
way to reduce the distance that pedestrians have to cross, increase
visibility for both vehicles and pedestrian, frame parking lanes,
and slow vehicular traffic. Bump outs should be considered for all
primary and secondary intersections, where right-of-way widths
and traffic patterns allow.
UTILITY BURIAL/RELOCATED
Above-ground utilities can be unsightly and contribute to an
unattractive or industrialized appearance. As appropriate, the City
should take advantage of opportunities to bury utilities or relocate
them to the rear of sites as an alternative. Understanding the high
cost of burying utilities, these improvements may not be feasible in
some areas and should be considered a long-term project.
PARKLETS
Parklets are temporary extensions of the sidewalk into the parking
lane along the street. They create spaces for people to sit and
enjoy their surroundings. They can also be used by restaurants for
outdoor dining opportunities or to support specific events and
activities.
GATEWAY & WAYFINDING SIGNAGE
In an effort to announce one’s arrival into the Center City, gateway
features should be employed in key locations. Gateway features
can be achieved through signage at the ground level or through
unique architectural elements. Attractive landscaping, lighting, and
other vertical design features should complement the signage and
architectural elements.
Wayfinding signage assists people in finding important community
landmarks, while enhancing the streetscape. Similar to gateway
features, wayfinding should consist of signage complemented by
landscaping and lighting. Wayfinding features should be in key
locations to direct people to destinations in the Center City such as
the Riverwalk or Opera House Square.
9: Urban Design & Public Spaces 119
PAINTED CROSSWALKS
Colorfully painted crosswalks can be a fun alternative to pavers.
The vibrant geometric shapes are easily visible by car for increased
pedestrian safety. These can also incorporate local artists or unique
designs specific to Oshkosh.
WI-FI PILLARS
LinkNYC is a free public communications network for the residents
of New York City. The company plans to replace all 7,500 pay
phones across the city and replace them with the Link tower. The
towers provide WiFi, phone calls, device charging, and a tablet
for access to city services, maps, and directions. The City should
consider the development of similar WiFi pillars within the Center
City. These could be developed in cooperation with an Innovation
District or Amplify Oshkosh,.
INTERACTIVE ART
Streetscaping projects provide a significant opportunity to
incorporate public art within the pedestrian realm. The City should
explore opportunities to incorporate interactive art displays which
invite residents to become involved with the environment around
them, such as the Lucerne Shrine project. For more information on
integrating art and interactive displays within the Center City, see
Arts & Cultural Resources (Page 89).
LUCERNE SHRINE
The Lucerne Shrine project in Lucerne, Switzerland was aimed and discouraging
residents from littering the streets and sidewalks with trash . Mazes, hopscotch
boxes, and three point lines were painted around trash receptacles to make the
act of throwing out trash more fun .
Imagine Oshkosh | Center City Reinvestment Strategy120
GREEN INFRASTRUCTURE
Green Infrastructure is an approach to infrastructure design with
an emphasis on stormwater management that attempts to mimic
the natural hydrological cycle within the built environment. Green
infrastructure aims to reduce the travel time, volume, and pollutant
load of the water by treating the water at its source. A wide range of
green infrastructure strategies exist that can be incorporated into
future streetscape improvements, include:
Tree Boxes
The tree box is comprised of an underground concrete storage
chamber containing engineered soil media and native, non-invasive
trees or shrubs. The filter media mixture immobilizes pollutants and
treated water is allowed to infiltrate or enter an underdrain system.
Tree boxes can be installed in the right-of-way between the curb
and sidewalk, in curb bump outs, and medians.
Permeable Pavers
A variety of surfaces permit water to pass through while trapping
suspended solids and filtering pollutants. Permeable pavers can be
incorporated into walkways and areas where vegetation might not
thrive or be appropriate. They can be used to distinguish bike lanes
from motorized travel lanes and replace parking areas, alleyways,
driveways, sidewalks, and crosswalks.
Bioretention Areas
Bioretention areas are depressed vegetated areas that collect
runoff from impervious surfaces, filter water through plant roots,
and slowly infiltrate to subgrade or underdrain. This can include
bioswales and rain gardens. Water enters bioretention areas via
curb cuts or at grade. Sections existing of impermeable surfaces
along streetscape can be removed to create a depressed, vegetated
area able to receive and filter stormwater.
9: Urban Design & Public Spaces 121
PARKS AND
OPEN SPACES
The City should conduct a review of properties in the Center
City and establish a plan that identifies potential new parks
and open spaces by functional subarea. This should include a
prioritization schedule based on feasibility and availability of land
and incorporate potential programming to create recreational
opportunities. Further, prioritization should be based on
contribution to an overall public space network and accessibility
both within the study area and to adjacent residential areas.
SOUTHSIDE NEIGHBORHOOD PARK
Top prioritization should be given to developing a neighborhood
park within a functional subarea south of the Fox River. These
subareas lack public spaces and have poor access to existing
parks and open space. Further, development of a park space will
encourage greater residential growth and assist with efforts to
revitalize previously industrial sites.
PARKLAND DEDICATION IN THE CENTER CITY
The City should provide incentives to incorporate public space as
part of future development in the Center City. This could also be
accomplished through development regulations that require a
certain square footage of public space. This public space can be
comprised of parks, open space, plazas, or other forms of public
space, and should be specific to the size of the development
property. Smaller properties should be allowed to pay a fee in lieu
of including public space; however, larger properties should be
required to include a minimum square footage.
DOG PARK
The City should actively seek the development of a dedicated dog
park within the Center City. A dog park could be included either as
its own, separate park or as an improvement to an existing park
facility. Depending on the success of an initial dog park on the
north side of the river, the City should consider adding a second
dog park within a functional subarea south of the Fox River, such as
in the South Shore East or Oregon Street subareas.
PUBLIC PLAZAS & POCKET PARKS
While parks and open spaces provider greater versatility and more
dedicated recreational spaces, they can be difficult to site and
develop within a dense urban center. To ensure that the Center
City still has ample public spaces, parks and open spaces can be
complimented by public plazas and pocket parks. Public plazas
constitute any publicly accessible open area that provides outdoor
public space, often including a water feature, art display, benches,
or landscaping. Pocket parks are green spaces located on very small
lots, often located between buildings on formerly vacant lots. These
serve as an oasis within an urban environment.
The City should work with property owners, developers, and
existing businesses to identify opportunities for public plazas,
pocket parks, and other smaller public spaces. They should
incorporate thoughtful design, public art, water features, and
other programming improvements as appropriate. As previously
discussed, the City should provide incentives to incorporate public
space as part of future development in the Center City. This could
also be accomplished through development regulations that
require a certain square footage of public space.
URBAN DESIGN & PUBLIC SPACES GOAL
IMPROVE AND ACTIVATE CENTER CITY’S PUBLIC SPACES
Center City Oshkosh is fortunate to have several public spaces, including Roe Park, Opera House Square,
Riverside Park, Leach Amphitheater, Pioneer Drive Park, and the plaza across from the Oshkosh Public
Library. Together with the Fox River and Lake Winnebago, one is never more than a few minutes’
walk from an attractive public gathering place. These types of spaces are extremely important to
the success of a downtown district and its position as the focal point of a community. Parks, open
spaces, plazas, waterfronts, and other public spaces provide a location for community events and
activities, and opportunities for residents to meet, spend leisure time, and enjoy the outdoors.
Imagine Oshkosh | Center City Reinvestment Strategy122
Lake
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UNIVERSITY OF
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9: Urban Design & Public Spaces 123
WATERFRONTS
One of Center City Oshkosh’s greatest assets is the ability to “touch
the water.” While many other downtowns in the region are located
on or near water, Oshkosh’s waterfront allows anyone to walk right
up to the waterfront and relax, hop into a boat, or launch a kayak.
