HomeMy WebLinkAboutOshkoshExistingConditionsReportA Center City Reinvestment StrategyExisting Conditions Report
Houseal Lavigne Associates | October 2016
Table of Contents
1 Introduction 05
2 Let’s Talk . . . 15
3 Analysis 57
3A Character & Sense of Place in the Center City 59
3B Living in the Center City 107
3C Working in the Center City 137
3D Developing Property in the Center City 157
3E Activating the Center City 173
3F Getting Around in the Center City 183
3G Partnering the Center City 203
CHAPTER 1
Introduction
07 Purpose of Imagine Oshkosh
09 Oshkosh’s Regional Setting
09 CenterCity Study Area
10 Why Our Center City Matters
12 Community History
14 Planning Process
Oshkosh’s Center City is a collection of neighborhoods located in
the historic core of Oshkosh. Anchored by Downtown Oshkosh, the
Center City also extends into other neighboring districts and corri-
dors, including waterfronts of the Fox River and Lake Winnebago.
By many accounts, the Center City is already very successful. A
new scenic riverwalk snakes along the banks of the Fox River,
with supporting new residential development that has sprouted
up in recent years. Historic architecture envelops the pedestrian
and communicates a distinctive sense of place, while local-
ly-owned businesses line traditional corridors such as N. Main
Street and Oregon Street. Thousands of employees work at a
variety of institutions and private businesses. Within the very core
of the Center City, the story is not of fixing something that is
broken, but transforming it from “good to great.”
Within neighboring areas, the challenges are different. The decline
of the local lumber/furniture industry (“Sawdust City”) have
presented once-in-a-generation opportunities to reimagine the
Center City, particularly along the formerly industrial South Shore
where several prime sites are available for redevelopment. Sur-
rounding residential neighborhoods have declined, with varying
levels of disinvestment and blight. Additionally, stretches of the
North and South Main Street corridor -- the entryways into Down-
town that also function differently than Downtown -- appear tired
and unattractive and need a new wave of investment.
At its core, Imagine Oshkosh marks the beginning of taking the
many different pieces of the Center City collectively to the next
level. How can we increase residential density? How can we
leverage “once-in-a-generation” redevelopment opportunities
such as Pioneer Island and the Jeld-Wen site for game-changing
new investment? How can we promote investment that is unique
to the character and function of each of the Center City’s neigh-
borhoods? How can we make the Center City a thriving employ-
ment hub for cutting-edge industries? How can we attract more
people to live, shop, socialize, and entertain?
However, before mapping out answers to these long-term
questions, it is critical to first understand where our Center City
stands today. This Existing Conditions Report marks the halfway
point of the Imagine Oshkosh planning process and provides a
“State of the Center City” snapshot. Ultimately, the information
found in this report will provide both a qualitative and quantita-
tive foundation for developing policies and recommendations in
the coming months.
Imagine Oshkosh: Existing Conditions Report6
Purpose of Imagine Oshkosh
In 2000, the City partnered with the Oshkosh Area Community Foun-
dation and the Oshkosh Chamber of Commerce to develop a Down-
town Action Plan. This document provided the framework and agenda
for a new wave of capital projects and private investment between
2000 and 2015. Some of the successful projects that originated out
of the Downtown Action Plan and previous planning efforts included
the creation of Opera House Square, construction of the Riverwalk
and Leach Amphitheatre, and streetscaping along North Main Street.
Oshkosh is not just a community that plans – it implements with
shovels in the ground.
Imagine Oshkosh not only updates this previous planning effort, but
also expands both its scope as well as geography. When complet-
ed, Imagine Oshkosh will be a long-term vision and comprehensive
investment strategy for the entire Center City, directing growth, de-
velopment, and infrastructure investment. In addition to guiding the
City’s elected/appointed officials and staff, it will also be a resource
for businesses, not-for-profits, developers, and more.
Planning Process
This document is an interim deliverable at the mid-point of an
eight step planning process. This report summarizes the existing
conditions in Oshkosh’s Center City and serve as a foundation for
recommendations that will be prepared later in the process.
◊Step 1: Project Initiation (Complete)
◊Step 2: Community Outreach (Ongoing)
◊Step 3: Existing Conditions Analysis (Complete)
◊Step 4: Market Analysis (Complete)
◊Step 5: Vision, Goals, & Objectives (Forthcoming)
◊Step 6: Framework Plans (Forthcoming)
◊Step 7: Implementation Strategy (Forthcoming)
◊Step 8: Final Report & Adoption (Forthcoming)
The Imagine Oshkosh Existing Conditions Report is framed around seven
core ideas:
• Character & Sense of Place in the Center City, which includes information
on land use, urban design, development regulations, and historic preser-
vation;
• Living in the Center City, which includes information on the center city
residential population, housing stock, quality of life issues, and surround-
ing residential neighborhoods;
• Working in the Center City, which includes information on center city
employment, regional economic issues, issues relating to owning and op-
erating a business, opportunities to capitalize on the daytime population;
• Developing Property in the Center City, which includes information on the
residential and commercial markets, catalyst site redevelopment opportu-
nities, and financing tools;
• Activating the Center City, which includes information on improving recre-
ation, activities, programming, and the waterfront;
• Getting Around in the Center City, which includes information on the road
network, public transportation, bike infrastructure, sidewalks, and trails;
• Partnering in the Center City, which identifies the list of partners who will
need to work together to help make the Center City an even better place
to live, work, play, and invest.
Organization of the Existing Conditions Report
Imagine Oshkosh: Existing Conditions Report 7
FOND DU LAC
WINNEBAGO
CALUMET
MONITOWOC
SHEBOYGAN
BROWNOUTAGAMIE
LAKE MICHIGAN
GREEN BAY
LA
LAKEWINNEBAGO
43
43
41
41
CITY OF OSHKOSH
CENTRAL CITYPLANNING AREA
Fond Du Lac
Sheboygan
Manitowoc
Green Bay
Shawano
Clintonville
Seymour
Chilton
New London
Appleton
Sherwood
Menasha
Neenah
41
43
43
94
94
90
90
CITY OF OSHKOSH
MN
IL
Regional Settings
Ma
i
n
S
t
Ja
c
k
s
o
n
S
t
Mi
c
h
i
g
a
n
S
t
WI
T
r
u
n
k
4
4
Parkway Ave
Algom
a
A
v
e
High
A
v
e
Washington Ave
Otter Ave
7th Ave
9th Ave
11th Ave
South Park Ave Ja
c
k
s
o
n
S
t
Ma
i
n
S
t
Irving Ave
5th Ave
Melvin Ave
New York Ave
45
FOX RIVER
LAKEWINNEBAGO
45
45
45
45
45
45
Center CityPlanning Area
Study Area
Oshkosh’s Regional Setting
Oshkosh is located 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 region contains more than 775,000 people.
The City of Oshkosh is 24 square miles and home to 66,083
residents (as of the 2010 Census). It is a progressive community
that offers small-town friendliness with big city features and a
high quality of life. Money Magazine ranked it one of the “Top
100 Best Places to Live in the United States” and Business Week
ranked it “The Best Place in Wisconsin to Raise Kids.”
Some of the community’s defining features include its recreation-
ally-rich waterways and waterbodies (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
nationally-ranked Farmers Market.
Center City Study Area
The Center City study area includes Oshkosh’s downtown and his-
toric 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 as far west as Wisconsin Street
and as far east as Bay Street. The boundaries of the study area
were designed to focus on mixed-use, commercial, and employ-
ment districts within the heart of the city. Surrounding residen-
tial neighborhoods, while absolutely critical to the heath of the
Center City, have their own unique set of investment challenges
and are being addressed through separate but complementary
neighborhood planning efforts. The Center City is essentially a
quilt – a patchwork of different districts that are distinctive but
also mutually supportive and reinforcing.
The study area is comprised of 1,036 parcels, 592.6 acres, and
0.92 square miles.
Imagine Oshkosh: Existing Conditions Report 9
Oshkosh’s Center City is the
defining face of the com-
munity and its health and
vitality shapes opinions of
the entire community. When
one thinks of Oshkosh, it
is hard not to immediately
picture the Oshkosh Farm-
ers Market, the distinctive
turret of 501 N. Main Street,
popular eateries such as
Carmel Crisp or The Roxy,
or the bronze lions adorning
the front steps of the Osh-
kosh Public Library.
The Center City is also a job
hub, with more than 5,000
employees showing up to
work each day. From a small
business selling mid-cen-
tury furniture to growing
tech/design firms such as
4Imprint and DealerSocket
to a Mercury Marine testing
facility, Oshkosh’s Center
City is a workplace for a
variety of employees within
different industries.
Home to City Hall, the Win-
nebago County Courthouse,
Oshkosh Public Library,
and more, the Center City
is also Oshkosh’s center of
governance. This draws res-
idents to the Center City on
a daily basis for everything
from jury duty to check-
ing out library books. The
civic presence also acts as
anchor, providing stability
to the western end of the
study area.
While the retail center of the
community has shifted over
time towards I-41, the Center
City still offers many local-
ly-cherished mom-and-pop
shopping destinations such as
Kitz & Pfeil TrueValue, Oak’s
Candies, and the Paper Tiger
bookstore. A variety of other
businesses, from salons/
barbershops to delis, support
day-to-day living for both
residents and employees.
Face of the Community Civic HeartEmployment Hub Shopping Options
Why Our Center City Matters
Center City Oshkosh does not have a singular identity. It plays several significant roles within Oshkosh
as well as the greater I-41/Fox Valley region. Imagine Oshkosh seeks to strengthen all of these compo-
nents collectively.
Imagine Oshkosh: Existing Conditions Report10
Oshkosh’s Center City
contains numerous public
spaces, such as Opera
House Square and the Riv-
erwalk, that promote social
interaction (both planned
and spontaneous) between
people from different walks
of life and neighborhoods.
From symphony concerts at
the Grand Opera House to
lectures at nearby Univer-
sity of Wisconsin-Oshkosh,
the Center City’s cultural
offerings are numerous and
attract patrons from through-
out the Fox Valley region and
beyond.
The Fox River snakes
through the heart of the
Center City study area,
connecting Lake Butte des
Morts to Lake Winnebago. In
the summer months, the riv-
er acts as a “boat highway”
with boats speeding up-and-
down the river as well as
docking along the riverfront,
grabbing dinner at water-
front restaurants such as
Becket’s, Dockside Tavern,
or the Ground Round.
The Center City is an en-
tertainment district, with
bars, restaurants, concert
venues, theatres, and more.
Whether it is attending an
outdoor concert at the
Leach Amphitheatre, bowl-
ing at T&O Lanes, viewing a
retro film at the Time Com-
munity Theatre, or listening
to live music at New Moon
Café, the Center City has
something entertaining to
do for nearly everyone.
Social Space Active WaterfrontCultural Center Entertainment Destination
Imagine Oshkosh: Existing Conditions Report 11
192419201853
1853Oshkosh incorporatesas a City named after a Menominee Indian Chief, with a population of 2,500
1858Railroad comes to Oshkosh
1861-1865Civil War, nearly 1,000 Oshkosh men serve in the Union Army
1866Oshkosh is the second largestcity in Wisconsin behind Milwaukee
1868Oshkosh Yacht Club organizes; Col. John Hicks starts the first daily newspaper north of Milwaukee
1870Oshkosh becomes “Sawdust City”with ten sawmills producing over one millionboard feet of lumber per year; the City’spopulation grows to 12,673
1871State Teachers College(UW-Oshkosh) is founded
1878Steam car “Oshkosh” wins greate reace fromMadison to Green bay
1879First telephone installed
1880Population grows to 15,749
1882YMCA opens
1883Grand Opera House opens with the performance of “The Bohemian Girl”
1884Electric lighting comes to Oshkosh
1885Great cyclone strikes the city on July 8
1889North (Menominee) and South Parks established
1890Population grows to 22,836
1891Sisters of Sorrowful Mother establish the first hospital in Oshkosh
1812Vocational Schoolorganized; laterbecame Fox ValleyTechnical College1895Oshkosh B’gosh is founded
1896Raddatz Submarine testedsuccessfully in the Fox River;electric street carsreplace horse drawn carriages
1898Woodworkers strike against seven mills
1900Population growsto 28,284; mostnumerous immigrantgroup is German
1907Oshkosh Chamber of Commerce is established
1910Population grows to 33,000
1917-1918World War Iclaims 98 Oshkosh men
1920Women’s sufferagesucceeds; Oshkoshsuffragette Jessie JackHooper becomes aleader in the stateand across the nation;population grows to 33,162
1924Edgar Sawyer Home becomes Oshosh Public Museum
1926Chief Oshkosh is reburied in North Park which in his honor is renamed Menominee Park
1927Privately owned commercial airport opens with mail service
1930Last streetcar runs; population grows to 40,108
1928Oshkosh Area CommunityFoundation founded
1930-1939Great Depressionhits lumber industry hard
1940Population declnes slightly to 39,039
1941-1945World War II takes servicemenaway and claims 160 Oshkosh men
1953Oshkosh celebrates its centennial
1957Council-City Manager system replaces Mayor-Aldermansystem of governement
1964Pioneer Inn begins construction
1966The largest land annexation in Oshkosh history
1969Airport is named Wittman Field after aviation pioneer Steve Wittman
1970Population grows to 53,082; EAA brings Fly-In to Oshkosh; Park Plaza Mall opens in downtown on 18 acres
1980Population declines slightly to 50,016
1986Grand Opera House re-opens and presents “The Bohemian Girl”;Convention Center and Hotel are built in downtown
1990Population grows to 55,006
1996Railroad tracks removed from center of the city
2000Mercy Medical Center opens new hospital west of I-41
2002Opera House Square dedicated; Oshkosh YMCA opens on westside
2004Leach Amphitheater opens
2008Movie “Public Enemies”is filmed in Oshkosh
2009Oshkosh Corp. secures recordmilitary contract; Oshkosh ConventionCenter reopens after renovations
2010Population grows to 66,083;Grand Opera House reopens afterrenovations; Main Street reconstructedfor first time since 1955
2016Imagine Oshkoshis launched
2015Greater Oshkosh EDC founded
1929Stock 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
Community History
Imagine Oshkosh: Existing Conditions Report12
1924 2016
Oshkosh incorporatesas a City named after a Menominee Indian Chief, with a population of 2,500
1858Railroad comes to Oshkosh
1861-1865Civil War, nearly 1,000 Oshkosh men serve in the Union Army
1866Oshkosh is the second largestcity in Wisconsin behind Milwaukee
1868Oshkosh Yacht Club organizes; Col. John Hicks starts the first daily newspaper north of Milwaukee
1870Oshkosh becomes “Sawdust City”with ten sawmills producing over one millionboard feet of lumber per year; the City’spopulation grows to 12,673
1871State Teachers College(UW-Oshkosh) is founded
1878Steam car “Oshkosh” wins greate reace fromMadison to Green bay
1879First telephone installed
1880Population grows to 15,749
1882YMCA opens
1883Grand Opera House opens with the performance of “The Bohemian Girl”
1884Electric lighting comes to Oshkosh
1885Great cyclone strikes the city on July 8
1889North (Menominee) and South Parks established
1890Population grows to 22,836
1891Sisters of Sorrowful Mother establish the first hospital in Oshkosh
1812Vocational Schoolorganized; laterbecame Fox ValleyTechnical College1895Oshkosh B’gosh is founded
1896Raddatz Submarine testedsuccessfully in the Fox River;electric street carsreplace horse drawn carriages
1898Woodworkers strike against seven mills
1900Population growsto 28,284; mostnumerous immigrantgroup is German
1907Oshkosh Chamber of Commerce is established
1910Population grows to 33,000
1917-1918World War Iclaims 98 Oshkosh men
1920Women’s sufferagesucceeds; Oshkoshsuffragette Jessie JackHooper becomes aleader in the stateand across the nation;population grows to 33,162
1924Edgar Sawyer Home becomes Oshosh Public Museum
1926Chief Oshkosh is reburied in North Park which in his honor is renamed Menominee Park
1927Privately owned commercial airport opens with mail service
1930Last streetcar runs; population grows to 40,108
1928Oshkosh Area CommunityFoundation founded
1930-1939Great Depressionhits lumber industry hard
1940Population declnes slightly to 39,039
1941-1945World War II takes servicemenaway and claims 160 Oshkosh men
1953Oshkosh celebrates its centennial
1957Council-City Manager system replaces Mayor-Aldermansystem of governement
1964Pioneer Inn begins construction
1966The largest land annexation in Oshkosh history
1969Airport is named Wittman Field after aviation pioneer Steve Wittman
1970Population grows to 53,082; EAA brings Fly-In to Oshkosh; Park Plaza Mall opens in downtown on 18 acres
1980Population declines slightly to 50,016
1986Grand Opera House re-opens and presents “The Bohemian Girl”;Convention Center and Hotel are built in downtown
1990Population grows to 55,006
1996Railroad tracks removed from center of the city
2000Mercy Medical Center opens new hospital west of I-41
2002Opera House Square dedicated; Oshkosh YMCA opens on westside
2004Leach Amphitheater opens
2008Movie “Public Enemies”is filmed in Oshkosh
2009Oshkosh Corp. secures recordmilitary contract; Oshkosh ConventionCenter reopens after renovations
2010Population grows to 66,083;Grand Opera House reopens afterrenovations; Main Street reconstructedfor first time since 1955
2016Imagine Oshkoshis launched
2015Greater Oshkosh EDC founded
1929Stock 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
Community History
Imagine Oshkosh: Existing Conditions Report 13
17 Top Issues / Challenges & Top Assets
18 Eected & Appointed Officials Workshop
23 Stakeholder Interviews
24 Steering Committee Workshop
28 Community Workshop
33 Business Workshop
38 Resident Questionnaire
40 Business Questionnaire
42 Project Website
43 sMap
44 Past Plans & Studies
CHAPTER 2
Let’s Talk . . .