For example, in Downtown Appleton, steep bluffs separate the
waterfront from Downtown, and portions of Neenah’s Downtown
waterfront remain private residential or industrial properties, and
are not accessible to the public.
The City should continue to activate local waterfronts as unique
assets and extensions of the existing public spaces within the
Center City. Further, improvements along the waterfront should
help to connect the north and south shores. Currently, the
established subareas are largely separated by the river as a natural
barrier. This can create a feeling of disconnect between the north
and south shore and create the impression that the Center City
is actually two distinct areas. Improvements to the riverfront,
including both public spaces and future development, will help
place greater emphasis on the river as an important asset of the
Center City. In turn, this will convert the Fox River from a dividing
barrier into a link which brings the north and south shore together
into a single, unified district.
COMPLETING THE RIVERWALK
The Oshkosh Riverwalk is one of the community’s most cherished
amenities and a world class asset. When completed, the Riverwalk
will be a nearly continuous loop along both sides of the Fox River
from Wisconsin Street in the west to Lake Winnebago in the east,
connecting with the University of Wisconsin - Oshkosh and the
Wiouwash Trail. At present, the northern shore of the project is
complete while the south shore portion remains mostly incomplete.
The City should continue to complete segments of the Riverwalk
as funding becomes available, particularly eastward where it
can provide access to Lake Winnebago. The City should consider
planning an extension of the north shore Riverwalk east beyond
the railroad to connect to Lake Winnebago and adjacent
neighborhoods. In addition, the Riverwalk should include north and
south extensions to adjacent developments where appropriate.
Potential extensions could connect the route to the Downtown
Core, Pioneer Island, the Morgan District development, or other
riverfront developments. Views and access to the Riverwalk should
be maximized and enhanced whenever and wherever possible.
LAKE WINNEBAGO
While the river plays a more prominent role in the Center City, the
study area does border Lake Winnebago, which is a considerable
asset for the City of Oshkosh. However, lakefront properties
within the Center City are currently comprised of a marina and
the vacant Pioneer Island. The City should take advantage of any
opportunities to further promote water-based recreation, should
they arise. Potential redevelopment of the Pioneer Island property
should include some form of public space to be tied in with the
planned Riverwalk extensions; however, this will depend largely on
development details.
WATERFRONT PARK
Just east of the railroad on the north side of the Fox River is a
currently vacant waterfront property. The City should explore
opportunities to purchase this property and develop an additional
waterfront park. This facility could link to an eastern extension of
the Riverwalk and help to create a network of waterfront green
spaces. In addition, the position of the property would help to
connect adjacent residential neighborhood to the Center City.
The size of the property could support a variety of programming
improvements, such as a beach volleyball court, skate park, or
tennis courts.
“PULLING” THE WATERFRONT INLAND
A key approach to developing the waterfront areas is to not wall
off the waterfront with adjacent development. It is important that
the waterfront presence be felt and seen as far inland as possible.
Appropriate spacing between building and the maintaining and
enhancing of view corridors to the water is essential, in order to
maximize the waterfront for the entire Center City and not just the
inhabitants of the development adjacent to the water’s edge.
Imagine Oshkosh | Center City Reinvestment Strategy124
WATER TRAFFIC
The Fox River connects Lake Winnebago to Lake Butte des Morts.
Lake Winnebago is the largest freshwater body of water within
Wisconsin, and in the warm months the Fox River is a key highway
for canoes, kayaks, motorboats, and the Loos Cruises. Docks along
the northern banks allow boaters to pull right up and dine at local
restaurants such as Becket’s and the Ground Round. For some
boaters, their first impressions of Oshkosh might be what they see
from the water, so it is critical that the waterfront is inviting and
attractive.
Appearance From the Water - The City should make it a policy to
consider the Center City from the perspective of a boat-driver or
passenger. Views from the water should be a key element of review
all development proposals for riverfront properties. For example,
truck parking and stroage as seen on the Morgan Door site should
not be regularly visible from the river. Should Pioneer Island see
redevelopment, this site should provide a pinnacle for both the
riverfront and lake-front, establishing an inviting and attract first
sight for those entering the Center City.
A “Boat-Friendly” Waterfront- All public spaces along the
waterfront should be improved with boat-friendly features, such
as docks, boat launches, or maintenance stations; waterfront uses
such as restaurants, shopping, entertainment, and mixed-use;
and civic spaces to host pubic events and activities. In addition,
the City should develop waterfront signage and gateway elements
specifically for boats entering the Center City. Oshkosh’s ties
to boating and water-based recreation should be kept in mind
for all elements of the Center City’s image, such as promotional
materials, branding, wayfinding and gateway signage, or public
art. Incorporating this theme to the Center City, particularly close
to the riverfront, will help promote Oshkosh as a “boat-friendly”
community.
IMPROVED
PROGRAMMING
The City should conduct a review of existing parks and open
space within the study area to identify opportunities for new
programming which will better activate public spaces in the Center
City. New programming could include splash pads or other water
features, smaller recreational areas such as a skate park, public art,
interactive installations, Bocce, chess tables, or other improvements.
Parks and open spaces adjacent to the Fox River or Lake Winnebago
should include improvements that support water-based recreation.
As a part of identifying new programming, the City should also
inventory existing facilities and identify necessary maintenance,
renovations, or upgrades.
Existing spaces, such as this small plaza (William Waters Plaza)
across from the Oshkosh Public Library, could be improved with
public art, landscaping, a checkers/chess table, or other interactive
pieces. Planned improvements are underway.
9: Urban Design & Public Spaces 125
Imagine Oshkosh | Center City Reinvestment Strategy126
This final chapter of Imagine Oshkosh presents two fundamental
components to assist with the City in implementing the plan:
Incentives and Tools & Center City Partners. Drawing on these
essential resources the as an implementation framework the City
can begin to initiate and undertake key recommendations of
Imagine Oshkosh
For Imagine Oshkosh to be successful, it must be based on support
and participation between the City, other public agencies, various
neighborhood groups and organizations, the local business
community, property owners, developers, and residents. The City
should be the leader in promoting cooperation and collaboration
with these and other community stakeholders to implement
Imagine Oshkosh.
IMPLEMENTATION “TOP 5”
Although every implementation strategy and action identified
in this chapter is important to the overall success of Oshkosh
Center City, certain implementation items have been identified
as the “top 5”, as a means of focusing the City initial efforts in a
targeted way. This “Top 5” list in no way indicates that the City
should only take on these items as implementation commences, or
that other action items aren’t also essential to the Plan’s success.
In the Implementation Action Matrix located at the end of this
section, there are more than 145 specific action items that relate
to key aspects of implementation. Several of the items listed in the
Implementation Action Matrix address the “Top 5”
1. Activate the upper floor of existing mixed-use buildings
2. Attract new businesses and employers to move to the Center City.
3. Encourage new residential development in the Center City
consistent with the recommendation of Imagine Oshkosh.
4. Apply the design and development guidelines to new
development within the Center City.
5. Activate and improve the local waterfronts as unique assets and
extensions of the existing public open space within the Center City
INCENTIVES & TOOLS
The City, state, and federal governements offer various incentives to
encourage economic development and improvements to existing
properties. This section details some of the available incentives and
tools that could be used to generate desired the redevelopment
and development scenarios recommended in Imagine Oshkosh.
REDEVELOPMENT DISTRICTS (CITY)
The City of Oshkosh, based on recommendations in the
Comprehensive Plan, created several redevelopment districts to
further revitalization efforts and align resources and funding.
The main source of public funding has been through the use of
Tax Increment Financing (TIF) for the purpose of enhancing the
economic conditions required for private investment. There are
eight designated Redevelopment Areas within the project study
area, depicted on the accompanying map. Imagine Oshkosh will
determine whether or not these existing districts need to be
updated in terms of geography or whether new districts should be
created to guide recommendations.