When completed, Imagine Oshkosh will be the result of a trans-
parent and engaging process that actively sought input from
numerous stakeholders, including residents, business owners,
developers, property owners, service providers, elected and
appointed officials, and City staff. A variety of ongoing outreach
efforts, both in-person and on-line, have been used to gather the
concerns, ideas, and aspirations of the community. This feed-
back and input has been critical in identifying the key issues and
opportunities for the Existing Conditions Report that will serve as
the foundation for Imagine Oshkosh.
Outreach will continue throughout the drafting and reviewing
of Imagine Oshkosh in order to allow citizens an opportunity
to shape recommendations and review interim documents as
they are prepared. Ultimately, this will promote a sense of local
stewardship for the plan and ensure that each resident has an
opportunity to help shape the future of his or her community.
This section summarizes the community outreach efforts that
have been completed thus far in the planning process. The follow-
ing activities have been conducted:
◊Elected & Appointed Officials Workshop (December 15, 2015)
◊Stakeholder Interviews (December 15-17, 2015)
◊Steering Committee Workshop (December 16, 2015)
◊Community Workshop (February 15, 2016)
◊Business Workshop (February 16, 2016)
◊Project Website (January 2016 – Present)
◊Resident Questionnaire (January 2016 – Present)
◊Business Questionnaire (January 2016 – Present)
◊sMap Mapping Tool (January 2016 – Present)
In addition to documenting “what people are saying now,” this
chapter also summarizes “what has been said before.” This in-
cludes a collation and analysis of past plans and studies affect-
ing Center City Oshkosh. The Imagine Oshkosh planning process
recognizes the value of these prior planning efforts and will build
upon them where applicable as a component of the community’s
new vision.
Imagine Oshkosh: Existing Conditions Report16
◊Historic character and architectural variety
◊Walkability
◊Waterfront
◊Entertainment venues, including Opera House and
the Leach Amphitheatre
◊Farmers Market
◊Multitude of development opportunities
◊University of Wisconsin-Oshkosh
◊Unique local shops and restaurants and the entrepreneurs who
own them
◊Employment levels
◊Best Western Hotel & Oshkosh Convention Center
◊YMCA
◊Positive momentum
Top Issues / Challenges
Top Assets
Housing Retail Cohesion Catalyst Redevelopment
AppearanceAccess BrandRiver
Capture unmet housing
demand through new con-
dos, multi-family units, and
townhomes.
Promote retail diversity and
enhance the retail experience.
Improve the cohesion of dif-
ferent districts and ensure
consistent and appropriate
design.
Redevelop key catalyst sites
such as Jeld Wen, Buckstaff,
and Pioneer Island.
Clean up blight and protect
historic character.
Establish a direct artery
from I-41.
Improve the regional appeal
and recognition of the
Center City.
Activate the riverfront with
housing, activities, and fin-
ishing of the riverwalk.
Imagine Oshkosh: Existing Conditions Report 17
In-Person OutreachElected & Appointed Officials Workshop
On December 15, 2015 a kick-off workshop was held with the
elected and appointed officials at City Hall to discuss issues and
opportunities within Center City Oshkosh. Participants were mem-
bers of City Council, Plan Commission, the Business Improvement
District, or the Redevelopment Authority.
The workshop centered around three key questions:
◊What are five issues or concerns 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?
The following is a summary of the thoughts, comments, and opin-
ions recorded in response to these three questions. It is important
to note that the items identified in this workshop summary are
not recommendations or observations of the consultant, but rath-
er feedback and comments received from those who participated
in the workshop.
Imagine Oshkosh: Existing Conditions Report18
Top Issues
The discussion began by asking officials to write down and then voice five issues or concerns that they
believe are confronting Center City Oshkosh. While this question brought forth a wide variety of topics,
many of these issues were interrelated and in agreement with the responses of other participants.
Accordingly, the responses are organized below into several common themes.
Improving the Retail Experience
Workshop participants expressed concern about retail within the
Center City. The concern was multi-faceted and included a lack of
retail diversity, a need for destination shopping, and concern that
some existing tenants may not be desirable in the long-term. New
tenants should be recruited that can increase the appearance and
vibrancy of the district.
Parking
The location of parking and its usage by employees versus
patrons were issues raised by Oshkosh’s officials. While park-
ing volume may be adequate, some felt that the location of the
existing supply was not in the right places. Some also stated that
prime parking is being used by employees, discouraging patrons
from visiting the center city.
Cohesion of Areas
Oshkosh’s Center City has many different areas and the “feel” of
the Center City district changes as one moves throughout it. It
was expressed that these areas should be more harmonious and
that some areas should have unified design aesthetics. Even with-
in the core downtown, it was expressed that some blocks lack a
visual cohesiveness.
Underutilized Properties
The Center City study area contains several major underutilized
properties, including the Jeld Wen site, Buckstaff site, Pioneer Inn
site, and more. Oshkosh’s officials would like to see a vision for
these properties that can inject the Center City with new vitality
and investment.
Need for a Direct Artery
Oshkosh’s Center City does not currently have a “direct shot”
connection to I-41, unlike some other downtowns within the
region. This can make accessing the Center City circuitous and
unclear for visitors. It was expressed that road realignments
combined with signage could help increase access to the Center
City area.
Imagine Oshkosh: Existing Conditions Report 19
Top Project or Actions
Officials suggested a wide range of action items to improve Center City Oshkosh. Specific projects and
actions provided by elected and appointed officials are listed below:
Transportation
◊Repave and get rid of one-way streets
◊Improve condition, design (no one-ways), and maintenance of
streets
◊Remove car traffic down Main Street in downtown business
district
◊Repair all connecting streets including N. Main to Murdock
◊Change one-way traffic to two-way
◊Fix all streets connecting to N. Main—make pedestrian friendly
◊Transit center-complete-have everything in one place
◊Close off traffic on 400-500 blocks of N. Main Street to only
pedestrian traffic
Parking
◊Build a leveled parking garage on one lot and open other lots to
development
◊Implement parking structures
◊Build parking ramps
◊Change the parking on Main Street to be more like West Bend
◊Purchase bank on Washington for parking ramp
◊Construct parking behind Main Street stores
Fox River Development
◊River should drive development
◊Add a corporate campus on the river
◊New YMCA Relocation. Do not remodel existing site but relo-
cate to river.
◊Connect Riverwalk to downtown
◊Create an office park campus bordered by Pioneer Drive/9th
Avenue/S. Main with river access, amenities, and Pioneer Island
connection
Quality of Development
◊More high-quality development on the south side of the river
◊Add high-end condominiums
◊Demolish town motel, replace with townhomes
◊Fix Pioneer Inn area
Identity & Aesthetics
◊Identify community identity
◊Merchants need to cooperate as a single entity
◊Complete zoning/design standards
◊Open more facades to the street and create a more open and
inclusive culture allowing open alcohol beverages
◊Create distinct downtown districts and brands: Uptown, Down-
town, LoDo, etc.
◊North/south mentality
◊Establish trust and publically fund streetscaping and maintenance
◊Restore/improve building facades and enhance the right of ways
Imagine Oshkosh: Existing Conditions Report20
Greenspace
◊Public park or entertainment venue at the Buckstaff property
◊Include mini-parks (greenspace) along riverfront
◊Develop a new Buckstaff Park on Pioneer Island
Future Development
◊Redevelop Pioneer Property— hotel/condo mix
◊Redevelop Jeld-Wen site with mix of commercial and residential
◊Enable private development of Pioneer and Buckstaff properties
◊Convert underutilized or vacant properties to residential
◊Find daytime place for warming shelter people that isn’t Hard-
ees or the like
◊Purchase Pioneer Inn property for new hotel
◊Trader Joes in Morton Pharmacy building (co-op)
◊Develop mixed-use residential/commercial development on the
former Morgan Property south of the river
◊Build a big destination
Neighborhoods & Housing
◊Stabilize housing
◊Development/marketing of housing maintenance programs
◊Add massive amounts of living units in full-range of costs/rents
Business Development & Downtown Revitalization
◊Establishment of BID/business groups south of the river
◊Incentivize retail vacancy with TIF
◊Program evening and weekend activities such as events and
add recreational entertainment uses
Imagine Oshkosh: Existing Conditions Report 21
Primary Strengths & Assets
Finally, the officials were asked to identify Center City Oshkosh’s major strengths and assets. Popular
responses focused on the City’s historic past and inventory of historic buildings, riverfront access, and
the development opportunities available in the community. A full list of responses is provided below:
Historic Elements & Character
◊Historical buildings
◊Historic District and more areas under consideration for land-
marking
◊Architecture
◊Some beautiful old buildings
◊Rich history
◊Historical quality
◊Historic feel
◊Fairly walkable
◊Architecture
◊Great historic neighborhoods
Natural Features
◊Proximity to River
◊Water
◊Waterfront from I-41 Hwy to the lake
◊Proximity to riverfront/lakes
◊Riverfront: Riverwalk, best western, leach, convention center,
golf course, marinas, restaurants, etc.
◊Water proximity to Main/Leach Amphitheater/Pioneers
Movers & Shakers
◊Good momentum with current revitalization since 2000
◊The strong passion/loyalty of the community
◊The people (BID board, Business owners, etc)
Current Development & Businesses
◊Quantity of mixed use properties
◊Good inventory of buildings of architectural importance (public
and private homes and churches)
◊Adjacent to large university
◊Grand Opera House
◊Fairly good building stock in central core
◊Diversity of businesses – small unique retail
◊UW- Oshkosh
Community Amenities
◊Library and churches proximity to residents and downtown
◊Farmers Market
◊Cultural/recreational options densely clustered
◊Great concentration of public services/buildings (library, city
hall, opera house, etc.)
◊Events—park in center of town
Opportunities
◊Many development opportunities
◊Ample developable sites/buildings
◊Opportunities for new residential units
◊Some destination businesses to build on
Imagine Oshkosh: Existing Conditions Report22
In-Person Outreach Stakeholder Interviews
In order to get greater detail about important issues and more
accurately assess “on the ground” conditions and potentials, the
consultant team conducted confidential one-on-one interviews
and roundtable discussions with more than two dozen individuals.
Those interviewed possessed a wide range of perspectives and
backgrounds, including small and large business owners, local
experts, key service providers, institutional partners, developers,
and more.
Each group of participants was asked a series of questions about
Oshkosh’s Center City, with interviews generally lasting about one
hour. Their feedback, ideas, and information was invaluable in
drafting the Existing Conditions Report.
Imagine Oshkosh: Existing Conditions Report 23
In-Person OutreachSteering Committee Workshop
On December 16, 2015 a kick-off workshop was held with the
Imagine Oshkosh Steering Committee at City Hall to discuss issues
and opportunities within the Oshkosh Center City. The workshop
centered around three key questions:
◊What are five issues or concerns 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?
The following is a summary of the thoughts, comments, and opin-
ions recorded in response to these three questions. It is important
to note that the items identified in this workshop summary are
not recommendations or observations of the consultant, but rath-
er feedback and comments received from those who participated
in the workshop.
Top Issues
The discussion began by asking Steering Committee members to write down and then voice five issues
or concerns that they believe are confronting Oshkosh’s Center City. While this question brought forth
a wide variety of topics, many of these issues were interrelated and in agreement with the responses
of other participants. Accordingly, the responses are organized below into several common themes.
Decline of Surrounding Neighborhoods
Participants expressed concern about the stability of many of the single family residential areas sur-
rounding the center city. It was stated that these neighborhoods are the gateways into the downtown
and should also provide a consumer base for goods and services within the central city area. However,
many experience blight, vacancy, and public safety challenges.
Unmet Housing Demand
The residential market in the center city is surging with the
addition of new multi-family units. However, participants believe
there is a gap in the market, with virtually no “high end” condo-
minium product for professionals, empty nesters, and retirees.
It was expressed that some of the vacant waterfront properties
would be suitable locations for such development.
Key Redevelopment Sites
Center City Oshkosh contains a sizable acreage of redevelopment
sites, including the Jeld-Wen site, Pioneer Inn site, Buckstaff site,
and more. Steering Committee members would like to see this
vacant acreage better utilized, generating new activity, increased
density, and new tax revenue.
Inconsistent Design Aesthetic
The Center City area is a large geography and concern was
expressed that it did not have a consistent design aesthetic. The
historic character, streetwall, and streetscape can vary block by
block. Participants suggested restoring the historic character of
downtown buildings as well as establishing a uniform aesthetic
that tied different areas together.
Imagine Oshkosh: Existing Conditions Report 25
Top Project or Actions
Steering Committee members suggested a wide range of action items to improve Center City Oshkosh,
but several ideas came up frequently. Some of the more popular responses included:
◊Redeveloping vacant or blighted properties for uses such as mixed use development or condomini-
ums and upscale housing.
◊Improving the aesthetics of the downtown through updated design standards or renovated façade initia-
tives.
◊Developing business relations by offering incentives to businesses for moving downtown and devel-
oping a marketing plan for the community.
Specific projects and actions provided by Downtown Plan Advisory Committee (DPAC) members are
listed below:
Business Development
◊Offer incentives for businesses to move Downtown
◊Work with various stakeholders to develop a comprehensive
marketing plan
◊Convince professional businesses to locate in Oshkosh
◊Attract retail to meet needs of consumers
◊Create a group to formally manage retail operations
◊Develop ongoing mechanisms and coordinate downtown efforts
Aesthetics
◊Façade rehab removing 1960s and 70s store fronts
◊Work with all business owners to update all signage and build-
ing facades to historic standards for consistency
◊Façade improvements program with strict standards
Redevelopment Opportunities
◊Eliminate motel
◊Purchase old residential areas and build new condos and sin-
gle-family homes
◊Boutique hotel at Pioneer Inn
◊Redevelop Pioneer Inn site
◊Pioneer Island redeveloped with a partial resort/tourism destination
◊Buckstaff building should be demolished
◊Bring in redevelopers to meet housing needs and lodging needs
using blighted or vacant properties
◊Clean out and level 2-3 blocks east of N Main Street
◊Aggressive home buyer rehabilitation program with 5-year tax
credit for near east
◊Upscale housing project
◊Clean out and level town motel block
◊Condo/housing redevelopment on vacant property
◊Rebuild the two bridges
◊Relocate the housing authority from 500 block
◊Add a mixed use complex
◊Housing standards for multifamily housing in the downtown
area that are more clear and directly applicable.