10
IMPLEMENTATION
10: Implementation 127
TAX INCREMENTAL FINANCING (CITY)
TIF is the most common economic development tool utilized by
Wisconsin cities to spur development. Authorized by the state
legislature in 1975, TIF allows municipalities to fund infrastructure
and other improvements within a designated area by capturing
increased property tax revenue. Approval of TIF districts falls to a
Joint Review Board consisting of the City, County, School District,
and Fox Valley Technical College. For a TIF to be approved, among
other factors, the developer must meet the “but for” test (i.e., the
new development would not be feasible if not for the use of a TIF.
TIF districts must fall under one of four district types: Blighted
District, Rehabilitation or Conservation District, Industrial District,
and Mixed-Use District. This classification is based on which of the
four land uses is predominant in the Tax Increment District (TID)
area. The TID is terminated at the end of the expenditure period
(15-27 years, dependent on district type), following receipt of tax
increment revenue that totals more than the project costs, or due
to voluntary termination.
Eligible project must be consistent with the Comprehensive Plan
and meet seven basic objectives:
1. Stimulate and continued revitalization of the central city and
downtown area
2. Promote efficient usage of land through redevelopment of
blighted areas.
3. Strengthen the economic base of the city and support
economic development
4. Stabilize and upgrade targeted neighborhoods
5. Create and retain family supporting jobs in the city
6. Increase property values and tax revenues
7. Leverage the maximum amount of non-city funds into a
development and back into the community
HISTORIC PRESERVATION TAX CREDIT (STATE)
The State of Wisconsin’s Historic Preservation Tax Credit (HTC)
program provides transferable state income tax credits to eligible
entities rehabilitating certified historic buildings. The HTC provides
an uncapped, 20 percent credit for qualified rehabilitation
expenses. Eligible buildings must be recommended by the State
Historic Preservation Officer (SHPO) as a certified historic property.
Properties that are not eligible because they are not certified
historic buildings may also quality for the credit if the building was
placed in service before 1936 and has not been relocated.
HISTORIC PRESERVATION TAX CREDITS (FEDERAL)
The U.S. government offers two federal income tax credits that
can facilitate restoration and rehabilitation of historic and older
buildings. The credits include:
20% Federal Tax Credit. A 20 percent income tax credit is
available for the rehabilitation of historic, income-generating
buildings that are determined by the Secretary of the Interior,
through the National Park Service, to be “certified historic
structures.” The State Historic Preservation Office and the
National Park Service review the rehabilitation work to
ensure that it complies with the Secretary’s Standards for
Rehabilitation. The Internal Revenue Service defines qualified
rehabilitation expenses on which the credit may be taken.
Owner-occupied residential properties do not qualify for the
federal rehabilitation tax credit.
10% Federal Tax Credit. The 10 percent tax credit is available
for the rehabilitation of non-historic buildings placed in service
before 1936. The building must be rehabilitated for non-
residential use. To qualify for the tax credit, the rehabilitation
must meet three criteria: at least 50 percent of the existing
external walls must remain in place as external walls; at least
75 percent of the existing external walls must remain in place
as either external or internal walls; and at least 75 percent of
the internal structural framework must remain in place. There
is no formal review process for rehabilitations of non-historic
buildings.
Imagine Oshkosh | Center City Reinvestment Strategy128
REVOLVING LOAN FUND PROGRAM (CITY/EDC)
In 2014, the City established the Revolving Loan Fund Program
in partnership with Greater Oshkosh Economic Development
Corporation. The $2.4 million program provides a flexible gap
financing tool for businesses involving high-income and job
growth projects through expansion or relocation in the City.
Eligible businesses may receive a minimum loan of $50,000 to a
maximum of $200,000 to acquire land, buildings, and equipment;
site preparation, construction, and rehabilitation; clearance or
demolition; and several other activities. The Greater Oshkosh
Capital Catalyst Fund allows for any single business enterprise
to obtain funds from a minimum of $10,000 to a maximum of
$100,000. Loans, grants and equity positions are all viable awards
from the Greater Oshkosh Capital Catalyst Fund.
OSHKOSH CHAMBER (OAEDC) REVOLVING LOAN FUND PROGRAM
Established by OAEDC in 2005, the Oshkosh Chamber RLF provides
up to $25,000 in incentive based financing to promote local
economic development with an emphasis on the Central Business
District. Loans to eligible businesses can be utilized for acquisition
of land, buildings and fixed equipment, new construction, leasehold
improvements, acquisition of inventory, or working capital.
RECRUITMENT GRANT (BID)
Established by the Oshkosh Business Improvement District (BID),
the Recruitment Fund Grant program gives up to $5,000 to an
individual business to aid in its relocation into the BID or fund
expansion for a business that is already in the BID.
RETENTION GRANT (BID)
Established by the Oshkosh Business Improvement District (BID),
the Retention Grant awards qualifying property owners and
businesses within the BID matching funds for exterior façade
improvements made to their building. The grant reimburses 50
percent of expenses up to $1,000.
AFFORDABLE HOUSING PROGRAMMING (STATE)
The Wisconsin Housing and Economic Development Authority
(WHEDA) provides several financing tools for housing developers
and property managers to construct and maintain affordable
housing. Options include tax-exempt bond financing, stand-along
bond financing, and flex financing.
ENTERPRISE ZONE TAX CREDIT (STATE)
Enterprise Zone Tax Credits are available through the Wisconsin
Economic Development Corporation to assist Wisconsin businesses
that have major expansion projects or are relocating major
business operations from other states to Wisconsin. Refundable tax
credits can be earned through job creation, job retention, capital
investment, employee training, and supply chain purchases from
Wisconsin vendors. Ineligible businesses include payday loan and
title loan companies; telemarketing operations; pawn shops; media
outlets such as newspapers and radio (unless the job creation
is significant); businesses in the tourism industry (unless the job
creation is significant); retail establishments; farms; primary care
medical facilities; and financial institutions.
BUSINESS DEVELOPMENT TAX CREDITS (STATE)
Businesses seeking to locate or expand in the Center City may
be eligible for Business Development Tax Credits through the
Wisconsin Economic Development Corporation. Eligible businesses
must demonstrate an increase in net employment in the state each
year for which the business claims tax credits. Ineligible businesses
include payday loan and title loan companies; telemarketing
operations, other than inbound call centers; pawn shops; media
outlets; retail establishments; farms; primary care medical facilities;
financial institutions; and businesses in the hospitality industry.
NEIGHBORHOOD BUSINESS REVITALIZATION GUARANTEE (STATE)
The Wisconsin Housing and Economic Development Authority
(WHEDA) provides financial assistance to small businesses. The
organization’s Neighborhood Business Revitalization Guarantee
(NBRG) gives access to financing that allows qualified small
businesses to develop or rehabilitate commercial real estate in
urban areas.
SPECIAL PROJECT LOAN FUND (STATE)
The Special Project Loan Fund is administered through the
Wisconsin Economic Development Corporation. Loan amounts
range from $50,000 to $250,000, and can be used by businesses
for working capital, equipment purchases, brownfield remediation,
or new product development. Loans require at least a 50 percent
match by the recipient, and loan guarantees require a 20 percent
match.
10: Implementation 129
PARTNERING
CENTER CITY
This section identifies organizations that have a stake in the
success of the Center City, including those living, working,
activating, or getting around in the Center City. As Imagine Oshkosh
is being developed, it is expected that the organizations reviewed
in this section will have a role in plan implementation. Please note
that this chapter is a working list that is evolving and should not be
considered exhaustive.
“WHO’S OUR LEADER & CHAMPION?”
During the outreach process, it was communicated, particularly
in stakeholder interviews, that economic development leadership
within the Center City is divided between different organizations,
and that the Center City lacks a central “champion” with dedicated
resources. Referencing the success of Downtown Neenah, one
interviewee asked: “Who is our John Bergstrom?” Another example
cited was the not-for-profit Downtown Appleton, Inc.
This does not mean that progress is not being made, or that
organizations do not work well together, but merely suggests that
greater efficiency and progress could be achieved through better
cohesion, clearer roles, and an aligning of resources. The most
prominent groups for economic development within Center City
are the Business Improvement District (this jurisdiction only covers
a portion of the study area), City of Oshkosh, Greater Oshkosh EDC,
and Chamber of Commerce. Imagine Oshkosh’s Implementation
Action Matrix (pages 126-135) should help clarify existing roles and
establish a framework for clear leadership roles and responsibilities
within the Center City, starting with existing resources that are
already available.
PLANNING PARTNERS
Organizations with a likely role in plan implementation are listed
in this section. Please note that this chapter is a working list that is
evolving and is not all-inclusive. The order of the list has no bearing
on roles and responsibilities.
City of Oshkosh – Boards & Commissions
The City of Oshkosh includes 25 boards and commissions that
provide decision-making assistance for a variety of policies and
development within the City. Boards and commissions include:
City Council
Plan Commission
Business Improvement District Board
Landmarks Commission
Pedestrian and Bicycling Advisory Committee
Public Arts and Beautification Committee
Redevelopment Authority (RDA)
Sustainability Advisory Board
City of Oshkosh –Planning Services Division
The Planning Service Division is responsible for zoning and
subdivision regulations, land use planning, economic development,
historic preservation, and housing programming. The Division
applies for and administers the CDBG Program and Brownfield
Grants, and oversees the Sustainable Oshkosh program and
Oshkosh Healthy Neighborhoods Alliance.
City of Oshkosh –Economic Development Division
The Economic Development Division is responsible for
implementing the City of Oshkosh Economic Development Plan.
This Plan will guide the City’s economic development efforts and
investment strategy over the next five years in coordination with
the Greater Oshkosh EDC and various other partners in the region.
City of Oshkosh –Public Works Department
The Public Works Division is responsible for maintaining and
operating City utilities, services, properties, and facilities. This
includes City streets, sanitation, water utility, and both stormwater
and wastewater systems. The Public Works Division will play a large
role in implementation, including completing and maintaining
many improvements, particularly streetscape projects.
Imagine Oshkosh | Center City Reinvestment Strategy130
Business Improvement District
The Downtown Oshkosh Business Improvement District (BID)
was initially established in 1987 to supply downtown parking but
has evolved into assisting with marketing, promotion, property
management, revitalization, and business retention programs.
The BID is funded through property assessments. Property owners
within the BID contribute a self-imposed levy that is calculated
based on several factors, including the property’s assessed value
and street frontage, with a minimum assessment of $400 to
a maximum of $8,000. The assessments make up an annual
operating budget that is used to fund one full-time manager, the
Recruitment and Retention Fund Grant Program, events, marketing,
and beautification programs.
The BID’s boundary is concentrated within the Downtown area.
In recent years, expansion of BID boundaries has been evaluated,
particularly south of the river, but expansion has not materialized.
Winnebago County
As the county seat of Winnebago County, Oshkosh contains the
County Courthouse, as well as the administrative arm of County
government. Its operations are located in several locations within
the study area.
Greater Oshkosh Economic Development Corporation
Greater Oshkosh EDC provides leadership, direction, coordination,
and services to advance economic development in the greater
Oshkosh area. In addition to providing economic development
strategy, Greater Oshkosh EDC administers several tools, including
an interactive inventory of sites and facilities, a Revolving Loan Fund
Program, and serves as an informational resources for businesses
and entrepreneurs.
Oshkosh Chamber of Commerce
The Oshkosh Chamber of Commerce is a member-based
organization that advocates for more than 1,000 businesses within
the Oshkosh area. It is the fifth largest chamber in Wisconsin and
has achieved a 5-star rating. The Chamber provides resources
that include networking opportunities, and information related
to business startup and economic development. In addition to
its advocacy role, the Chamber operates the Leadership Oshkosh
Program, a nine-month program that prepares individuals for
leadership roles in both their organization and community, as well
as Propel Oshkosh, a development and networking group aimed at
attracting and retaining young individuals for local businesses in
the Oshkosh area.
Amplify Oshkosh
Amplify Oshkosh, a program of the Oshkosh Chamber of
Commerce, is a local organization focused on growing the tech
economy in Oshkosh. It looks to empower the IT community by
connecting industry leaders, increasing awareness by hosting
idea exchanges and cross-promotion, and strengthening the
entrepreneurial spirit within Downtown’s IT community.
Oshkosh Convention & Visitors Bureau
The Oshkosh Convention & Visitors Bureau (OCVB) is a private, not-for-
profit organization, funded through room tax dollars from Oshkosh
hotels. The OCVB serves as the area’s tourism resource, revealing
the City’s brand identity: “Oshkosh, Wisconsin’s Event City,” in 2010.
The organization serves as a resource for local events and provides a
comprehensive, online list of events within the Oshkosh area.
Oshkosh Saturday Farmers Market, Inc.
Hailed as one of the best farmers markets in the country, the Oshkosh
Farmers Market serves as a local food mecca and community gathering
place. The year-round market boasts more than 150 vendors in the
summer and nearly 50 in the winter. The volunteer-based organization
works with local businesses to provide public restrooms and is a
key economic development driver in downtown. It supports and
accommodates other community events, including Gus Macker, Main
Street Music Festival, Square Fair, Chili Cookoff, and Chalk Walk.
Oshkosh Public Library
The Oshkosh Public Library serves as the community’s knowledge
center. With more than 1,000 visitors a day, it is a significant driver
of activity in the Center City. Library leadership is in the process of
transforming the Public Library into a “social commons,” a location
for hanging out, casual reading, scholarship, and socialization. The
library also provides many community resources and programming,
including literacy classes, lectures, and workshops.
Oshkosh Area Community Foundation
The Oshkosh Area Community Foundation is a non-profit
organization that provides funding for projects that improve the
Oshkosh community. Grant funding is directed at projects the
expand access to the arts, education, as well as those that improve
the quality of life for residents.
University of Wisconsin - Oshkosh
The University of Wisconsin - Oshkosh is the third largest university
in the state with nearly 14,000 students and 1,700 employees.
UW Oshkosh offers 60 undergraduate majors, 100 minors, and 15
Master’s Degrees in four professional colleges including: Business,
Education and Human Services, Letters and Science, and Nursing. Its
174-acre campus sits on the western boundary of the Center City
study area, and its students and faculty live, work, and play within
Downtown Oshkosh. The University has been an active partner in
downtown development having acted as an investment partner in
the Best Western Premier Waterfront Hotel & Convention Center.
East Central Wisconsin Regional Planning Commission
East Central Wisconsin Regional Planning Commission (ECWRPC) is the
official comprehensive, area-wide planning agency for the ten county
east central region of Wisconsin, including the counties of Calumet,
Fond du Lac, Green Lake, Marquette, Menominee, Outagamie, Shawano,
Waupaca, Waushara and Winnebago. ECWRPC staff provides assistance
in the following areas: environmental, economic development, open
space, land use, housing, community, transportation, and GIS.
Oshkosh Opera House Foundation
The Oshkosh Opera House Foundation is responsible for The
Grand’s performance season and rental activities. The annual
fine arts season includes over 25 public performances and
approximately 10 youth events , in addition to community theater,
corporate meetings, and weddings. The Opera House is owned by
the City of Oshkosh.