Transportation
◊Redesign and improve downtown roads/streets
◊Reconfigure public parking (perhaps with a strategic ramp)
◊Better Road access to 41 via 9th Street—redesign and build
Riverwalk
◊Finish entire Riverwalk
Imagine Oshkosh: Existing Conditions Report26
Primary Strengths & Assets
Lastly, Steering Committee members were asked to identify Center City Oshkosh’s major strengths and
assets. Popular responses focused on the various amenities available in the community such as the
farmers market and the river walk. A full list of responses is provided below:
◊Hotel/Convention Center
◊Farmers Market
◊Opera House
◊Fox River
◊Lake Winnebago
◊Leach Amphitheatre
◊Great dining options
◊Events
◊Riverwalk
◊Employment base
◊Development potential on the south side of the river
◊Generous giving
◊People who care
◊Community desire for a great downtown
◊Historic character
◊University of Wisconsin-Oshkosh
Imagine Oshkosh: Existing Conditions Report 27
In-Person OutreachCommunity Workshop
On February 15, 2016, a workshop was held with Oshkosh res-
idents and stakeholders at the Oshkosh Convention Center to
discuss issues and opportunities within the Oshkosh Center City.
The workshop centered around three key questions:
◊What are five issues or concerns in 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?
The following is a summary of the thoughts, comments, and opin-
ions recorded in response to these three questions. It is important
to note that the items identified in this workshop summary are
not recommendations or observations of the consultant, but rath-
er feedback and comments received from those who participated
in the workshop.
Imagine Oshkosh: Existing Conditions Report28
Top Issues
The workshop featured a guided group discussion where participants were asked to identify five key issues
confronting Oshkosh’s Center City. After reviewing the collective list of issues identified by the group,
participants were then asked to rank their three issues. While numerous topics were discussed, several key
themes emerged during the discussion, which were consolidated into the following central concepts.
Activating the Riverfront
Workshop participants would like the riverfront activated and
redeveloped with a variety of new uses that can capitalize upon
the waterfront’s beauty and recreation opportunities. Particular
emphasis was placed on the south shore of the water, such as
the vacant Jeld Wen site. Residents noted the positive impact the
Riverwalk has had on the waterfront, and would like to see it
completed and complimented with additional investment.
Redeveloping Pioneer Island
Pioneer Island is a gateway into the community via Lake Win-
nebago; 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 and/or
residential uses, bringing the prominent property back onto the
tax roll and contributing to the vitality and aesthetic of the area.
Revitalizing Vacant/Blighted Areas
Workshop 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,
including the Buckstaff site.
Developing a Variety of Quality Housing Options
In order for the Center City to thrive, participants would like to
see more residential units downtown, including quality condo-
miniums along, or proximate to, the waterfront. It was noted
that currently the only product in the Center City area is either a
traditional single family home on a residential block or a rental
multi-family unit. Townhomes and condominiums are desired.
Improving the Regional Appeal
Concern was expressed that the reputation and standing of Osh-
kosh’s Center City needs to be improved within the region. It was
cited that Downtown Appleton and Downtown Neenah often are
seen as more desirable destinations. Others do not patronize the
Center City because of a lack of direct interstate access.
Imagine Oshkosh: Existing Conditions Report 29
Top Projects or Actions
In response to the list of issues identified during workshop discussion, participants were asked to name
specific projects or actions that would improve Oshkosh’s Center City. The list of recommended actions
are listed and categorized below.
Transportation
◊Create a strong bike/walk path to the west side
◊Long-range plan for bridge across Lake Winnebago to east side
of lake to open up Oshkosh to eastern central Wisconsin
◊Provide bus service on nights and weekends
◊Convert key vacant lots into free parking lots to service down-
town businesses
◊Work with transportation department to make public transit
efficient and user friendly
Promotion & Branding
◊Launch a marketing/advertising/programming campaign
◊Program to encourage people to support and shop at small
retail businesses
◊Marketing for businesses and residential development with a
positive identity
◊Figure out what Oshkosh is going to be known for
◊Provide a forum for advertising/publicizing local businesses
Economic Development & Business Resources
◊Provide grants for rehab projects, tax breaks, and other incentives
◊Support better cooperation between entrepreneurs, property
owners, and City officials
◊Leverage UWO proximity
◊Offer property tax incentives to a mid-size grocery store (pref-
erably a co-op)
◊Offer grants for building redevelopment to property owners
who arrange for new businesses with at least 3 employees
◊Make it easier to put on events to draw people downtown.
◊Get everyone on same page
◊Identify sites for business development
◊Court larger businesses that could become a draw for the
downtown area and help them develop existing sites to their
purpose without compromising visual integrity of downtown
◊Ensure a healthy mix of businesses
Imagine Oshkosh: Existing Conditions Report30
Development Projects
◊Build new office buildings to create jobs
◊Clear environmental concerns of Buckstaff properties
◊Get satellite UWO locations within the downtown core
◊Redevelop Pioneer Island
◊Build upscale housing
◊Ensure the downtown is mixed-use in nature
◊Renovate and develop south river walk (current Oshkosh Corp.
truck storage) to include condos/apartments (upscale), restau-
rants, and retail
◊Develop healthcare facility downtown
◊Condo development
◊Rehab Buckstaff property
◊Develop a program to give downtown buildings a face lift (own-
er involvement mandatory)
◊Make the south side of the river more boater-friendly. Specifi-
cally at the site where Oshkosh Corp. stores their trucks
◊Recruit a co-op grocery store
◊Build a corporate campus
◊City resources directed towards assisting building and full
service grocery store
◊Find a place for an Indoor Market
Character & Aesthetics
◊Promote density
◊Make green public spaces and plant trees
◊Expand support of farmers market—it’s amazing!
◊Add foot patrol police walking around at night
◊Encourage evening hours of business and music etc. (other
than bars)
◊Expand hours of operation for businesses
◊Get a new newspaper
◊Homeless population rising (Safety)
◊Rehab existing apartments including entrances
◊Cohesive and attractive key entry point signs
◊Improve streets
◊Landscape
◊Remodel buildings on Main St
◊Upkeep of other vacant buildings at Buckstaff location
◊Make landlords fix building exteriors
◊Renovate/improve vacant or underutilized property
◊Power wash buildings and walks
Imagine Oshkosh: Existing Conditions Report 31
Primary Assets & Strengths
As the Center City Master Plan moves forward, the key strengths and assets of the community should
be maintained and built upon. Participants identified the following strengths and advantages that make
Oshkosh City Center a great place:
◊Cozy feeling when hosting an event downtown
◊Leach Amphitheater
◊Farmers Market
◊Architecture
◊Historic Main Street
◊Walkability
◊Architectural charm, great buildings
◊Fox River and Lake Winnebago access
◊Opera House
◊Public Library
◊YMCA
◊Churches
◊People
◊History
◊Small Businesses
◊Current residents
◊Opera House Square
◊Potential at river/lake
◊Gallery walk
◊Grand Theater
◊Morgan House
◊New and existing restaurants
◊Historic buildings
◊Oshkosh Convention Center
◊Best Western Hotel
◊Willingness of City officials and staff to explore and make an
effort
◊Availability of development opportunities
◊Good employment
◊Blank canvas
◊Water frontage
◊UWO
◊Untapped potential for development
◊Lots of affordable housing close by
◊Civic uses
◊Plenty of parking
Imagine Oshkosh: Existing Conditions Report32
In-Person OutreachBusiness Workshop
On February 16, 2016, a workshop was held with members of the
Oshkosh business community at the Oshkosh Convention Center
to discuss issues and opportunities within the Oshkosh Center
City. The workshop centered around three key questions:
◊What are five issues or concerns facing businesses in 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?
The following is a summary of the thoughts, comments, and opin-
ions recorded in response to these three questions. It is important
to note that the items identified in this workshop summary are
not recommendations or observations of the consultant, but rath-
er feedback and comments received from those who participated
in the workshop.
Imagine Oshkosh: Existing Conditions Report 33
Top Issues
The workshop featured a guided group discussion where participants were asked to identify five key issues
confronting Oshkosh’s Center City. After reviewing the collective list of issues identified by the group,
participants were then asked to rank their three issues. While numerous topics were discussed, several key
themes emerged during the discussion, which were consolidated into the following central concepts.
Enhancing the Center City’s Brand
Workshop participants would like to improve the Center City’s
brand and reputation. It was noted that many Oshkosh resi-
dents, as well as those living in the greater Fox Cities region, do
not patronize the Center City often. Improving the Center City’s
reputation as an exciting and safe destination with “something
for everyone” will improve the business climate and vitality of the
neighborhood.
Improving Downtown Access from I-41
Participants believe that the Center City lacks an attractive, di-
rect, and easy-to-follow route from I-41. Improvements suggest-
ed included construction of a more direct route as well as better
signage along existing routes. It was also noted that the existing
access routes are unattractive in places, and aesthetic improve-
ments should be made to communicate a positive first impression
of Oshkosh and draw visitors into the Center City.
Revitalizing Surrounding Residential Neighborhoods
The health and vitality of the residential neighborhoods surround-
ing the Center City are seen as critical to its success. Partici-
pants noted that many of the nearby neighborhoods suffer from
disinvestment and crime impacting the attractiveness of the
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.
Improving Building Appearance
Blight was also cited as a top concern. Participants noted several
locations for improvement, including demolition of older indus-
trial buildings (where appropriate), façade improvements for his-
toric Main Street Buildings, and investment in blighted residential
neighborhoods.
Promoting a Healthy Retail Mix
Workshop participants recognized that the retail mix of the
Center City will be different than it was 50 years ago. However,
they would like to see a more diverse mix of retail options than
what is currently offered. Suggestions included the addition of a
grocery store and more businesses supporting day-to-day living.
Imagine Oshkosh: Existing Conditions Report34
Top Projects or Actions
In response to the list of issues identified during workshop discussion, participants were asked to name
specific projects or actions that would improve Oshkosh’s Center City. The list of recommended actions
are listed and categorized below.
Marketing
◊Increase marketing locally and outside the community
◊Hire city marketer to run ads, do promotions, billboards, etc.
◊Better advertise what the Center City is and how to get to it
◊Hire top marketing firm to promote all of Oshkosh
◊Bring outside investors/developers to City to show off Oshkosh
◊Promote Lake Winnebago, such as sailing races
◊Use of downtown logo/branding to businesses and the public
Transportation
◊Bike trails or paths to Center City
◊Create more bike lakes and promote recreational projects
◊Widen Main St
Aesthetics
◊Hire a designer to make Downtown look aesthetically appeal-
ing—uniform and unique
◊Designate Highway 44 and South Park Avenue as the main
entrance to downtown
◊Buy houses, improve roadway/access
◊Improve building and sign codes to increase building re-use and
image
◊Educate owners and the public on importance and draw of
historic properties and their appropriate maintenance
◊Remove all blight along the river and lake—make parks, walk-
ing areas, etc.
◊Clean-up the surrounding residential neighborhoods to include
driving out the criminal activity
◊Improve the curb appeal of all access points leading into and
through downtown
Imagine Oshkosh: Existing Conditions Report 35
Business Resources
◊Provide incentives for new/existing businesses
◊Establish a permitting overview committee to recommend pos-
sible discrepancy in Downtown and surrounding neighborhoods
◊Implement Main Street Program to include North and South
Main, BID, and Oregon St. businesses
◊Expand existing BID District or create new BID Districts
◊Encourage night/weekend foot traffic; “still water becomes
stagnant”
◊Attracting more employers to the Center City
◊Recruit and incentivize some of the area large companies to
move white collar jobs to waterfront office space (to be devel-
oped) in the Center City
◊Increase amount/number of business grants
◊Promote a healthy mixture of retail and service businesses
◊Educate businesses on parking options and the community
(simple changes)
Public Services
◊Create a limited but visual police presence
◊Improve snow removal
Development
◊Raze or refurbish vacant buildings
◊Re-open/re-develop the Pioneer Inn
◊Destination condo/hotel/waterpark on Pioneer Inn site
◊Redevelop the Town Motel
◊Reach out to current landlords for recruitment purposes
◊Recruit developer to create retail/apartment/hotel complex on
Jeld Wen, Pioneer Inn, and Buckstaff sites
◊Land a unique retail business to lure people downtown; this
would create a trickle effect to other businesses
◊Create more affluent residential areas
◊Recruit developers to produce higher-end condo housing on the
waterfront
Imagine Oshkosh: Existing Conditions Report36
Primary Assets & Strengths
As the Center City Master Plan moves forward, the key strengths and assets of the community should
be maintained and built upon. Participants identified the following strengths and advantages that make
Oshkosh City Center a great place:
◊Waterfront
◊UWO proximity
◊Tech sector
◊Architecture
◊Grand Opera House
◊Riverwalk/River
◊Current redevelopment activity
◊Farmers Market
◊People
◊Art—murals, gallery walk, concerts
◊Best Western Hotel
◊Leach Amphitheatre
◊Events
◊Great opportunities for leveraged improvement
◊Momentum
◊Passionate business, restaurant, and entrepreneurial leaders
◊Historic character
◊Size of community
◊New up-and-coming businesses
◊Location on the water
◊BID—beautification, grants, website/marketing
◊Few vacant buildings within BID
◊YMCA
◊Volume of jobs
◊Culture
◊Growing residential base
◊Growing technology sector
◊Large employment base
Imagine Oshkosh: Existing Conditions Report 37
Online OutreachResident Questionnaire
An on-line questionnaire for Oshkosh residents was posted on the
project website. It was designed to supplement in-person out-
reach activities conducted throughout the community, and is not
intended to be a scientific survey instrument. The questionnaire
was launched in January 2016, and will remain open and available
throughout the visioning portion of the planning process. As of
the drafting of this report, 242 residents submitted responses
to the questionnaires. The following is a summary of collected
responses.
Visiting the Center City
Roughly one-fifth of all questionnaire takers visit the Center
City daily, with 40% weekly, 25% a few times a month, and the
remainder either a few times a year or rarely. The most popular
reasons for visiting the Center City were for dining, shopping, and
community events.
Favorite Things
Residents were asked to list their three favorite things about
Oshkosh’s Center City. More than 600 items were listed. Popular
responses included:
◊Unique architectural character
◊Entertainment options and festivals
◊Coffee shops
◊Unique locally-owned shops and restaurants
◊Oshkosh Public Library
◊Kitz and Pfeil True Value
◊Riverwalk
◊Walkability and convenience of getting around
◊Public spaces such as Opera House Square
◊Oshkosh Farmers Market
Least Favorite Things
Residents were also asked to list their three least favorite things
about Oshkosh’s Center City. Common responses included:
◊Lack of critical mass and activity in the core
◊Lack of variety in shopping and dining
◊Not bike friendly
◊Lack of a full-service grocery store
◊Poor road conditions
◊Parking
◊Lack of green spaces
◊The “narrowness” of Main Street
◊Homelessness, panhandling, and disruptive people
◊The sundial in Opera House Square
Comparison
Residents were asked how Center City Oshkosh compares to
other neighboring downtowns. A plurality responded “the same”
(38%), while 33% stated it was worse and 14% that it was better.
The remainder were unsure.
Imagine Oshkosh: Existing Conditions Report38
Most Important Issues
Residents were asked what they felt were the “most important
issues” for a range of categories. The highest three responses for
each category are provided below.
◊Transportation: parking (#1), bikeability (#2), transit service (#3)
◊Business Development: vacant sites (#1), quality of life (#2),
downtown activities (#3)
◊UW-Oshkosh: presence of student housing (#1), housing transi-
tion between Center City and surrounding neighborhoods (#2),
priority gateway corridors Between institutions and the Center
City (#3)
◊Appearance: vacancy (#1), historic preservation (#2), streets-
cape (#3)
◊Arts & Entertainment: capitalizing on the Fox River and Lake
Winnebago (#1), preservation of local history and legacy (#2),
events and activities (#3)
Housing
A plurality of questionnaire takers (42%) described the Center
City’s housing stock as “fair,” while 28% stated it was “poor” and
only 13% rated it as “good.” The remainder reported they were
unsure. None reported it was “excellent.”