Other Critical Partners
Residents
Developers
Business Leaders
Small Business Owners
Civic Organizations
10: Implementation 131
IMPLEMENTATION
ACTION MATRIX
The Implementation Action Matrix offers a comprehensive list
of all implementation strategies, policies, and recommendations
found in the Imagine Oshkosh Master Plan. The matrix provides
staff with a tool to prioritize implementation activities and projects
over the life of the plan. In addition, the matrix allows the City to
approve specific, actionable items on an annual basis and evaluate
progress based upon completed implementation strategies. The
Implementation Action Matrix offers a brief description of each
project and indicates the following:
Priority Level
Public Cost
Ease of Implementation
Lead Responsibility
Potential Partnerships
Priority level
Priority is assigned considering the cost, ease of implementation
and importance. Each strategy in the Implementation Action Matrix
is indicated with one of the following:
Priority 1: Near-term, low-cost, ease of implementation, critical
Priority 2: Mid-term, essential
Priority 3: Long-term, desirable
Public cost estimate
Public cost estimates are represented by a scale ranging from $ to
$$$$. The costs in this column refer only to public costs. Below is a
description of the cost scale:
$ Primarily internal staff time with limited outside funding
required
$$ Outside consulting services assistance is expected or capital
expenditures are to be more than $25,000 but less than
$100,000
$$$ Capital improvements greater than $100,000 but less than
$1,000,000
$$$$ Multi-million-dollar capital project investment
Ease of implementation
The ease of implementation is indicated by a traditional grade scale
from A to F, with A being easiest to implement and F being most
difficult to implement. This category is a collective indicator of the
anticipated level of effort by responsible parties, estimated cost,
budget opportunities, and general stakeholder interest.
Lead responsibility
Lead responsibility refers to that stakeholder group that will oversee
and facilitate completion of each identified implementation
strategy.
Potential Partnerships
Potential partnerships identifies government bodies, civic
organizations, private entities, and other associations which may
be able to provide assistance with the identify strategy through
coordination and cooperation.
Imagine Oshkosh | Center City Reinvestment Strategy132
IMPLEMENTATION STRATEGY PRIORITY PUBLIC
COST EASE LEAD
RESPONSIBILITY
POTENTIAL
PARTNERSHIPS
3 CHAPTER 3: LAND USE & DEVELOPMENT
3 .0 .1
Guide land use and development per the established
functional subareas with regards to desired land
use, design/development guidelines, and relation to
surrounding districts
1 $D Community Development
Department
3 .0 .2
Work with property owners and investors to explore
options for future development of the opportunities
sites
2 $D Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
3 .0 .3
Work with property owners to consolidate or assemble
adjacent parcels which could yield larger, more market-
viable redevelopment scenarios, as appropriate
2 $C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
3 .0 .4 Take an active role in the future use, site design, and
overall planning for redevelopment catalyst sites 1 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 CHAPTER 4: ECONOMIC DEVELOPMENT & COMMERCIAL AREAS
4.1 ESTABLISH A CRITICAL MASS OF COMMERCIAL USES
4 .1 .1
Guide infill development and investment within the
Center City to reduce overall vacancy and break up
clusters of vacant parcels and properties
1 $C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .1 .2
Guide infill development to properties south of the Fox
River where the largest clusters of vacant properties and
buildings are found
1 $C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .1 .3
Explore opportunities for short-term uses to occupy
vacant properties by creating activity on otherwise
underutilized properties
2 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .1 .4 Work with developers to encourage investment within
critical mass priority areas 1 $C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4.2 PROMOTE MIXED-USE DEVELOPMENT WITHIN CENTER CITY
4 .2 .1
Require that all new construction within the Downtown
Core and Downtown Outer Core be mixed-use in
nature - multi-story buildings with commercial on the
ground floor and office and/or residential on upper
floors
1 $A Community Development
Department
4 .2 .2
Examine building codes and zoning regulations
(include occupancy and accessibility standards) for
opportunities to make it easier to activate, rehab, and
occupy the upper floors of older buildings, especially on
Main Street and Oregon Street
1 $A Community Development
Department
4 .2 .3
Work with property owners of older/historic buildings
to seek and obtain grants to help cover the costs
associated with rehabilitating upper floors for
occupancy
2 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC, Landmark
Commission
4 .2 .4
Develop an inventory of all available or underutilized
upper floor spaces which can be utilized to attract
new businesses and encourage development of new
residential options
2 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4.3 ATTRACT EMPLOYERS AND JOBS TO THE CENTER CITY
4 .3 .1 Actively recruit new businesses and employers to move
to the Center City 1 $D Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .3 .2 Foster the development of additional office space, with
a particular focus on “Class A” product 2 $D Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .3 .3 Incorporate office spaces within mixed-use
redevelopment projects of considerable size 2 $A Community Development
Department
4 .3 .4 Encourage development of office space along the south
shore of the Fox River 2 $C Community Development
Department
4 .3 .5 Encourage the conversion of underutilized industrial
buildings into mixed-use office spaces 2 $B Community Development
Department
10: Implementation 133
IMPLEMENTATION STRATEGY PRIORITY PUBLIC
COST EASE LEAD
RESPONSIBILITY
POTENTIAL
PARTNERSHIPS
4 .3 .6
Develop an inventory of all vacant and available office
spaces within the Center City to encourage infill and
attract new businesses
1 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .3 .7 Assist property owners and developers with making
necessary improvements to existing office spaces 2 $$C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .3 .8 Establish an innovation district dedicated to fostering
technology and creativity based industries 1 $$C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
4 .3 .9 Work with Amplify Oshkosh to explore the potential for
a shared-use or collaborative space 2 $$C Community Development
Department
Amplify Oshkosh, Chamber
of Commerce, Downtown
BID, Greater Oshkosh EDC
4 .3 .10
Develop a ‘Work Oshkosh, Live Oshkosh’ campaign
geared toward promoting the community as the best
place in the region to live, work, and establish a business
1 $$E Oshkosh Area
Community Foundation
Community Development
Department, Chamber
of Commerce, Greater
Oshkosh EDC
4 .3 .11 Establish clearly marked, easily navigable routes into the
Center City 1 $D Transportation
Department
Community Development
Department, Oshkosh
Convention & Visitors
Bureau
5 CHAPTER 5: HOUSING & RESIDENTIAL AREAS
5.1 INCREASE CENTER CITY’S RESIDENTIAL DENSITY
5 .1 .1
Encourage residential development within the Center
City in accordance with the described functional
subareas
1 $C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
5 .1 .2
Prohibit single-family detached uses in the Center City,
except within the Supporting Neighborhoods functional
subarea
1 $A Community Development
Department
5 .1 .3
Work with investors and developers to focus residential
investment to the Center City rather than other areas
of Oshkosh
1 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
5 .1 .4
Focus on the Downtown Core, Downtown Outer Core,
and Oregon Street functional subareas in the short
term for residential growth
1 $A Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
5 .1 .5
Promote mixed-use development through new
investment and the utilization of vacant upper floor
spaces
1 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
5 .1 .6
Encourage the conversion of upper floor spaces
of mixed-use building to residential units where
appropriate
1 $B Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
5 .1 .7
Review development proposals to ensure that
new residential investment is consistent with the
surrounding uses of that functional subarea and match
the City’s desired vision for that area, as described
within the Plan
1 $A Community Development
Department
5 .1 .8
Work with property owners and developers to explore
adaptive reuse of historic or underutilized properties for
multi-family residential
2 $C Community Development
Department
Chamber of Commerce,
Downtown BID, Greater
Oshkosh EDC
5 .1 .9
Develop a ‘Work Oshkosh, Live Oshkosh’ campaign
geared toward promoting the community as the best
place in the region to live, work, and establish a business
1 $$E Oshkosh Area
Community Foundation
Community Development
Department, Chamber
of Commerce, Greater
Oshkosh EDC
5.2 STABILIZE SURROUNDING RESIDENTIAL AREAS
5 .2 .1
Establish new neighborhood groups for residential
areas directly adjacent to the Center City, or work with
existing neighborhood groups to incorporate un-
addressed pocket .