A follow-up question asked what type of new residential develop-
ment should occur within the Center City. Townhomes, condo-
miniums, and apartments were the most desired.
Would You Live in the Center City?
The questionnaire asked residents if they would consider living in
the Center City and to share either why they would or why they
wouldn’t. Respondents mostly stated that they would not move
to the 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.
Incentives
Roughly two-thirds of those who completed a questionnaire sup-
port the usage of tax incentives to attract and retain businesses.
Desired Development
Residents were asked what types of non-residential development
they would like to see within the Center City. The top responses were:
retail stores (80%), restaurants (75%), and entertainment (66%).
Quality of Life
63% of participants are “satisfied” with the quality of life in the
Center City. Roughly one-third are dissatisfied.
A vast majority (71%) of residents believe that the quality of life
today in the Center City is either much better or somewhat better
than it was ten years ago. 23% believe it is about the same while
the remainder report it is somewhat or much worse. Moving for-
ward, 64% of respondents believe that Center City Oshkosh will be
a better place in ten years.
Big Ideas
Participants were asked to share their “big idea” for Oshkosh’s
Center City. Popular responses included:
◊Food co-op
◊Grocery store
◊Waterpark hotel or resort on Pioneer Island
◊Demolish vacant and run-down buildings
◊Activation of the river
Imagine Oshkosh: Existing Conditions Report 39
Online OutreachBusiness Questionnaire
An online questionnaire for Oshkosh’s businesses was also posted
on the project website, with the purpose of soliciting insight
about the local business climate. As of the drafting of the Existing
Conditions Report, 32 business owners and operators submitted
answers to the questionnaire. A summary of their responses to
key questions are provided below.
Favorite Things
Business owners were asked to list their three favorite things
about Oshkosh’s Center City. Popular responses included:
◊Small business owners
◊Farmers Market
◊Fox River
◊Sense of community
◊Gallery Walk
◊Architecture
Least Favorite Things
Business owners were also asked to list their three least favorite
things about Oshkosh’s Center City. Common responses included:
◊“Narrowness” of Main Street
◊Parking
◊Inconsistent business hours
◊Homeless
◊Road quality (e.g. potholes)
Comparison
Business owners were asked how Center City Oshkosh compares
to other neighboring downtowns. A plurality responded “worse”
(36%), while 32% stated it was the same and 26% that it was bet-
ter. The remainder were unsure.
Most Important Issues
Business owners were asked what they felt were the “most
important issues” for a range of categories. The highest three
responses for each category are provided below.
◊Transportation: Alternatives to personal automobile use (#1),
parking (#2), bikeability (#2), safety (#3)
◊Business Development: quality of life (#1), infrastructure
maintenance and upgrades (#2), programs to encourage local
spending and hiring (#3)
◊UW-Oshkosh: outreach and engagement (#1), hospitality relat-
ed development (#2), university-oriented nightlife and enter-
tainment (#3)
◊Appearance: historic preservation (#1), public art(#2),
wayfinding (#3)
◊Arts & Entertainment: preservation of local history and legacy
(#1), capitalizing on the Fox River and Lake Winnebago (#2),
and support for local artists (#3)
Imagine Oshkosh: Existing Conditions Report40
Housing
A plurality of questionnaire takers (43%) described the Center
City’s housing stock as “fair,” while 29% stated it was “good” and
18% rated it as “poor.” The remainder reported they were unsure.
None reported it was “excellent.”
A follow-up question asked what type of new residential develop-
ment should occur within the Center City. Townhomes, condo-
miniums, and apartments were the most desired. 89% of business
owners stated they believe increased residential density would
positively impact their business.
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 (#1), visibility and access to customers (#2),
proximity to public transportation (#3 - tie), and character of the
business district (#3 – tie).
Tax Increment Financing (TIF) Districts
Tax Increment Financing utilizes future property tax revenues
generated within a designated area or district to pay for improve-
ment and further incentivize continued reinvestment. The purpose
of TIF funding is to encourage and attract desired development
within key commercial areas. TIF dollars can typically be used for
infrastructure, streetscaping, public improvements, land assem-
blage, and offsetting the cost of development.
Business owners were asked about the effectiveness of TIF dis-
tricts within the Center City. Only 1 in 5 reported that they were
“effective” or “very effective.” 26% stated they were unsure.
Retention
The majority of participating business owners (75%) would not
move their business out of the Center City if given a chance. The
25% that stated they would move their businesses cited the fol-
lowing reasons for doing so: lack of a grocery store, not enough
traffic, difficulty parking, and disjointed merchants/BID board.
Desired Development
Residents were asked what types of non-residential development
they would like to see within the Center City. The top responses
were: retail stores, entertainment, restaurants, and mixed-use.
Incentives
80% of those who completed a questionnaire support the usage of
tax incentives to attract and retain businesses.
Quality of Life
A vast majority (72%) of business owners believe that the Center
City is much more successful today than it was ten years ago and
75% believe this positive trend will continue over the next five
years.
Receptiveness
75% of the business owners who participated in the survey report
that the City is receptive to the business community.
Imagine Oshkosh: Existing Conditions Report 41
Online OutreachProject Website
An Imagine Oshkosh project website was created to establish
a centralized location for information regarding the plan. The
website contains information and updates concerning the project,
meeting notices, and downloadable versions of project docu-
ments and reports. To provide convenient and comprehensive
information, the project website is accessed through a link on the
City of Oshkosh’s home page. The project website also contains
links to online questionnaires for residents and business owners,
as well as the sMap mapping tool.
Imagine Oshkosh: Existing Conditions Report42
Online OutreachsMap
sMap is a social mapping application developed by Houseal Lavi-
gne Associates that allows residents to actively participate in the
planning process. Linked from the project website, sMap enables
participants to create their own community maps, making note
of issues and opportunities while providing comments tagged to
specific locations. Residents are able to tag community assets,
desired uses and developments, key transit destinations, areas
with poor appearance, problematic intersections, and public safe-
ty concerns, among other options.
As of the drafting of this Existing Conditions Report, only 3 maps
have been created for a total of 10 points. A summary of points
placed on the map that are within the study area are listed below,
organized by topic area.
Community Assets
◊Opera House Square
◊Riverwalk
◊Winnebago County Historical Society
Development Priority Sites
◊Buckstaff Property
◊Raulf Hotel
◊Eagles Club (preserve it)
◊Old Morgan Doors site
Public Safety Concerns
◊Buckstaff Property
Key Transit Destination
◊Old Railroad Depot
Imagine Oshkosh: Existing Conditions Report 43
Corner Main and Algoma Streets, Oshkosh, Wis.
Past Plans & Studies
This section contains a review of past plans and studies impact-
ing policy, planning, and development within Oshkosh’s Center
City. The Imagine Oshkosh planning process recognizes the value
of these prior planning efforts and will build upon them where
applicable as a component of the community’s new vision.
Imagine Oshkosh: Existing Conditions Report44
Corner Main and Algoma Streets, Oshkosh, Wis.
A long history of planning
The City has planned for the Center City for decades. Imagine
Oshkosh continues this tradition and will incorporate and build
upon previous efforts where applicable.
It takes time
Transitioning the Center City away from industry towards com-
mercial, residential, and recreational uses has been a more than
50 year process. Several plans from the 1970s, for example, rec-
ommend redevelopment scenarios on several waterfront industri-
al properties that mirror discussions being held today.
It is imperative to “get it right.”
The long time that it has taken to redevelop the industrial water-
front shows how critical it is to plan and develop with foresight
and care. Properties only redevelop once every several genera-
tions. Similarly, planning blunders – such as the proposed closure
of Main Street for a pedestrian mall (which was never implement-
ed) – can have negative effects for generations.
Oshkosh plans to implement
Many of the Center City’s most cherished assets – the riverwalk,
Leach Ampitheatre, historic architecture, Farmers Market, and
more – were either created, built, or protected through prior
planning efforts.
Document Review: Key Takeaways
Imagine Oshkosh: Existing Conditions Report 45
Document Review:Applicability to Imagine Oshkosh
Imagine Oshkosh Topics
Character & Sense of Place in the Center City Living in the Center City Working in the Center City
Developing Property in the Center City Activating the Center City
Getting Around the Center City Partnering in the Center City
Center City Plans
Central Business Area Plan (1970)
Riverfront Beautification Plan (1971)
Central Area Plan (1975)
Land Use Market Study for the 100 Block of
North Main Street (1987)
Central City Plans (1993)
Downtown Action Plan (2000)
Marion Road/Pearl Avenue Redevelopment
Area Phase II Development Guidelines (2003)
Fox River Corridor Riverwalk Plan & Design
Guidelines (2005)
Riverfront Visioning Workshops Public Input
Report (2014)
Middle Village Neighborhood Plan (2015)
Downtown Parking Study (2016)
Other Plans
Comprehensive Plan (2005)
Vision Oshkosh (2009)
Pedestrian & Bike Circulation Plan (2011)
Sustainability Plan (2012)
Strategic Plan (2014)
Economic Development Strategic Plan (2016)
Primary Topic
Secondary Topic
Imagine Oshkosh: Existing Conditions Report46
Center City Plans
Central Business Area Plan (1970)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The 1970 Central Area Business Plan was a guide for coordinating
public and private action to bring about the orderly revitalization
of Downtown Oshkosh. Some of the key take-aways from the
study include:
◊The opening of the $15 million Park Plaza Shopping Center
will strengthen the economic health of downtown. Maximum
benefit will not be realized, however, until the surrounding area
is revitalized as well.
◊One of the greatest challenges facing the downtown is the lack
of a direct route from US 41.
◊Downtown traffic patterns should shift to two one-way cou-
plets: Main Street for southbound traffic and State and Jeffer-
son Streets for northbound traffic.
◊Downtown has fewer parking space than any other city of
comparable size in the state.
◊Pedestrian ways should be created that replace low-traffic
volume streets.
◊To improve aesthetics, overhanging signs should be eliminated,
street trees should be planted, and new buildings should be
setback from the street to provide additional pedestrian space.
Riverfront Beautification Plan (1971)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Riverfront Beautification Plan aimed to improve the appear-
ance and ecological health of the Fox River in the face of more
than a hundred years of manufacturing and logging. Some of the
key take-aways from the plan include:
◊Oshkosh’s employment base is diversifying and beginning to
shift away from factory work. This presents opportunities to
re-envision and beautify the waterfront incrementally as prop-
erties redevelop.
◊40% of all riverfront property within Oshkosh is utilized for
industrial purposes. Virtually all of the waterfront land within
the Imagine Oshkosh study boundary is utilized for industrial
purposes, outside of Pioneer Island and the Park Plaza Shopping
Center.
◊Pollution is still an area of great concern, given the historic
usage of it as a sewer by industry.
◊Oshkosh’s riverfront has relatively easy public access relative
to other communities, but blighted boat slips and local dump-
ing harm the aesthetic.
◊The industrial waterfront transition should to other uses, in-
cluding commercial, residential, parks/recreation, and institu-
tional. Pioneer Inn, Park Plaza Shopping Center, and Wisconsin
State University-Oshkosh are all given as successful examples
of transition.
◊High-density housing developments should be added to the
riverfront along Marion Road and on the Morgan Doors/Jeld-
Wen site.
◊The zoning ordinance should be amended to more closely
regulate development on the water, limiting it to waterfront
activities. A continuous walkway system should be developed
along the waterfront.
Imagine Oshkosh: Existing Conditions Report 47
Central Area Plan (1975)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Central Area Plan built off previous planning efforts and
sought to revitalize and maintain a vibrant healthy core. Some of
the key take-aways from the plan include:
◊The main challenges facing the Central Area include: a high
volume of traffic that disrupts the main function of the street;
pedestrian areas that are not attractive; inconvenient parking;
the offsets in streets and diagonal streets created during the
original patting of the city have an adverse effect on traffic
circulation; the central area is not oriented towards the water;
and that the architecture of Main Street [that is overwhelming-
ly cherished in 2016] is seen as lacking character and looking
identical to thousands of other cities.
◊A bypass should be constructed that directs traffic volume
away from Main Street.
◊The Plan has a heightened focused on uninterrupted pedestrian
mobility and connectivity between shopping areas. A pedestri-
an mall should be developed by closing Main Street to vehicles
[between Washington Avenue/Algoma Boulevard and rough-
ly where Peabody’s and Crescent Moon currently are]. This,
coupled with the Park Plaza mall, would serve as anchors to the
downtown area. Bump-outs should be added to intersections
along Main Street.
◊A convention center and new downtown hotel should be added,
in addition to new high density multi-family developments
targeted to students and seniors.
Land Use Market Study for the 100 Block of North Main Street (1987)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
This study analyzed the 100 Block of N. Main Street to determine
the optimum land use and development program [note: the site is
currently occupied by the mixed-use 100 N. Main building]. It was
determined that the desired scenario would be a 5 story mixed-
use structure with 60,000 to 80,000 square feet of net leasable
Class A office space and 20,000 square feet of net leasable retail
space on the first floor.
Imagine Oshkosh: Existing Conditions Report48
Central City Plans (1993)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Central City Plans were developed as a component of the
City’s 1993 Comprehensive Plan, and included several individual
special area plans for neighborhoods comprising the 2016 Imagine
Oshkosh study area. Some of the key take-aways from the plan
include:
◊New development should be oriented towards the riverfront
and lakeshore, with a supporting continuous riverwalk park and
trail system.
◊New housing development should be encouraged on sites for-
merly used for industry and commercial development, including
support for mixed-use within the core.
◊Improve the presence and impact of University of Wiscon-
sin-Oshkosh with the Center City, including bike and pedestri-
an linkages and student housing along Marion Road. Industry
in the Marion Road should be transitioned out for a blend of
commercial and residential uses. Public access to the riverfront
should be provided.
◊N. Main Street, between Otter Avenue and Parkway Avenue,
should be a predominantly specialty retail district. To the north,
development patterns should shift to auto-oriented commercial
uses.
◊Along S. Main Street, the former Universal Foundry site along
South Main is a priority redevelopment site. Recommended
uses include specialty retail, office, and residential, with mixed-
use suitable as well. Specialty retail and office development
(“warehouse district”) is envisioned along South Main between
the riverfront and Tenth Avenue.
◊Along S. Main Street, roughly between Tenth and Seventeenth
Avenues, industrial uses should be transitioned towards for-
malized business parks elsewhere in the community. This area
should be redeveloped for medium to high density residential
and/or commercial and residential mixed-use.
◊Oregon Street, between Sixth and South Park Avenues, should
serve as a neighborhood business district.
◊Along N. Main Street (north of the CBD), efforts should be
undertaken to upgrade the appearance of the auto-centric
corridor. This includes parking lot landscaping, street trees,
reducing the number of signs, and encouraging cross access.
Imagine Oshkosh: Existing Conditions Report 49
Downtown Action Plan (2000)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Downtown Action Plan seeks to enhance property values, pro-
vide a higher quality of life, and identify new uses for underutilized
parcels. Some of the key take-aways from the plan include:
◊Within the 100-300 Blocks of N. Main Street, a new public plaza
(note: now Opera House Square) should be developed on the
Walgreens’ site, streetscaping should be enhanced, and the 100
block should be redeveloped.
◊Along N. Main Street, between the river and Parkway Avenue,
residential development should be increased and the streets-
cape should be enhanced. Surface parking behind the buildings
can alleviate parking pressures on Main Street. Pedestrian
accessibility should be increased across the Main Street bridge.
◊A riverfront park (now: Riverside Park and the Leach Amphithe-
atre) should be developed that brings the community together
to enjoy the beauty of the river.
◊E. Ninth Avenue and Pioneer Drive, east of Main Street, should
be redeveloped into a mixture of residential, commercial, and
office uses.
Marion Road/Pearl Avenue Redevelopment Area Phase II Development Guidelines (2003)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The development guidelines establish a more detailed vision for
redevelopment along the formerly industrial north waterfront
between Wisconsin Avenue in the west and Jackson Street in the
east. A three-phased approach is proposed for a blend of non-in-
dustrial development, and guidelines for the design, site orienta-
tion, and pedestrian amenities are identified. Key objectives of the
guidelines include:
◊Buildings will create a strong street edge;
◊Buildings will be compatible with their neighbors;
◊Pedestrian activity and interaction will be encouraged;
◊Buildings will be constructed to last;
◊Buildings will respond to the context of Oshkosh and the heri-
tage of the Fox River; and
◊On-site parking will be visually separated from major streets.