2 $A Community Development
Department
Greater Oshkosh Healthy
Neighborhoods Inc .
5 .2 .2
Host outreach events or community meetings designed
to gather feedback about important issues and
concerns to address within the distinct neighborhoods
surrounding the Center City
2 $A Community Development
Department
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
5 .2 .3
Explore opportunities to incentivize property
maintenance, upkeep, and renovations within
neighborhoods surrounding the Center City
2 $$$C Community Development
Department
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
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5 .2 .4
Develop educational materials and provide assistance
to property owners and landlords regarding available
local, state, and national improvement funding
mechanisms
2 $C Community Development
Department
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
5 .2 .5
Complete a full inventory of all rental properties within
Oshkosh that provides as much detail as possible
regarding specific properties
1 $C Community Development
Department
5 .2 .6
Establish a rental inspection program that includes a
rental properties “standards” checklist and conduct
annual inspections to insure compliance and property
upkeep
2 $C Community Development
Department
5 .2 .7
Develop a program or commission to encourage home
ownership within neighborhoods surrounding the
Center City
2 $C Community Development
Department
Greater Oshkosh Healthy
Neighborhoods Inc .
5 .2 .8 Identify issues regarding safety and crime within
residential areas surrounding the Center City 2 $B Police Department
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
5 .2 .9
Review existing lighting infrastructure within
neighborhoods surrounding the Center City and
identify necessary improvements
2 $A Transportation
Department
Public Works Department,
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
5 .2 .10
Ensure safe and efficient access to the Center City
for pedestrians and cyclists from surrounding
neighborhoods
3 $$D Transportation
Department
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
5 .2 .11
Identify necessary improvements to roadway
infrastructure and other maintenance projects
which would elevate the appearance of surrounding
neighborhoods
2 $A Community Development
Department
Public Works Department,
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
5 .2 .12
Actively promote and encourage growth and
investment in Oshkosh’s central neighborhoods
through targeted marketing efforts and coordination
with various real estate and development organizations
2 $$C Community Development
Department
Local neighborhood
associations, Greater
Oshkosh Healthy
Neighborhoods Inc .
6 CHAPTER 6: TRANSPORTATION & MOBILITY
6.1 PROMOTE THE CENTER CITY AS A MULTI-MODAL DISTRICT
6 .1 .1
Divert the existing truck routes along N . Main Street,
High Avenue, Algoma Boulevard, Otter Avenue, and
Ceape Avenue to avoid the Downtown Core and
Downtown Outer Core subareas
2 $$$E Public Works Department WisDOT
6 .1 .2
Monitor existing truck routes in the functional subareas
south of the Fox River to identify issues, potential
changes, and other opportunities as the area sees
redevelopment and a move away from industrial uses
2 $B
Public Works Department,
Transportation
Department
WisDOT
6 .1 .3 Make necessary roadway repairs within the Center City
study areas 2 $$$D Public Works Department WisDOT
6 .1 .4 Invest in methods to inform the community of public
parking options within the Center City 2 $$C Transportation
Department Downtown BID
6 .1 .5
Implement an on-street paid parking system in the
Downtown Core subarea to more effectively manage
the use of public parking resources
2 $$E Transportation
Department
6 .1 .6
Encourage the long-term consolidation of both public
and private parking facilities in a manner which will
support desired built forms within specific subareas
1 $F Transportation
Department
6 .1 .7
Update zoning regulations to encourage and incentivize
site design which places parking on the rear of a
property
1 $A Community Development
Department
6 .1 .8
Update zoning regulations to require appropriate
screening of surface parking lots which have street
frontage
1 $A Community Development
Department
6 .1 .9 Ensure “super blocks” contain pedestrian amenities,
visual interest, and other forms of activity 2 $$C Community Development
Department
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6 .1 .10
Identify opportunities to make new pedestrian
connections as redevelopment occurs and break up
“super block” developments
2 $$D Community Development
Department
6 .1 .11
Seek the development of complete streets throughout
the Center City study area, in accordance with a
potential complete streets plan
3 $$$$F Community Development
Department
Public Works Department,
Transportation Department
6 .1 .12
Utilize sidewalk best practices which take into
consideration the specific needs of individual roadways
within the City
2 $$$D Community Development
Department Public Works Department
6 .1 .13
Widen sidewalks and pedestrian amenities by reducing
traffic or parking lanes where appropriate right-of-way
widths exist
2 $$$$F Community Development
Department
Public Works Department,
Transportation Department
6 .1 .14
Take advantage of redevelopment and other projects
to convert existing curb-side sidewalks into parkway
sidewalks
2 $$$D Public Works Department
6 .1 .15 Utilize more visible crosswalk designs and update
existing crosswalk to match over time 3 $$$D Transportation
Department Public Works Department
6 .1 .16 Improve mid-block pedestrian crossings with higher
visibility crosswalk designs 3 $$$D Transportation
Department Public Works Department
6 .1 .17 Implement complete streets projects within the Center
City per the Pedestrian & Bicycle Mobility Map 3 $$$$F Community Development
Department
Public Works Department,
Transportation Department
6 .1 .18 Develop additional bicycle parking to encourage bicycle
usage within the study area 2 $$D Community Development
Department Transportation Department
6 .1 .19
Develop a bicycle education program which includes
necessary information about the bicycle network,
designated routes, safety, and how to use the system
2 $$$C Transportation
Department
Community Development
Department
6 .1 .20
Complete a study of the existing bridges over the Fox
River and potential improvements to make them more
pedestrian and bicycle friendly
3 $$D Transportation
Department
Community Development
Department, WisDOT,
Winnebago County, Public
Works Department
6 .1 .21
Consider development of dedicated pedestrian bridges
adjacent to existing over the Fox River and integrated
within the overall Riverwalk system and design
3 $$$$F Community Development
Department
Public Works Department,
Transportation Department,
Winnebago County, State
of Wisconsin, Army Corp of
Engineers
6 .1 .22 Improve all transit stops with benches, shelters, lighting,
information signage, and other pedestrian amenities 2 $$$C Transportation
Department
6 .1 .23 Review new development project to identify potential
changes to existing routes and new transit stops 2 $B Transportation
Department
6 .1 .24
Conduct an annual or biennial community survey
to identify potential service extensions, concerns, or
opportunities to improve public transit
2 $A Transportation
Department Local neighborhood groups
6 .1 .25
Coordinate with Canadian National to install various
grade-separated automobile and pedestrian crossings
along the railroad right-of-way
3 $$$$F Public Works Department Canadian National,
Transportation Department
6 .1 .26 Complete a streetscaping project along the railroad
where it runs parallel to Broad Street 3 $$$$F Community Development
Department Public Works Department
7 CHAPTER 7: CIVIC & INSTITUTIONAL RESOURCES
7.1 MAINTAIN CENTER CITY AS THE COMMUNITY’S CIVIC CENTER
7 .1 .1
Maintain open communication with government
departments and agencies regarding their future plans
and needs
1 $A Community Development
Department
7 .1 .2
Work cooperatively with government departments or
agencies to retain government agencies within the
Center City and address specific facility issues as they
arise
1 $A Community Development
Department
7 .1 .3
In the event that a department or agency needs to
downsize or minimize costs, work collaboratively to
analyze the potential for facility consolidation which
would keep that body within the Center City
1 $A Community Development
Department
7 .1 .4
In the event that consolidation or relocation outside the
Center City is necessary, seek adaptive reuse of historic
structures and facilities, possibly for use by other
government bodies in need of facility expansion
1 $$$D Community Development
Department
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PARTNERSHIPS