Imagine Oshkosh: Existing Conditions Report50
Fox River Corridor Riverwalk Plan & Design Guidelines (2005)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
This Plan establishes the vision for a comprehensive riverwalk
along the Fox River that can revitalize the riverfront and link up
with ongoing redevelopment efforts. It provides detailed design
standards. Key objectives of the plan include:
◊Developing a continuous riverwalk on two sides of the river
between Wisconsin Street and Lake Winnebago;
◊Linking the downtown riverwalk with the WIOUWASH State Trail
and UW-Oshkosh to the northeast;
◊Linking the downtown Riverwalk with neighborhoods and the
Pioneer Resort area to the south;
◊Crafting a unifying design vocabulary for public and private
projects linked by the Riverwalk;
◊Encouraging consistently high quality riverfront development;
◊Creating a more beautiful, inviting riverfront in the downtown
area;
◊Improving infrastructure to make redevelopment opportunities
more attractive;
◊Locating improved facilities for recreational boating and fish-
ing;
◊Creating a wayfinding system and user amenities to promote
the safe, easy use of the Riverwalk; and
◊Establishing alternative transportation (e.g. boating, bicycling,
pedestrian, etc.) connections between key destinations.
Riverfront Visioning Workshops Public Input Report (2014)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
In the late summer of 2014, a call was put out to residents and
users of the Fox River system in Oshkosh to assist in generating
ideas for an overall ‘vision’ for the waterfront areas within the
City. This report summarizes those findings. Some of the findings
include:
◊Common themes about Oshkosh’s identity included the lumber
industry (historic identity), lots to do, and recreational activity
along the waterfront.
◊Participants would like to see increased connectivity between
the Downtown, business areas, the waterfront, and Menominee
Park, as well as direct access to the waterfront.
◊Priority redevelopment sites included the Pioneer Inn, Buckstaff,
Jeld-Wen, AxleTech International, and Marion Road sites.
◊Small-scale multi-family housing was the preferred housing
development option along the waterfront and street-oriented
commercial and mixed-use was the desired commercial option.
Preferred employment related intensities were not very conclu-
sive.
Imagine Oshkosh: Existing Conditions Report 51
Middle Village Neighborhood Plan (2015)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
Middle Village is a historic neighborhood just north of the institu-
tional campus (e.g. City Hall, Police Department, etc.) within the
Central City. Several blocks of Middle Village along Church Avenue
and N. Main Street fall within the Imagine Oshkosh study bound-
ary. The Neighborhood Plan addresses neighborhood challenges
and promotes reinvestment. Some of the recommendations of the
plan that may affect Imagine Oshkosh include:
◊Provide highly visible crosswalk markings at all intersections.
◊Install traffic calming measures where feasible.
◊Proactively address police calls for service and issues associ-
ated with boarding houses and high rental concentration in the
neighborhood.
◊Install historically consistent decorative street lighting when
new streets go in.
◊Develop a Project Porch Light Program to include funding for 20
additional lighting sources for property owners.
◊Utilize proactive code enforcement on properties within ongo-
ing code violations.
◊Increase home ownership through a variety of different programs.
Downtown Parking Study (2016)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Downtown Parking Study provides parking planning and op-
erating strategies for Downtown Oshkosh. Since parking is such a
costly asset, the study carefully considers the need for additional
parking and opportunities to maximize use of current parking
assets.
Current Conditions
◊The current downtown parking supply includes 4,860 park-
ing 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 limit-
ed public access, and 12% are located on-street.
◊Roughly 1 in 3 parking spots within downtown is controlled by
City Center (31%).
◊The distribution of parking supply is within reasonable stan-
dards when compared to similar size cities.
Imagine Oshkosh: Existing Conditions Report52
Downtown Parking Study (Continued)
Conclusions & Recommendations
◊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 condi-
tions (2,414 parked vehicles). Conversely, there are approximately
2,446 unoccupied parking spaces during peak weekday condi-
tions. Development of a new public parking structure in down-
town Oshkosh is not recommended at this time.
◊A future parking surplus is projected to occur under each of the
five potential downtown development scenarios. The surplus of
unoccupied parking supply is projected to range between 2,431
spaces for Scenario 1 and 1,376 spaces for Scenario 5.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 an overall surplus of parking exists today, and a surplus
is projected under future development scenarios, there are
localized areas with more intense demand patterns that can be
addressed through parking management practices.
◊It is recommended that the City of Oshkosh invest in informing
the community on downtown public parking options through
the development and implementation of a sign/wayfinding pro-
gram, community outreach efforts, and public parking branding
strategy.
◊To more effectively manage the use of public parking resourc-
es in downtown Oshkosh, it is recommended that the City
implement an on-street paid parking system in the core area
of downtown. A primary goal of the public parking system is to
provide access to downtown destinations and events. 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. Downtown patrons and employees would be
provided a range of parking products to choose from that best
align with personal preferences.
◊While current typical parking conditions do not warrant the
construction of a new parking ramp, we recognize that some
stakeholders believe a ramp is desired. The preliminary esti-
mate 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 associ-
ated with the public parking ramp.
Imagine Oshkosh: Existing Conditions Report 53
Other City Plans
Comprehensive Plan (2005)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The 2005 Oshkosh Comprehensive Plan is the City’s official guide
for growth and development. The Plan makes recommendations for
housing, land use, transportation, economic development, utilities,
community facilities, agricultural resources, cultural resources,
natural resources, intergovernmental cooperation, and implemen-
tation. Most of the major recommendations originating out of the
Comprehensive Plan involves with high-level growth and manage-
ment outside of the scope of Imagine Oshkosh, such as revising the
subdivision ordinance, developing boundary agreements, improving
I-41 corridors, and authoring new master plans for growth areas.
Recommendations relating to Imagine Oshkosh include:
◊Continue implementation of the 2000 Downtown Action Plan.
◊Encourage Downtown/Central City residential development
through rehabilitation or new construction, and accommodate
a variety of appropriate housing types.
◊Design and construct the Fox River Corridor with a continuous,
looped trail system and an environmentally sensitive design for
the shoreline.
◊Adopt design guidelines for the Main Street Historic District and
downtown area.
◊Pursue incentives for façade improvements and streetscape
improvements.
◊Review potential for expanding existing BID or creating new ones.
◊Work with industry, particularly in the Central City area, to
investigate opportunities for relocation from older outdated
facilities to newer industrial plants within industrial parks.
◊Continue to provide and promote opportunities for recreational events
on and public access to the Lake Winnebago and Fox River system.
◊Create a shoreline and riverfront overlay district.
◊The Imagine Oshkosh study area is shown almost entirely as
“Mixed Downtown Development” on the future land use map.
Vision Oshkosh (2009)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Vision Oshkosh Plan establishes a vision that enhances the
appeal of Oshkosh in ways that are consistent with the heritage
of the community, the character of commercial interests and
neighbors, and the future that should be as promising as possible.
Recommendations relating to Imagine Oshkosh include:
◊The Center City area was identified by residents as “highly sus-
ceptible to change,” meaning that it should be given elevated
priority for development and redevelopment.
◊Residents see the Center City as the main geographic area for
future growth - new parks, residential, commercial, and enter-
tainment uses.
◊The South Shore was identified by residents for new multi-fam-
ily and single family residential housing.
◊N. and S. Main were identified as being one of the top five
streets for transportation improvements.
◊A comprehensive bicycle network with clear signage and maps
should be developed.
◊The waterfront walkway should be completed on both sides of
the river.
Imagine Oshkosh: Existing Conditions Report54
Pedestrian & Bike Circulation Plan (2011)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Pedestrian and Bike Circulation Plan recommends strategies
for improving pedestrian and bicycle transportation throughout
the greater Oshkosh area over a 20 year period. Some of the key
findings relating to Imagine Oshkosh include:
◊Walking is often overlooked and undervalued as a transporta-
tion mode.
◊The bridges over the Fox River are a major concession for bicy-
cle and pedestrian travel.
◊The overriding principle for bicycle and pedestrian friendly
streets is to create public right-of-ways that work effectively
for and benefit all modes of transportation.
◊Bicycle and pedestrian program recommendations include edu-
cation, encouragement, and outreach programs; enforcement;
facility maintenance and policy recommendations.
◊Pedestrian and bicycle facilities along established right-of-ways
are the most efficient and cost effective improvements (rela-
tive to new trails).
◊All bike routes within Oshkosh are recommended to be signed,
whether they have bike lanes, sharrows, wide curb lanes, or are
simply shared-use roadways.
◊Priority facility improvements include: signing and/or desig-
nating a shareway along N. Main Street (north of Washington
Avenue), W. 10th Avenue (between Oregon Street and S. Main
Street), around the Leach Amphitheatre connecting to Bay
Shore Drive, and New York Avenue; continuing development of
the Riverwalk along the waterfront; signing and striping por-
tions of N. / S. Main, Commerce Street, State Street, Wisconsin
Street, High Avenue, Algoma Boulevard, 6th Avenue, and 12th
Avenue.
Sustainability Plan (2012)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The City’s Sustainability Plan aims to make the Oshkosh commu-
nity greener and more environmentally friendly. The document
addresses energy consumption, local food, conservation, waste,
the atmosphere, land use, transportation, economic development,
government, safety, and healthiness. Many elements of the Sus-
tainability Plan align with Imagine Oshkosh, but some of the more
directly applicable recommendations include:
◊Draft changes to the zoning ordinance to address community
gardens as permitted or conditional land uses in all zoning
districts.
◊Work with the Council to approve a terrace tree ordinance.
◊Create a collaborative inventory of existing vacant buildings,
promote adaptive reuse and establish working committee for
these items.
◊Place a high priority on completion of the Riverwalk.
◊Continue bicycle lane striping and installation of bike route
signs as recommended in the Bicycle and Pedestrian Circulation
Plan.
◊Continue to support the Oshkosh Farmers Market in downtown
locations, and work with management to expand areas for
stalls.
◊Continue to support food sales from stands and trucks within
current city, county and state regulations.
◊Make public access to the Fox Riverfront a high priority.
◊Continue to focus on revitalizing the downtown and central
city area with mixed uses, adaptive reuse and historic preser-
vation.
Imagine Oshkosh: Existing Conditions Report 55
Strategic Plan for 2015-2016 (2014)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The City’s Strategic Plan is a unified plan that focuses on five
strategic initiatives that will make Oshkosh one of Wiscon-
sin’s premier communities: supporting economic development,
strengthening neighborhoods, improving and maintain infrastruc-
ture, improving quality of life, and develop a high performing
government. Some of the recommendations of the plan that may
affect Imagine Oshkosh include:
◊Establish a revolving loan fund.
◊Rethink the role of BID(s) and/or associations in Downtown
development.
◊Streamline permitting, development plan review, and approval
processes.
◊Work with stakeholders to remove Buckstaff Building and de-
velop plans for re-use.
◊Work with Pioneer Island owners to remove code violations and
assist in any redevelopment plans.
◊Help move Jeld Wen project forward.
◊Create a Rental Registration and Inspection Program.
◊Aggressively pursue enforcement of code regulations pertaining
to property owners
◊Improve the character of Main Street
◊Sign and stripe bike lanes following the Bike and Pedestrian
Plan as approved and the budget allows.
◊Continue development of the South Shore riverwalk.
Economic Development Strategic Plan (2016)
Imagine Oshkosh Topics
Character & Sense of Place Activating
Living Getting Around
Working Partnering
Developing Property
The Plan seeks to make Oshkosh a thriving and sustainable com-
munity offering abundant opportunities for work and life. A core
component of the Plan is revitalizing the downtown, central city,
and Fox River corridor by eliminating blighting conditions and
addressing environmentally contaminated property. Key recom-
mendations that affect Imagine Oshkosh include:
◊Actively pursue acquiring sites for redevelopment that have
the potential to have a significant impact on the community if
redeveloped. This should be done through TIF monies or CDBG
funds.
◊Encourage BIDs to promote commercial districts within the
Center City.
◊Develop riverwalks along the riverfront with grants and TIF
monies.
◊Create a vision for waterfront development which includes
design guidelines and desired types of development.
Imagine Oshkosh: Existing Conditions Report56
59 3A - Designing & Planning the Center City
107 3B - Living in the Center City
137 3C - Working in the Center City
157 3D - Developing Property in the Center City
173 3E - Activating the Center City
183 3F - Getting Around in the Center City
203 3G - Governing & Partnering the Center City
CHAPTER 3
Analysis
Imagine Oshkosh: Existing Conditions Report58
Character & Sense of Place in the Center City
62 Existing Land Use
80 Built Form
85 Streetwall Assessment
88 Historic Preservation
94 Public Art
95 Building Design
96 Functional Subareas
CHAPTER 3A
ExistingLand Use Classifications
Existing land use provides an inventory of every parcel in the Cen-
ter City to identify how land is used within the study area, broken
into 17 distinct land use designations. Downtown has a diverse
mix of land uses, but the concentration of different uses varies
throughout the study area, reflecting that the Center City is not
one uniform downtown area but a collection of different districts
and neighborhoods.
Existing Land Use CompositionOshkosh, WI
Existing Land Use Classifications Acreage Percentage
Detached Residential 31.33 7.7%
Attached Residential 2.75 0.7%
Multi-Family 40.07 9.9%
Retail & Service 17.33 4.3%
Entertainment & Culture 11.75 2.9%
Hospitality 21.82 5.4%
Mixed Commercial 20.52 5.1%
Mixed-Use 21.82 5.4%
Office & Finance 27.81 6.9%
Automotive 4.53 1.1%
Industrial 49.45 12.2%
Urban Agriculture 1.19 0.3%
Community Facilities 47.88 11.8%
Parks & Open Spaces 22.16 5.5%
Rail & Utility 12.91 3.2%
Parking Lot 22.88 5.7%
Vacant Lot 48.18 11.9%
Imagine Oshkosh: Existing Conditions Report60
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Detached Residential
Attached Residential
Multi-Family Residential
General Commercial
Entertainment & Culture
Hospitality
Office & Finance
Automotive
Mixed Commercial
Mixed Use
Industrial
Community Facilities
Parks / Open Space
Urban Agriculture
Rail / Utilities
Parking Lot
Vacant Lot
NORTH 0 0.1 0.20.05
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Legend
EXISTINGLAND USE
Detached Residential
The Single Family Detached land use
includes stand-alone homes, often with
an accompanying detached garage.
These uses are found along lower densi-
ty stretches of the study area’s corri-
dors, such as Main Street, as well as in
adjacent neighborhoods. Single Family
Detached homes within the Center City
tend to be older and some possess his-
toric elements.
Within the study area, some single fam-
ily detached homes have transitioned
into commercial, office, or multi-family
uses (and are depicted as such on the
accompanying map), such as along
Church Avenue.
Attached Residential
Attached residential uses are individual
housing units attached horizontally with
separate entrances to each unit, such
as duplexes, rowhomes, and townho-
mes. Due to shared walls, they allow
for greater residential density than
detached units. An example includes the
MK Townhomes along Nebraska Street
between 8th and 9th Street.
Multi-Family
Multi-family residential uses contain
multiple housing units stacked vertically
and horizontally with a shared parking
lot for tenants. The style and scale of
multi-family ranges within the study
area, including both a converted single
family detached home with multiple
units for UW-Oshkosh students to newer,
multi-story apartment buildings such as
the Rivers or the Anthem apartments.
Stand-alone multi-family buildings tend
to be located outside of the core down-
town area, where rental or condo units
are a component of a mixed-use building.
Residential
Imagine Oshkosh: Existing Conditions Report62
Retail & Service
Retail & Service uses include business-
es that provide goods and services for
purchase. Typical uses include clothing
stores, niche retailers like a bike shop or
comic book store, beauty salon, barber-
shop, antique store, and other similar
uses. The character of the retail / service
uses changes throughout the study area.