7.2 ATTRACT EMPLOYERS AND JOBS TO THE CENTER CITY
7 .2 .1
Address the Northwest Transition and Marion Road
Waterfront functional subareas as transitional zones
between the University and Center City
1 $A Community Development
Department
University of Wisconsin -
Oshkosh
7 .2 .2
Work with property owners to maintain and enhance
the overall appearance and character of the Northwest
Transition and Marion Road Waterfront functional
subareas
2 $$C Community Development
Department
University of Wisconsin -
Oshkosh
7 .2 .3
Direct student-oriented uses to locate within the
Northwest Transition and Marion Road Waterfront
functional subareas
1 $A Community Development
Department
7 .2 .4
Complete a streetscaping project along High Avenue
and Algoma Boulevard to visually connect the
University and Downtown Core
3 $$$$F Community Development
Department
Public Works Department,
Transportation Department
7 .2 .5
Install wayfinding and gateway signage within the
Northwest Transition and Marion Road Waterfront
functional subareas to connect the University and
Downtown Core
2 $$$C Community Development
Department
University of Wisconsin
- Oshkosh, Oshkosh
Convention & Visitors
Bureau, Transportation
Department
7 .2 .6
Maintain close communication with the University
regarding priority issues and opportunities, with a
particular focus on the interaction between the Center
City and University’s campus
1 $A Community Development
Department
University of Wisconsin -
Oshkosh
7 .2 .7
Work with the University to coordinate events, festivals,
parades, and community gatherings, with the aim of
identifying opportunities for collaboration and cross
promotion while reducing potential conflicts
1 $B Community Development
Department
University of Wisconsin -
Oshkosh, Special Events
Coordinator
7 .2 .8
Strengthen the connection and patronage between
the University and Center City by encouraging the
University, and affiliated groups, to host events and
activities within Downtown
1 $A Community Development
Department
University of Wisconsin -
Oshkosh, Downtown BID,
Oshkosh Convention &
Visitors Bureau
7 .2 .9
Engage with individual University departments to
identify opportunities for student projects integrated
within the Center City
2 $A Community Development
Department
University of Wisconsin -
Oshkosh, Downtown BID
7 .2 .10
Coordinate with the University to conduct a feasibility
study regarding a bike share program to make bicycling
conveniently available at low costs
2 $$B Community Development
Department
University of Wisconsin -
Oshkosh, Transportation
Department
7 .2 .11
Coordinate with a potential “innovation” district to offer
students classes, experience, and create a direct path
between education in Oshkosh and employment in
Oshkosh
2 $B Community Development
Department
University of Wisconsin
- Oshkosh, Chamber of
Commerce, Downtown BID,
Greater Oshkosh EDC
7 .2 .12
Strengthen the registering, inspection, and required
maintenance of student housing properties within the
identified subareas
1 $B Community Development
Department
8 CHAPTER 8: ARTS & CULTURAL RESOURCES
8.1 PRESERVE AND ENHANCE CENTER CITY’S RICH HISTORY
8 .1 .1
Complete a full review and update of the existing
historic preservation ordinance to ensure it thoroughly
addresses alteration, renovation, improvement, and
demolition of historic properties using modern best
practices
1 $$C Community Development
Department Landmark Commission
8 .1 .2
Provide informational materials and hold meetings
to inform the City Council, Landmarks Commission,
and community in general about their role in historic
preservation and the process for designating historic
districts and properties
2 $A Community Development
Department Landmark Commission
8 .1 .3
Coordinate with the Landmarks Commission to
develop a thorough inventory of historic properties and
structures within the Center City
1 $B Community Development
Department Landmark Commission
8 .1 .4
Seek immediate landmark designation and preservation
of high priority or high risk historic structures within the
Center City
1 $$C Community Development
Department Landmark Commission
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COST EASE LEAD
RESPONSIBILITY
POTENTIAL
PARTNERSHIPS
8 .1 .5
Coordinate with the Landmark Commission and
property owners to develop a long-term plan for
receiving state and national historic designations,
including inclusion on the National Register of Historic
Places
3 $$C Community Development
Department Landmark Commission
8 .1 .6 Encourage and incentivize reinvestment and re-use of
historic buildings 1 $$C Community Development
Department Landmark Commission
8 .1 .7
Encourage the incentivize the restoration of historic
facades within the Center City era, including those
which have been covered up, significantly altered, or
fallen into disrepair
2 $$$C Community Development
Department Landmark Commission
8 .1 .8
Enforce and put into action the guidelines and
recommendations contained within this plan
document intended to inform development and
improvement investment and decision-making in the
Center City
2 $B Community Development
Department
8 .1 .9
Encourage the creative utilization of pieces of older
buildings and infrastructure when demolition or
replacement of older structures occurs
2 $A Community Development
Department Landmark Commission
8 .1 .10
Expand the use of signage that celebrates Oshkosh’s
history and provides information regarding cultural
events
2 $$B Community Development
Department Landmark Commission
8.2 EXPAND ARTS & CULTURE IN CENTER CITY
8 .2 .1
Establish an Arts & Culture Coalition that will be
responsible for coordinating between entities, venues,
and other stakeholders, including events, festivals,
parades, art installations, and community gatherings
1 $A Community Development
Department
Public Arts & Beautification
Commission
8 .2 .2
Ensure that local groups, such as the Public Arts &
Beautification commission, the Opera House, and the
University’s Art Department, are represented as part of
the Arts & Culture Coalition
1 $A Community Development
Department
Public Arts & Beautification
Commission, University of
Wisconsin - Oshkosh
8 .2 .3
Help support and organize arts and culture businesses
and amenities through the inclusion of a “membership”
program as part of the Arts & Culture Coalition
1 $A Arts & Culture Coalition
8 .2 .4
Attract new culture and entertainment based uses in
accordance with desired land use as established in the
functional subareas
2 $A Community Development
Department Arts & Culture Coalition
8 .2 .5
Use the Center City as a focal point for installations,
outdoor events, and activities relating to arts,
entertainment, and culture
2 $A Arts & Culture Coalition
Public Arts & Beautification
Commission, Downtown
BID, Oshkosh Convention &
Visitors Bureau
8 .2 .6
Conduct an analysis of all City-owned properties
and rights-of-way to identify locations for public art
installations in the Center City
2 $B Community Development
Department
Arts & Culture Coalition,
Public Arts & Beautification
Commission
8 .2 .7
Establish a public art program distinct to the Center
City, including specific locations for art installations and
parameters for thematic design
2 $B Arts & Culture Coalition Public Arts & Beautification
Commission
8 .2 .8 Establish a “Center City Calendar” for events, parades,
and festivals occurring in and nearby the Center City 1 $A Community Development
Department
Oshkosh Convention &
Visitors Bureau
8 .2 .9
Incorporate artistic elements and local artists into
streetscape or infrastructure projects to create a
more cohesive identity in the Center City and take
full advantage of capital improvement projects and
investment
2 $$B Public Works Department
Arts & Culture Coalition,
Public Arts & Beautification
Commission
8 .2 .10
Coordinate with local artists and students to create
artistic designs for Center City amenities that
incorporate elements of Oshkosh’s culture and heritage
2 $$B Public Works Department
Arts & Culture Coalition,
Public Arts & Beautification
Commission
8 .2 .11
Work with property owners to transform vacant store
fronts into displays for public art and the promotion of
investment opportunities
2 $C Arts & Culture Coalition Public Arts & Beautification
Commission
8 .2 .12 Establish a program or annual contest to display local
student art in spaces in the Center City 2 $B Arts & Culture Coalition
Public Arts & Beautification
Commission, University
of Wisconsin - Oshkosh,
Downtown BID
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PARTNERSHIPS
8 .2 .13
Build upon unique features, such as the Fox River, Lake
Winnebago, University of Wisconsin - Oshkosh, or the
City’s heritage, by incorporating them in public art,
public spaces, information destinations, and the general