Properties within the downtown core and
along Oregon Street tend to occupy older
historic buildings built to the property line
while those outside of these areas tend to
be more auto-oriented.
Entertainment & Culture
Entertainment & Culture uses provide en-
tertainment, culture, and leisure to patrons,
including restaurants, bars, taverns, art gal-
leries, theatres, bowling alleys, and more.
These uses represent some of the highest
profile commercial businesses in Oshkosh’s
Center City. Though found throughout the
study area, they tend to be mostly located
along Main and Oregon Streets.
Hospitality
The Hospitality land use includes the Best
Western Premier Waterfront Hotel, Pioneer
Inn (closed), Oshkosh Convention Center,
and Town Motel.
Commercial
Imagine Oshkosh: Existing Conditions Report 63
Mixed Commercial
Mixed commercial uses include multi-
ple distinct commercial uses, such as a
single structure with a blend of different
commercial tenants, such as a restau-
rant, office, and retail shop. An example
would be the City Center, which includes
offices, a bank, and a restaurant.
Mixed-Use
Mixed use parcels are structures that in-
clude multiple distinct uses, most com-
monly stacked vertically. The most com-
mon form of mixed use developments
are commercial spaces with residential
or office uses located on upper floors.
The majority of mixed use structures are
older commercial stock with a converted
residential space on the second floor,
although more contemporary develop-
ments such as 100 N. Main Street are
also mixed-use. While most mixed-use
buildings are located within the down-
town core, they can also be found along
Oregon Street and farther north on N.
Main Street.
Office & Finance
Office & Finance uses consist of
businesses that provide white-collar
employment in the Center City, includ-
ing professional firms, law firms, and
medical practitioners. The character and
scale of office and finance uses vary
widely, ranging from converted historic
structures such as the First National
Bank Building to auto-oriented banks
such as BMO Harris Bank with drive-
throughs.
Imagine Oshkosh: Existing Conditions Report64
Automotive
Automotive uses include auto repair,
maintenance, and supply businesses.
They are located on the fringes of the
study area.
Industrial
Industrial uses include both light and
heavy industry. Examples include manu-
facturing, heavy storage, printing, boat
motor testing, boat storage, and more.
Most industrial uses tend to be located
south of the Fox River, which historically
has been an industrial area for many
generations.
Urban Agriculture
Urban agriculture includes land that is be-
ing actively farmed and harvested for food.
Imagine Oshkosh: Existing Conditions Report 65
Community Facilities
The Community Facilities category
includes governmental uses, places of
worship, schools, and daycares. Exam-
ples include City Hall, Winnebago County
Courthouse, Oshkosh Public Library, and
the Oshkosh Police Department Head-
quarters. The structures housing these
uses often add great visual interest to
the downtown, including unique building
layouts, ornamental design, and visual
landmarks, such as spires.
Parks & Open Spaces
Parks include land that provides active
or passive recreational amenities, in-
tended to benefit the general public with
attractive outdoor spaces. Examples
include Opera House Square, Riverside
Park, and the Leach Amphitheatre.
Open space includes sites that provide
outdoor space but are not intended or
programmed for recreational use. Open
space is separate from vacant lots in
that the site has not been intended or
prepared for eventual development.
Rail & Utility
Rail includes the CN railroad right-of-
way and associated rail uses. Utility uses
include easements for overhead power
lines and associated utility uses.
Public / Semi-Public Others
Imagine Oshkosh: Existing Conditions Report66
Parking Lot
The parking lot land use designation
includes parcels whose predominant use
is either public or private parking. When
a parcel includes parking for a supporting
business or destination, that parcel is con-
sidered a component of that greater use.
Vacant Lot
Vacant property consists of sites that
currently contain no standing structure
or use. This can include sites that were
previously developed but the structure
was demolished or removed. Vacant land
is mostly concentrated along the water-
front and south shore areas.
Partially / Fully Vacant Building
Vacant buildings were first assigned
an overall use based upon the building
structure and past usage and then fur-
ther identified as either occupied, fully
vacant, or partially vacant. For example,
a closed restaurant would be labeled
first as Entertainment / Culture and
then assigned a second classification
of vacant. Residential units were not
assessed for vacancy given the difficulty
of accurately establishing occupancy
(particularly in multi-floor multi-family
buildings) and also given the expected
annual turnover of rental properties.
Imagine Oshkosh: Existing Conditions Report 67
Center City Vacancy
While vacancy remains a challenge, the size and scale of the
problem is manageable and relatively better than many center cit-
ies of Oshkosh’s size and characteristics. Within the Center City,
only 12.5% of parcels were vacant and only 2.3% of buildings were
fully vacant. Roughly one in ten buildings were 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.
For example, three of the Center City’s largest buildings have
vacancies, such as 217 N. Main Street, 404 N. Main Street (First
National Bank Building), and 111 N. Main Street (US Bank Building),
and several prominent sites are available for redevelopment such
as the Morgan Door site (currently storing Oshkosh Corporation
trucks), the closed Pioneer Inn, and the crumbling Buckstaff fac-
tory complex.
Both the Oshkosh Chamber of Commerce and the Downtown
Business Improvement District (BID) have resources and programs
in place to promote vacant properties within the Center City.
For example, the Downtown Business Improvement District (BID)
advertises vacant properties on their website as well as places at-
tractive “This Space is Your Opportunity” posters in the windows
of vacant commercial properties
Imagine Oshkosh Vacancy Snapshot
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: Existing Conditions Report68
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POPLAR AVE
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SCHOOL AVE
W SOUTH PARK AVE
W 1 5TH AVE
W 1 2TH AVE
W 6TH AVE
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W 8TH AVE
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Vacant Building
Partially Vacant Building
Vacant Parcel
NORTH 0 0.1 0.20.05
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VACANCY
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Center City Planning Area
Chicago’s Magnificent Mile
Key Planning Priorities for Imagine Oshkosh
This section highlights ten of the most important planning prior-
ities that will form the cornerstone of the Imagine Oshkosh. This
list is not all-inclusive, the numbering does not reflect rankings,
and many of these priorities relate to one another and are ex-
pounded upon in greater detail in other sections of this report.
The priorities were identified through a combination of communi-
ty outreach, fieldwork, best planning practices, and the profes-
sional recommendations of the consulting team.
Defining Distinctive Character Areas
Land usage, development intensity, architectural style, and
massing vary throughout the Center City area. While the entire
study area can be considered the City’s historic core, the Center
City cannot be assessed as one monolithic area. It is a large
study area, roughly twice the size (north to south) of Chicago’s
Magnificent Mile. The Center City is a quilt of different areas, the
sum of different districts and neighborhoods. For example, the
fabric along North Main changes dramatically crossing Parkway
Avenue, transitioning from a historic streetwall into auto-orient-
ed uses such as a Burger King. To this end, preliminary character
areas are established later in this chapter. While these areas may
function differently, Imagine Oshkosh will identify ways to stitch
them together into a collective whole.
Promoting Mixed-Use
Mixed-Use is a core component of any successful center city
or downtown area, combining ground floor activity and interest
with residential density to patronize local businesses and fill the
streets. At present, several buildings along North Main (including
both inside of the historic core as well as farther north) do not
fully utilize their mixed-use potential, with upper floors either va-
cant 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, and/or
the need for storage or office space for the tenant on the ground
floor. Several vacant buildings are also suitable for mixed-use
conversion, such as the 900 Block of South Main.
The City of Oshkosh does not permit mixed-use (ground floor
commercial with upper floor residential) by right within its zoning
code. Currently, it is a conditional use in commercial districts,
requiring the same level of scrutiny as uses that do not belong in a
downtown, such as drive-through restaurants or automobile repair
shop. For comparison, both Fond du Lac (Chapter 720, Article
VII, 720-50) and Appleton (Chapter 23, Article VI, Section 23-114)
permit residential units above other ground floor uses by right
within central business districts. The City has expressed interest in
changing this regulation as a component of a zoning code update.
Depending on a building’s location within the Center City, resi-
dential units may not be desired on the ground floor. Commercial
uses that engage the street may be the most appropriate.
Imagine Oshkosh: Existing Conditions Report70
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MERRITT AVE
NMAINST
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ALGO
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UNION AVE
POPLAR AVE
W 7TH AVE
PUBLIC ALLE
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SCHOOL AVE
W SOUTH PARK AVE
W 1 5TH AVE
W 1 2TH AVE
W 6TH AVE
W 1 4TH AVE
W 8TH AVE
W 1 1 TH AVE
W 9TH AVE
W 1 0TH AVE
E 9TH AVE
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E 8TH AVE
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NORTH 0 0.1 0.20.05
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MIXED-USE BUILDINGS:UPPER FLOOR USE
Establishing Critical Mass in Targeted Locations
Successful downtowns and center cities are activity hubs with an
integrated mixture of offices, residences, restaurants, entertain-
ment venues, outdoor spaces, recreation, shopping, and more.
This creates activity on the street such as people walking, biking,
dining al fresco, and hanging out in the park. Such bustle and
interaction is what draws people to live, work, and play in center
cities across the country and gives them their sense of place.
Establishing a critical mass of activity requires aligning multiple
public and private investments that can build on one another and
reinforce each other. If activity is too spread out, it dilutes the
investment and creates small pockets of activity that fail to add
up to something larger.
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 during weekends with
events/festivals such as shows at the Opera House, concerts at
Leach Amphitheatre, and the Oshkosh Farmers Market. The most
consistent activity center hub is along North Main Street between
High and Waugoo Avenues in the south to E. Parkway Avenue in
the north, but other activity nodes occur throughout the study
area such as along the waterfront and along Oregon Street.
A core component of Imagine Oshkosh will be to identify and
prioritize “critical mass areas” within the study area. These areas
are candidates for investment prioritization and can have a cat-
alytic impact on the Center City, expanding over time as econo-
mies of scale are achieved.
Imagine Oshkosh: Existing Conditions Report72
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Parkway Ave
7th Ave
5th Ave
9th Ave
11th Ave
South Park Ave
Washington Ave
Otter Ave
Vine A
v
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A
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Irving Ave
Melvin Ave
New York Ave
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FOX RIVER
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Central CityPlanning Area
University ofWisconsin-Oshkosh
Engaging the Fox River & Stitching Together North Side / South Side
The Fox River is one of the prominent and defining features of
the Central City area. Oshkosh has engaged its riverfront through
projects like the Leach Amphitheatre, the river walk, and multiple
parks, as well as through businesses like Dockside Tavern. Al-
though 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.
As the south side of the river redevelops, the Plan needs to identi-
fy strategies to ensure the riverfront, on both sides, becomes the
common gathering place that “seams” together the entire Central
City district, rather than acts as a hard edge that delineates a
separation between two different areas.
Balancing the University Presence
The University of Wisconsin - Oshkosh campus neighbors the
study area to the west, employing roughly 1,300 people and
educating 13,194 students annually. Although “off-campus,” the
western portion of the study area (roughly between Church Ave-
nue in the north, Jackson Avenue to the east, Pearl Avenue to the
south, and WI 44 to the west) caters to university students, with
fraternity and sorority housing, student housing, fast food, and
pizza delivery outlets.
The university is an important component of Center City Osh-
kosh, with its students living, working, dining, and recreating
within the greater Downtown area. However, it is critical that the
Center City maintain a balance between university orientation
and a broader demographic. The district should not redevelop to
the point where local businesses only cater to a “college town”
demographic.
Imagine Oshkosh: Existing Conditions Report 73
Stabilizing Surround-ing Residential Areas
The fringe of the study area and the surrounding blocks are tradi-
tional neighborhoods mostly comprised of single family detached
homes built between 1900 and 1945. These homes were built on
a grid system on lots typically 7,500 square feet in size. Relative
to the entire city’s housing stock, these homes tend to be older,
more likely to be renter-occupied, and with a high concentration
of code violations per block (particularly in the neighborhoods to
the northwest of the study area). The majority of homes are not a
component of a historic district, but some have historic attributes
that given them a unique presentation.
Imagine Oshkosh is not a plan for residential neighborhoods and
many of the surrounding neighborhoods have undergone, or will
undergo, their own neighborhood plans. However, the health and
vitality of these neighboring blocks are vital to the success of
Center City Oshkosh and will be recognized as such. 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 busi-
nesses; 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 as traveling into the center city.
Aspects which may be addressed include property maintenance,
owner occupancy, attractive landscaping, adequate lighting, his-
toric preservation, and more.
More detailed information on neighboring residential areas can be
found within Chapter 3c: Living in the Center City.
Imagine Oshkosh: Existing Conditions Report74
Capitalizing on a Once-In-100 Years Transition
The opportunity to redevelop several key sites along the banks
of the Fox River and Lake Winnebago, possibly in tandem, are a
once-in-a-lifetime opportunity for Oshkosh. Historically a wood-
working and manufacturing community, the banks of the river and
lake have been utilized mostly for heavy industry for more than
a 100 years. Redevelopment of formerly industrial properties into
residential or commercial uses has been occurring incrementally
for several decades, stretching back to the opening of the Park
Plaza Mall in July 1970 or the more recent residential development
along Marion Road and Pearl Avenue.
Imagine Oshkosh should establish a comprehensive vision and
redevelopment scenario for such vacant sites, including the Mor-
gan Door site (formerly a door manufacturer), Lamico Mobility
Products site (formerly a crutch manufacturer), Buckstaff Edwards
Company site (formerly a casket and furniture manufacturer), and
Pioneer Island (formerly a resort). Additionally, Imagine Oshkosh
may also recommend expanding redevelopment of vacant sites
into underutilized neighboring properties to create a larger rede-
velopment scenario.
While the preferred redevelopment program of these sites are
not known at this time, owing to the need for further communi-
ty outreach and analysis, there are several broad elements that
should underline whatever is ultimately proposed. These elements
were identified based upon sound planning principles, existing
community outreach, and the professional recommendation of
the consultant. Aggregately, future redevelopment should:
◊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 de-
mand and increase density in the center city;
◊Provide amenities or experiences that are currently lacking in the
center city and not detract from existing uses and businesses;
◊Include quality office space that could support new office
tenants and/or accommodate expansion of existing growing
businesses already within the center city; and
◊Have an engaging relationship with the waterfront, including
open spaces and attractive visuals from the water.
Redevelopment should be the highest quality possible and with
the maximum community benefit. Redevelopment opportunities
such as these do not come often – and whatever is ultimately
developed will remain standing for generations and it is integral
to “get it right.”
More detailed information on waterfront redevelopment and key
catalyst sites can be found within Chapter 3e: Developing Proper-
ty in the Center City.
The transition of the waterfront from industrial to commercial and resi-
dential has been underway for some time, but the current opportunity to
reshape so many sizeable properties along the waterfront in unprecedent-
ed in recent history.
Redevelopment of the Buckstaff Company site, which operated for 161
years along S. Main, is one opportunity to reimagine the future of Osh-
kosh’s Center City.
Imagine Oshkosh: Existing Conditions Report 75
Increasing Residential Density
A residential population provides a consumer base for Center City
businesses and leads to greater activity on the street, particularly in
the early mornings and evenings when the “9-5 workforce” is not
present. Center City Oshkosh could support a greater level of resi-
dential density, including new “ground-up” construction on vacant
sites or parking lots, the conversion of vacant/underutilized upper
floors in existing buildings into apartments or condos, adaptive re-
use of historic structures for multi-family units, and reinvesting in
single family detached homes in neighboring blocks. The type, style,
scale, and intensity of residential development should vary by char-
acter area, however, the underlying approach should be to increase
the number of residents living in the Center City.
More detailed information on residential density and housing
development can be found within Chapter 3c: Living in the Center
City and Chapter 3e: Developing Property in the Center City.
Attracting 21st Century Jobs
A “9-5 workforce” forms the backbone of any downtown or
center city, with businesses not only paying taxes but also stim-
ulating other retail, residential, hospitality, and entertainment
spending. For example, the International Council of Shopping Cen-
ters (ICSC) estimates the average weekly expenditure at stores
and restaurants in close proximity to work at $129 per office
worker (this includes buying grocery items and larger ticket items
at retail stores).
Over the past decade, employers across the country have begun
preferring downtown offices over suburban or interstate oriented
office parks. This is due to the need to attract and retain young
talent as well as improve both formal and informal collaboration
(“happy accidents”) integral to many 21st century white collar
businesses. Local examples include Dealersocket and 4Imprint.
(Continued on the next page)
The addition of The Rivers Senior Living and The Anthem on the north
shore of the waterfront have revitalized formerly vacant areas and added
residential density.
The usage of upper floors for residential living combined with ground
floor commercial activity is a cornerstone of any successful downtown.
Imagine Oshkosh: Existing Conditions Report76
In many aspects, Center City Oshkosh is well-poised to capitalize
on this trend, with a vibrant dining and bar scene, properties avail-
able for speculative or to-suit redevelopment, recreational ameni-
ties, proximity to University of Wisconsin-Oshkosh, a special sense
of place, and more. However, several employers and stakeholders
identified a limited supply of quality office space, with much of the
existing product either (a) occupied or (b) without the floorplans,
parking, and/or amenities necessary for utilization.
A key component of Imagine Oshkosh should be ensuring that the
Center City is a competitive and desirable location for the recruit-
ment and expansion of white collar jobs.
Preserving History & A Sense of Place
In order to be successful, center cities require the coordination
and combination of several components working together to
create a unique sense of place. A unique sense of place is critical
to growing a population, attracting and retaining businesses,
reducing crime, generating new tax revenue, improving public
health and civic engagement, and enhancing arts, entertainment,
and recreation. Key elements to a successful sense of place
include historic preservation of landmark buildings, the utilization
of exciting public art, pedestrian orientation, a vibrant mixture of
uses and shops, and special events unique to the center city.
Imagine Oshkosh: Existing Conditions Report 77
Built Form
The built form of a downtown or center city describes the relationship of struc-
tures to one another, comparing size, style, and proximity. Traditional downtowns
or “main street” areas feature a built form based on mass, density, and the cre-
ation of a continuous “street wall.” Inline buildings, with little to no front and side
yard setbacks are a common characteristic, creating compact, walkable neigh-
borhoods. These buildings are built right up to the sidewalk, establishing a street
wall of side-by-side united structures. This built form provides a classic pedestrian
environment unique to city centers.
Imagine Oshkosh: Existing Conditions Report78
Traditional Storefronts
In the past, most of Center City Oshkosh had a traditional built
form, with blocks of dense masonry commercial and industri-
al structures. This was a function of transportation limitations
at the time, which required close proximity between uses and
fostered walkability. Over the years, many historic buildings have
been demolished to accommodate parking lots or new devel-
opments more oriented to the automobile, but several blocks
remain largely intact.
N. Main Street, between Algoma Boulevard/Washington Avenue
and Parkway Avenue is one example of traditional built form.
These blocks provide a pedestrian oriented experience that is en-
joyable and inherently walkable. Recent national trends have sup-
ported a return to these kinds of shopping experiences, preferring
“park once” shopping districts with patio dining, local shops, and
entertainment in a lively atmosphere. This built form is desirable
in many districts within the Imagine Oshkosh study area.
Imagine Oshkosh: Existing Conditions Report 79
Auto-Oriented
While traditional built form is found along portions of N. Main
Street, S. Main Street, and Oregon Street – and fragments of it
remain in other places, many segments of the study area have
become auto-oriented. The presence of visible parking lots tells
users that the intention is for them to visit by car, encouraging
automobile use and perpetuating the expectation that parking
should be located immediately outside a store or destination.
The intensity of auto-orientation varies throughout the study
area, from fully auto-oriented uses with surface parking abut-
ting the roadway and setback buildings (e.g. the Burger King at
Parkway Avenue & N. Main) to somewhat auto-oriented buildings
with parking accessible in the rear or side but may be built to
the property line (e.g. Lara’s Tortilla Flats). In the latter cases, it
is clear that traditional storefronts have been coupled with the
teardown of a neighboring traditional storefront to accommodate
parking.
Other examples of auto-oriented built form include the City
Centre complex (formerly Park Plaza Mall); the block bounded by
State Street, Otter Avenue, Ceape Avenue, and Court Street; and
the Dollar Tree along N. Main Street.
Imagine Oshkosh: Existing Conditions Report80
Civic/Institutional
Center City Oshkosh features a variety of civic and institutional
uses, including City Hall, Police Department, Winnebago County
Courthouse, Oshkosh Public Library, and Oshkosh Convention
Center. Some of these uses are positioned on large sites with
considerable parking. This, combined with the siting of some on
“super blocks,” can discourage walkability while also creating
self-contained developments that have little interaction with the
surrounding area. A compact built form is ideal, but larger campus
style developments can provide relief from the urban environment
if designed appropriately, within large lawns, parks, and plazas.
Imagine Oshkosh: Existing Conditions Report 81
Detached Dwellings
The areas on the fringe of the study area, as well as surround-
ing neighborhoods, largely featuring detached dwellings. As the
Center City has grown, residential blocks have converted to
commercial or multi-family uses. This encroachment has also
created pockets of detached dwellings in commercial areas,
some of which have been converted to commercial uses (e.g. the
Edward Jones investment office on Church Avenue near City Hall)
while some remain residential (e.g. along the west side of N. Main
Street between New York Avenue and Prospect Avenue). Single
family uses along main arteries may need to be repositioned for
commercial uses over time while those within neighborhoods
should receive reinvestment.
Imagine Oshkosh: Existing Conditions Report82
Streetwall Assessment
A 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 special
sense of place and intimacy that are an important elements 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, plant-
ings, public art, and more.
Streetwalls can very 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. In these areas, parking lot landscaping that aligns
with the building setbacks serve to link discontinuous buildings
and maintain the street wall.
Imagine Oshkosh: Existing Conditions Report 83
Assessment
The accompanying “Streetwall Assessment Map” depicts existing building and landscaping streetwalls,
as well as locations without any streetwall. Not surprisingly, the Central Business District area and
the Oregon Street corridor have the most intact streetwall, mostly formed by zero-setback mixed-
use buildings. The areas lacking streetwall include the angular superblocks to the east of the CBD, the
northern portion of N. Main Street, and many of the east-west avenues along the South Shore portion
of the study area.
Mixed Use Streetwall. This mixed-use streetwall, with no setback, along N.
Main creates visual interest and an intimate sense of enclosure.
Landscaping Streetwall. “The alignment of shrubbery and pedestrian fur-
niture against the sidewalk creates an informal streetwall mimicking the
footprint building and helping to fill a gap between two buildings.”
Residential Streetwall. While a front yard forms a setback between the
sidewalk and home, the regular rhythm of detached dwellings creates a
visual streetwall.
Streetwall Gap. This surface parking lot, with no structure or landscaping,
is a gap in the visual streetwall along N. Main.
Imagine Oshkosh: Existing Conditions Report84
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STREETWALLASSESSMENT
Historic Preservation
Center City Oshkosh 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 special
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 N. Main Street.
Existing Protections
The Center City contains two historic districts on the National
Register: Irving-Church Historic District and the North Main Historic
District. Additionally, some other Center City buildings are also on
the register as individual properties, such as the Daily Northwest-
ern 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 often provide the toughest protection of historic
properties, regulating alteration, renovation, improvement, dem-
olition, 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 reports 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).
Elements of the Downtown Overlay District (a zoning overlay
covering roughly along North Main and Market Street from High
Avenue/Waugoo Avenue to Parkway Avenue) help preserve the
historic character of N. Main Street through building design stan-
dards. These regulations – including regarding building entrances,
frontage, fenestration, materials, and more - apply to new build-
ing construction, additions, and façade renovations. The overlay
district does not include any protections for demolition.
Imagine Oshkosh: Existing Conditions Report86
National Register Properties (Federal)
Landmarks (Local) in Oshkosh
Downtown Overlay District (Local)
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HISTORICDISTRICT & LANDMARKS
Opportunities for Consideration
Given Oshkosh’s rich history, there are several key issues and op-
portunities regarding historic preservation in the Center City. Pos-
sible issues for Imagine Oshkosh to consider are detailed below.
◊Working with property owners to place more Center City
buildings on the National Register of Historic Places. There are
many buildings within the study area that are not listed on the
National Register but may be eligible. As noted earlier, there are
many benefits to being on the register.
◊Landmarking Center City buildings under the Historic Preserva-
tion Ordinance. At present, any of Oshkosh’s great Center City
buildings could be demolished under the standard demolition
process. This is because they are not protected under the City’s
Historic Preservation Ordinance.
◊Encouraging reinvestment and re-use of historic buildings. This
could include changes to city policy to make reinvestment easi-
er, expanded availability of financing tools, technical assistance
with the conversion process, assistance with grant applica-
tions, complimentary public right-of-way improvements, and
more. Recent reinvestment projects in historic buildings include
Dealersocket (531 N. Main Street), Bar 430 (430 N. Main Street),
and Ski’s Meat Market (502 N. Main Street). While not historic
at this time, the adaptive re-use of the Park Plaza Mall into the
mixed-use City Centre is a successful example of re-purposing
an older building for a new era.
Imagine Oshkosh: Existing Conditions Report88
◊Improving and enhancing historic facades. Some historic fa-
cades within the Center City area have been covered up, signifi-
cantly altered, or fallen into disrepair. Matching grant funding
up to $1,000 is currently offered by the Downtown Business
Improvement District, but properties outside of the BID are not
eligible. Opportunities may exist to expand such programming
both financially as well as geographically.
◊Expanding design guidelines into appropriate areas or establish-
ing new guidelines for these areas. Currently, properties within
the Downtown Overlay District are subject to design guide-
lines to ensure that the character and aesthetic are preserved
over time, even as new development occurs. However, these
guidelines do not apply to other Center City areas with similar
character, such as Oregon Avenue or S. Main Street.
◊Utilizing pieces of older buildings or infrastructure for creative
re-use. When demolition or replacement of older structures
occurs, elements of the structure could be re-used to show a
connection to the past and cultivate sense of place. For exam-
ple, if the CN rail bridge was to be replaced, the existing bridge
could be repurposed as a bike/pedestrian crossing; another
example would be to preserve elements of the former Buckstaff
site (to be demolished) for usage in a public park or plaza, simi-
lar to Seattle’s Gas Works Park.
◊Expanding signage that celebrates Oshkosh’s history. Existing sig-
nage includes informational signage along the banks of the Fox
River explaining Riverside Park, Oshkosh’s Lakes and Rivers, and
the Chicago/Northwestern Railway Bridge. There may be opportu-
nities to expand historic signage throughout the study area.
Imagine Oshkosh: Existing Conditions Report 89
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.
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 Preser-
vation Ordinances.
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 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.”
Imagine Oshkosh: Existing Conditions Report90
This N. Main bar is one example of a historic property that could benefit
from a façade improvement returning the exterior to its historic character.
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.
Informational signage about Oshkosh history, such as this sign explaining
the history of Oshkosh’s rail bridge, engages pedestrians and inspires
community pride.
Decorative elements such as this mosaic tile along N. Main Street should
be preserved whenever possible.
Imagine Oshkosh: Existing Conditions Report 91
Public Art
The benefits of public art are well documented. It is said that
public art can develop a sense of community pride, stimulate so-
cial interaction, encourage healthier life styles, reduce vandalism
and cost, promote ecology, nurture and strengthen grass roots
cultures, expand learning and awareness, heal the social fabric,
explore risk and make lateral connections between the various
people and agencies responsible for the public art.
Center City Oshkosh has relatively limited public art. Existing
public art includes including the Opera House Square sundial and
a colorful mural of community history across from the Opera
House. There are also several “ghost murals” which are faded
advertisements from past commercial or industrial which add a
unique flair to downtown, such as the faded Bull Durham adver-
tisement depicted in the accompanying photograph.
One previously successful public art campaign undertaken in Os-
hkosh was Pride of Oshkosh in 2004. The University of Wisconsin
Oshkosh, Paine Art Center and Gardens, Oshkosh Area Commu-
nity Foundation, Oshkosh Chamber of Commerce, and Oshkosh
Northwestern partnered together to fund the placement of thirty
three life-sized lion sculptures from around the community. The
lions were modeled after “Harris,” one of the bronze lions guard-
ing the front entrance of the Oshkosh Public Library. The project
was inspired by Chicago’s successful Cows on Parade. The lions
were ultimately auctioned off, with the proceeds benefiting the
Oshkosh Public Library.
Imagine Oshkosh should consider the addition of public art in Cen-
ter City Oshkosh, including possible examples and locations that
could benefit. Examples of successful programs in other com-
munities that could be evaluated include: providing public art in
municipal capital improvement projects (Ann Arbor, MI), requiring
a “percent for art” requirement for new development (Oakland,
CA), and hosting public art competitions such as Art Prize (Grand
Rapids, MI).
This colorful mural across from the Oshkosh Opera House is an example
of great public art
Ghost murals, such as this one on the south wall of Terry’s Bar at 688 N.
Main Street, take a viewer back to a different era and add character to an
area
Imagine Oshkosh: Existing Conditions Report92
Building & Site Design
The design of individual buildings in the Center City are fundamental to its aggregate character and environ-
ment. Imagine Oshkosh may examine and suggest standards or guidelines for desired building placements,
scale, bulk and proportion, style, materials, doors and entrances, windows, rooflines, lighting, landscaping,
and more. It is expected that the type and intensity of standards/guidelines may vary by neighborhood/dis-
trict. This section within the Existing Conditions Report depicts some general design and visual texture issues,
both good and bad, within the Center City for further exploration within the planning process.
Windows. Display windows on the
ground floor of commercial buildings
are a distinguishing feature of many
buildings. The windows of Ski’s Meat
Market and Winnebago Bicycle at
502 N. Main Street, for example, en-
gage the pedestrian through colorful
displays of food and bicycles.
Colors. From the south shore of the
Fox River looking north, the Central
Business District can sometimes
appear visually bland, dominated by
beiges and browns.
Rooflines. Commercial rooflines
within Center City Oshkosh are typi-
cally flat, sometimes with parapets.
The rooflines of some buildings are
edged with accent masonry. Many
rooflines could be improved upon to
create greater visual interest.
Illumination. The usage of different
colored lights at night to illuminate
bridges and buildings, such as the
Exclusive Company, gives the Center
City character and communicates
excitement.
Landscaping. Landscaping soft-
ens the street edge and plays an
important role by integrating color
and seasonal interest into the Center
City. Many parking lots, such as
this one along N. Main Street, lack
landscaping and screening.
Signage. The type, location, and
appearance of building signage helps
communicate the character and
profile of the Center City. The quality
of signage varies throughout the
study area.
Materials. The use of appropriate build-
ing materials such as masonry is key to
compatible rehabilitation and new con-
struction, as well as communicating
quality and an attractive aesthetic. The
usage of metal siding on businesses,
for example, should likely be prohibited
on new construction within most, if
not all of, the Center City.
Orientation. Buildings such as the
Chase Bank building are oriented,
both spatially and visually, away
from the pedestrian. Dark glass
obscures pedestrian interest and the
setback angular placement of the
front door reduces interaction with
the street.
Imagine Oshkosh: Existing Conditions Report 93
Functional Subareas
As noted earlier, Oshkosh’s Center City is a collection of neighborhoods located in the historic core of
Oshkosh. While the entire study area can be considered the City’s historic core, it cannot be assessed
as one monolithic area. Land usage, development intensity, architectural style, desired usage, and
massing vary throughout the Center City.
To that end, this section establishes preliminary sub-areas (or “neighborhoods” or “districts”) to help
guide the planning process and make the Center City’s large geography more manageable. Sub-areas
were identified based upon existing uses, desired future uses (note: this is preliminary), built forms,
physical boundaries, character, market potential, and more. Moving forward, Imagine Oshkosh will
provide further detail regarding each subarea, as well as recommendations for addressing issues within
and between different areas. The boundaries of each sub-area may adjust as the planning process
continues.