design of the Center City’s physical environment
2 $A Arts & Culture Coalition Public Arts & Beautification
Commission
8 .2 .14
Support the local food movement to help create a more
self-reliant and resilient food network and improve the
local health, economy, environment, and social fabric of
the community
2 $A Community Development
Department Arts & Culture Coalition
8 .2 .15
Work with non-profit and charitable organizations to
establish Little Free Pantries in areas where neighbors
might convene to meet neighborhood needs and
combat food insecurity
3 $D Community Development
Department Arts & Culture Coalition
8 .2 .16
Encourage and support local activism for all things in
the Center City by fostering and promoting an “open
door policy” with City officials and staff
1 $A Community Development
Department
8 .2 .17
Consider hosting an annual or bi-annual “Center City
Idea Forum” to hear and discuss ideas from interested
residents, business owners, and stakeholders
2 $B Community Development
Department
8 .2 .18
Elevate existing events and develop additional festivals
and gatherings to help generate activity in the Center
City year-round
1 $$B Community Development
Department
8 .2 .19
Following Oktoberfest, establish a Winter Fest that
incorporates tens with seasonal food, beverages, and
merchandise
2 $$C Community Development
Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
8 .2 .20 Explore the possibility of creating a ‘kick-off’ event for
seasonal ice-fishing or the sturgeon spring season 2 $$C Community Development
Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
8 .2 .21
Establish and promote winter activities in the Center
City, particularly an ice rink, potentially located in the
Opera House Square
1 $$C Parks Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
8 .2 .22
Create a “taste of Oshkosh” or a similar event offering
inexpensive food and beverages demonstrating local
cuisines, restaurants, and cafés
2 $$C Community Development
Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
8 .2 .23 Promote the use of food trucks in the Center City as
supportive amenities for events in the area 2 $A Community Development
Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
8 .2 .24
Identify various properties within the Center City that
could be potential spaces for community events at
varying scales
2 $A Community Development
Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
8 .2 .25
Launch a promotional campaign to advertise Oshkosh
as both a summer and winter destinations for
vacationers
2 $$C Community Development
Department
Downtown BID, Oshkosh
Convention & Visitors
Bureau, Civic Organizations
9 CHAPTER 9: URBAN DESIGN & PUBLIC SPACES
9.1 ENSURE NEW INVESTMENT & DEVELOPMENT IS COMPATIBLE AND ATTRACTIVE
9 .1 .1
Apply the design and development guidelines to new
construction and proposals within the Center City, with
regards to architectural style; building height, bulk, and
proportion; building placement and orientation; parking
areas; building materials; doors and entrances; windows;
rooflines and parapets; awnings and canopies; building
signage; building lighting; and rear yards and rear
facades
1 $E Community Development
Department
9.2 ESTABLISH A SENSE OF PLACE AND SCALE
9 .2 .1
Review and update zoning regulations throughout
the Center City study area to facilitate the creation of
consistent streetwalls and ensure new development is
require to match existing streetwalls where previously
established
1 $A Community Development
Department
9 .2 .2
Prioritize infill development which will contribute
to existing streetwalls or fill streetwall gaps within
the Downtown Core, Outer Core, Oregon Street, and
Northwest Transition
1 $A Community Development
Department Public Works Department
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PARTNERSHIPS
9 .2 .3
Support development within the Downtown Outer Core
which will facilitate creation of a consistent streetwall
and, where possible, connect with the established
streetwall within the Downtown Core subarea
1 $A Community Development
Department
9 .2 .4
Require a landscaped streetwall, consisting of foliage,
fencing, berms, or other decorative elements for all
surface parking lots with street frontage
1 $A Community Development
Department
9 .2 .5
Coordinate with property owners of vacant properties
to explore innovative options for temporary walls or
other barriers which will contribute to an existing
streetwall while providing a space for public art,
community postings, interactive displays, and other
forms of public engagement
2 $B Community Development
Department
9.3 PROVIDE A WELCOMING AND ATTRACTIVE STREETSCAPE
9 .3 .1 Enact additional streetscaping projects within the
Center City per the streetscape prioritization plan 3 $$$$F Community Development
Department
Public Works Department,
Transportation Department
9 .3 .2 Promote opportunities for restaurants to feature
outdoor patios and rooftop decks 2 $B Community Development
Department
9 .3 .3 Take advantage of opportunities to bury utilities or
relocate them to the rear of sites as an alternative 3 $$$$F Public Works Department
Community Development
Department, Transportation
Department
9 .3 .4 Establish gateway features in key locations to announce
entrance into the Center City 1 $$$C Community Development
Department
Public Works Department,
Transportation Department,
Oshkosh Convention &
Visitors Bureau
9 .3 .5 Establish wayfinding signage in key locations to direct
people to destinations in the Center City 1 $$$C Community Development
Department
Transportation Department,
Oshkosh Convention &
Visitors Bureau
9 .3 .6 Consider the development of WiFi pillars or similar
technologies within the Center City 3 $$$E Community Development
Department
Amplify Oshkosh,
Downtown BID
9 .3 .7
Explore opportunities to incorporate interactive art
displays which invite residents to become involved with
the environment around them
2 $$D Community Development
Department Arts & Culture Coalition
9 .3 .8 Incorporate green infrastructure within streetscapes in
the Center City 2 $$D Community Development
Department
Public Works Department,
Transportation Department
9.4 IMPROVE AND ACTIVATE CENTER CITY’S PUBLIC SPACES
9 .4 .1
Conduct a review of properties in the Center City and
establish a plan that identifies potential new parks and
open spaces by functional subarea
1 $B Parks Department
Community Development
Department, Public Works
Department
9 .4 .2 Prioritize development of a neighborhood park within a
functional subarea south of the Fox River 2 $$$D Parks Department
Community Development
Department, Public Works
Department
9 .4 .3 Provide incentives to incorporate public space as part of
future development in the Center City 2 $$C Community Development
Department
Parks Department, Public
Works Department
9 .4 .4 Actively seek the development of a dedicated dog park
within the Center City 1 $$C Parks Department
Community Development
Department, Public Works
Department
9 .4 .5
Work with property owners, developers, and existing
businesses to identify opportunities for public plazas,
pocket parks, and other smaller public spaces
2 $B Community Development
Department
Parks Department, Public
Works Department
9 .4 .6
Continue to activate local waterfronts as unique assets
and extensions of the existing public spaces within the
Center City
1 $B Parks Department Community Development
Department
9 .4 .7
Continue to complete segments of the Riverwalk as
funding becomes available, particularly eastward to
provide access to Lake Winnebago
1 $$$C Community Development
Department Parks Department
9 .4 .8 Take advantage of any opportunities to further promote
water-based recreation 1 $B Parks Department
Community Development
Department, Oshkosh
Convention & Visitors
Bureau
9 .4 .9 Explore opportunities to purchase a property and
develop an additional waterfront park 3 $$$D Parks Department
Community Development
Department, Public Works
Department
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POTENTIAL
PARTNERSHIPS
9 .4 .10 Consider the Center City from the perspective of a
boat-driver or passenger 1 $A Community Development
Department
9 .4 .11
Improve waterfront public spaces with boat-friendly
features, such as docks, boat launches, or maintenance
stations
2 $$C Community Development
Department
Parks Department,
Wisconsin Department of
Natural Resources
9 .4 .12 Develop waterfront signage and gateway elements
specifically for boats entering the Center City 2 $$C Community Development
Department
Parks Department, Oshkosh
Convention & Visitors
Bureau
9 .4 .13
Conduct a review of existing parks and open spaces
within the study area to identify opportunities for
new programming as well as necessary maintenance,
renovations, or upgrades
2 $B Parks Department
10: Implementation 141