Imagine Oshkosh: Existing Conditions Report94
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Downtown Core
Downtown Outer Core
Marion Road Waterfront
North Main Commercial
Corridor
Northwest Transition
Oregon Street
South Shore Central
South Shore East
South Shore West
Supporting Neighborhoods
NORTH 0 0.1 0.20.05
M il es
Legend
FUNCTIONALSUBAREAS
North Main Commercial Corridor
The North Main Commercial Corridor Subarea is a largely au-
to-oriented corridor along N. Main Street from Parkway Avenue in
the south to New York Avenue in the north. A clear demarcation
between this sub-area and the Core Downtown Subarea to the
south exists at the intersection of Parkway Avenue and N. Main
Street, where historic properties with no setback transition to a
sports bar, fast food restaurant, and appliance store with surface
parking. Lot depth varies along the corridor, with some parcels
extending the depth of the entire block while others are backed
by single family detached homes. While the city’s streetscaping
project has extended into this subarea and some properties have
a historic design, surface parking lots and pole signs line the corri-
dor, reflecting an auto-centric orientation.
Imagine Oshkosh: Existing Conditions Report96
Downtown Core
The Downtown Core Subarea is the entertainment, cultural, and
social heart of the city. 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, such as
the Grand Opera House or The Roxy. Buildings 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. Bump-outs, streetscaping, and pedestrian amenities
have reduced the right-of-way to encourage slow speeds and
facilitate pedestrian mobility. Opera House Square provides a central
green space for the community, particularly during warmer months.
On the whole, the Downtown Core is fairly successful, and the issue
challenge remains in taking it “good to great.”
Imagine Oshkosh: Existing Conditions Report 97
Downtown Outer Core
The Outer Core Subarea exhibits characteristics of the Downtown
Core, but currently lacks sufficient development intensity and a
compact built form. Although there are some large employers
and elements of a “downtown feel,” surface parking, setbacks,
superblocks, and lower density development erode this area’s
pedestrian friendly atmosphere. Some of the key land uses within
the Outer Core include the City Centre complex, City Hall, Police
Department, and Best Western Premier Waterfront Hotel and
Convention Center. It is expected that as the Downtown Core
continues to energize, “spill-over” activity and investment will
move into the neighboring blocks of the Outer Core.
Imagine Oshkosh: Existing Conditions Report98
Marion Road Waterfront
The Marion Road Waterfront Subarea is a mostly residential dis-
trict along Marion Road and Pearl Road on the north shore of the
Fox River. While in the midst of an urban environment, the built
form of this area is somewhat suburban, with buildings resem-
bling outlot developments. Buildings are set back from the road
with large visible surface parking lots along the right-of-way, due
to the fact frontage was moved up to the Riverwalk. Formerly an
industrial area, it has undergone significant redevelopment with
the addition of multi-family buildings such as Rivers Senior Living,
and The Anthem, Morgan Crossing. Commercial frontage forms
the western and eastern boundaries along Wisconsin Street and
Jackson Street. Two industrial properties remain to this day in the
midst of this mostly residential area: the active Mercury Marine
motor boat testing facility and the vacant Lamico factory. Both
uses should likely be transitioned out of this area.
A beautiful riverwalk forms the southern boundary of the study
area, although other pedestrian connections such as trails
between developments are lacking. Active overhead utilities cut
through the study area between the Mercury Marine facility and
the Rivers Senior Living.
Imagine Oshkosh: Existing Conditions Report 99
Northwest Transition
The Northwest Transition Subarea serves as a transition area
between the higher density Downtown area and the distinct
University of Wisconsin-Oshkosh campus area. It contains a blend
of uses. Auto-oriented commercial uses form the eastern and
western boundaries along Jackson Road 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 sub-area. Compared to the Marion Road Water-
front, it has much more of a “traditional neighborhood” feel even
though many properties are rentals.
Generally, uses within the sub-area are tailored towards college
students, with single family homes converted into rentals, frater-
nity houses, sorority houses, fast food such as Hardees, and pizza
chains as Papa John’s and Toppers.
Imagine Oshkosh: Existing Conditions Report100
Tax Incremental Financing Application Morgan District Redevelopment City of Oshkosh
Project Sponsor The Morgan District, LLC 601 Oregon Street Oshkosh, WI 54902
Submitted December 2015
South Shore West
Unlike other subareas which are more constrained by existing
development, the South Shore West Waterfront Subarea is a blank
slate. The subarea is defined by the vacant 27 acres Morgan Door
site, which occupies over 1,500 linear feet of waterfront along
the Fox River. Currently it is being used by Oshkosh Corporation
for vehicle storage, however, plans are underway to redevelop
the site into a mixed-use district comprised of a grocery store,
commercial uses, multi-family units, condominiums, and town-
homes (Morgan District). The road network within this subarea
is minimal, particularly within the Morgan Door site, and redevel-
opment represents an opportunity to establish a more complete
network as well as extend the riverwalk.
The western portion of the sub-area, along WI 44, contains office
park and auto-oriented commercial uses. Bordering the sub-area
are several blocks of single family detached homes which may
face redevelopment pressure as critical mass is achieved within
the area.
Imagine Oshkosh: Existing Conditions Report 101
Oregon Street
The Oregon Street Subarea is a multi-block neighborhood com-
mercial district that almost functions like a “mini-downtown.” It
is largely defined by commercial or mixed-use properties built to
the property line, some with historic characteristics. The upper
floors of some properties have been converted to residential
units. Uses along the corridor are mostly local businesses cater-
ing to Oshkosh residents and on-street parking or rear parking
supports patrons arriving by automobile. Over the years, some
traditionally-designed properties have been demolished and re-
placed with surface parking lots (e.g. SE corner of Oregon Street
& 9th Avenue) or more auto-oriented designs (e.g. American Auto
Sales), however, the streetwall remains largely intact.
Single family residential uses can be found along the southern
part of the Oregon Street corridor as well as behind some of the
commercial uses. Vacancy is a fairly acute within some of the
northern blocks. Relative to Downtown Oshkosh, sidewalks are
narrow and the streetscape is fairly plain, however, decorative
and pedestrian oriented streetlights add charm.
Imagine Oshkosh: Existing Conditions Report102
South Shore Central
The South Shore Central Subarea is sandwiched between the
South Shore West and South Shore East Subareas. It contains a
mixture of light industrial and commercial uses and vacant prop-
erties, which give the district a funky “warehouse district” vibe.
This subarea represents an opportunity to harken back to Saw-
dust City and preserve a more industrial feel while accommodat-
ing commercial and residential uses. Unlike the other two South
Shore subareas, the South Shore Central subarea is not expected
to be wholesale redeveloped. It does have, however, many oppor-
tunities for targeted infill development, such as the large vacant
city-owned lot along S. Main between 7th and 8th Avenues. The
district also has many architecturally rich buildings suitable for
adaptive re-use, such as four story Miles Kimball building, the
900 Block of Main Street, The Granary at 50 W. 6th Avenue, or
the Brooklyn #4 Hook and Ladder Firehouse. It is expected that
activity in this area will increase as the other two South Shore
neighborhoods are redeveloped.
Imagine Oshkosh: Existing Conditions Report 103
South Shore East
The South Shore East Subarea is a currently an industrial area
intermixed with some auto-oriented commercial and single family
detached uses. Two of the most notable sites within the subarea
are vacant: Pioneer Island and the Buckstaff Company site. South
Shore East’s existing industrial character is out-of-place with its
surrounding districts and existing uses are not the highest and
best use of the land.
As with the South Shore West subarea, this subarea is largely
a blank slate and parcel consolidation will facilitate wholesale
redevelopment into an exciting mixed-use district at the foot of
Downtown Oshkosh. However, unlike the South Shore West Sub-
area, properties have not been cleared and industrial businesses
will need to be voluntarily relocated to designated industrial
parks. To the extent possible, buildings with historic characteris-
tics should be integrated into the new development scenario or
moved to a new location.
This subarea also includes several light industrial properties on
the north shore of the riverfront, adjacent to the Downtown
Outer Core subarea and across from Pioneer Island. These prop-
erties have similar conditions to the S. Main Street properties and
similar redevelopment is expected.
Imagine Oshkosh: Existing Conditions Report104
Supporting Neighborhoods
The Supporting Neighborhoods Subarea consists of residential
blocks located alongside or in the midst of mostly commercial
or mixed-use districts. While neighborhood character might
vary slightly by location, generally these blocks are comprised
of single family detached homes, with some townhomes and
multi-family properties. Depending on the level of activity and
investment within neighboring districts, these areas might see
reinvestment as residential properties or redevelopment as part
of a larger project. One exception would be the Irving Church
neighborhood, which is historic and should be preserved. Key
challenges include high rental occupancy, poor property mainte-
nance, and public safety concerns.
Imagine Oshkosh: Existing Conditions Report 105
Living in theCenter City
112 Center City Population
116 Center City Housing
130 Establishing Critical Mass:
Targeted Residential Development
132 Providing Day-to-Day Amenities
133 Stabilizing Surrounding Neighborhoods
CHAPTER 3B
A robust residential population is critical for any successful down-
town or center city. It provides a consumer base for Center City
businesses and leads to greater activity on the street, particularly
on weekends and in the evenings when the “9-5” workforce is not
present. A key component of Imagine Oshkosh will be to increase
residential density in the city core by identifying housing needs
and quality of life issues that can attract new residents.
This section details key information and issues relating to living in
the Center City, including:
◊Center City Population, detailing who currently lives in the Cen-
ter City as well as key demographic attributes of the population;
◊Center City Housing, providing information on what types of
housing exist where within the Center City, as well as market
trends, housing attributes, and unmet demand;
◊Quality of Life, detailing key quality of life issues within the
Center City that affect living, including services, parks, and
amenities; and
◊Surrounding Neighborhoods, providing information on the single
family neighborhoods that surround Center City Oshkosh and
their relevance to the planning process.
Imagine Oshkosh: Existing Conditions Report108
Data Sources
Data for this chapter were acquired from a variety of sources,
including the 2010-2014 American Community Survey (ACS), the
2010 US Census, Oshkosh Business Improvement District, Oshkosh
Chamber of Commerce, Zillow, Trulia, and ESRI Business Analyst,
a nationally recognized provider of business and market data.
The figures presented in this chapter are the most recent and
reliable available, as of the drafting of this report. The majority of
data cited in this study relate to the following sources:
◊Figures from 2010 reflect data provided by the U.S. Census.
◊2010-2014 American Community Survey data reflects a five
year estimated average based on surveys conducted by the U.S.
Census Bureau during that time period.
◊Data for years 2016 and 2021 are estimates and projections
developed by ESRI.
Imagine Oshkosh: Existing Conditions Report 109
This section provides an overview of who currently lives in the
Center City as well as key demographic attributes for this popula-
tion. Data is also provided for surrounding areas having an influ-
ence on the Center City: a five-minute drive time (“primary market
area” or PMA) and fifteen-minute drive time (“secondary market
area” or SMA) from Opera House Square. This allows for compar-
isons between the Center City and the “greater area,” as well as
providing data for assessing retail potential later in the report.
Population Levels
ESRI estimates that 2,784 people live in Center City Oshkosh in
2016. The Center City population is also growing; by 2021, the
population is estimated to increase to 2,874. It is expected that
the population will grow much more significantly if the Morgan
District is developed as proposed. This trend mirrors the five-min-
ute and fifteen-minute drive times, which are both encountering
slight population increases.
With an estimated city-wide population of 66,500 in 2016, 4.2%
of Oshkosh residents live in the Center City. This is the highest
percentage of any center city/downtown in the region, compared
to Fond du Lac (4.1%), Green Bay (4.0%), Appleton (3.7%), and
Neenah (3.5%).
General Profile
Some of the key attributes of Center City residents include:
◊They are relatively young. In 2016, the median age of a Center
City resident is 25.4 years of age. This is slightly younger than
the PMA (26.8 years) and much younger than the SMA (37.1
years) and national median (38.0 years). An examination of
population distribution by age shows that this is likely due to
the concentration of University of Wisconsin Oshkosh students
– the 20-24 year old cohort comprises 34.1% of the population
(compared to only 21.3% in the PMA and 11.6% in the SMA). The
population is expected to age slightly over the next five years,
but remain young.
◊They are mostly white. In 2016, the U.S. Census showed that
88.6% of the Center City population is White, followed by 3.7%
Black, 3.3% Asian, 2.9% Multiracial, 0.8% Native American. This
is relatively on par with both the PMA and SMA, where the
white population comprises 89.5% and 89.9% of the population,
respectively.
◊Household incomes are low. In 2016, the median household
income for a Center City resident is $21,101, much lower than
the PMA ($33,607) and the SMA ($45,916). The currently low
income level is likely due to the presence of university students
and seniors, as well as housing authority properties at 528 N.
Main Street (Raulf Place) and 100 Court Street (Court Tower).
Incomes for both the Center City and PMA are projected to
decline slightly over the next five years, while the SMA is ex-
pected to see rising incomes.
◊Roughly one in five residents have a bachelor’s degree or high-
er. In 2016, it is estimated than 18.5% of Center City residents
have a bachelor’s degree or higher. This is lower than both the
PMA (22.4%) and the SMA (28.1%), likely a reflection that there
is also a disproportionate percentage of the population that is
in the process of obtaining a degree.
Center City Population
Imagine Oshkosh: Existing Conditions Report110
FOND DU LAC
WINNEBAGO
41
41
26
44
91
21
76
45
45
45
LAKEWINNEBAGO
LAKE BUTTEDES MORTS
CENTRAL CITYPLANNING AREA
CITY OFOSHKOSH
Retail Primary Market Area15 Minutes Drive
Retail Primary Market Area5 Minutes Drive
Population / RetailMarket Area
Imagine Oshkosh: Existing Conditions Report 111
Takeaways
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 the population
projections issued by ESRI. New residential growth will also lead
to more consumer spending in the Center City at bars, restau-
rants, dry cleaners, delis, and more, and increase the Center City’s
competitiveness for other forms of investment and resources.
Compared to the PMA and SMA, Center City Oshkosh residents are
much younger and less affluent. This is a not necessarily unique
attribute, for many cities have similar demographics as a result of
outward growth and suburbanization. The opportunity for Imagine
Oshkosh will be identify the tools necessary to diversify – both
socially and economically - the Center City population. While fam-
ilies may prefer single family detached homes in traditional neigh-
borhoods, there may be opportunities to increase the population
of young professionals, professional households without children,
single mid-career professionals, and empty nesters. Additionally,
single family neighborhoods near the Center City could be attrac-
tive destinations for young families.
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: Existing Conditions Report112
Demographics - Supporting Facts & Figures
29.3%
28.1%
22.4%
18.5%
0%5%10%15%20%25%30%35%
USA
SMA
PMA
Study Area
Percentage of Population (25 yrs.+) with a Bachelors
Degree or Higher (2016)
Source: ESRI;Houseal Lavigne Associates
Study Area
PMA
SMA
Racial Composition (2016)
Center City Oshkosh, Primary Market Area, Secondary Market Area
White Black Asian Other
Source: ESRI Business Analyst;Houseal Lavigne Associates
0%
5%
10%
15%
20%
25%
30%
35%
40%
0 - 4 5 - 9 10 - 14 15 - 19 20 - 24 25 - 34 35 - 44 45 - 54 55 - 64 65 - 74 75 - 84 85+Years
Age Distribution (2016)
Center City Oshkosh, Primary Market Area, Secondary Market Area
Study Area PMA SMA
Source: U.S.Census Bureau;ESRI Business Analyst; Houseal Lavigne Associates
4.2%
3.7%
4.1%4.0%
3.5%
0.0%
0.5%
1.0%
1.5%
2.0%
2.5%
3.0%
3.5%
4.0%
4.5%
Oshkosh Appleton Fond du Lac Green Bay Neenah
Center City/Downtown Share of Population
Oshkosh & Peer Cities
% of City Residents Living Downtown
Source: U.S. Census On the Map; Houseal Lavigne Associates
0%
5%
10%
15%
20%
25%
30%
35%
40%
<$15,000 $15,000 -
$24,999
$25,000 -
$34,999
$35,000 -
$49,999
$50,000 -
$74,999
$75,000 -
$99,999
$100,000 -
$149,999
$150,000 -
$199,999
$200,000+
Income Distribution (2016)
Center City Oshkosh, Primary Market Area, Secondary Market Area
Center City PMA SMA
Source: U.S. Census; ESRI Business Analyst; Houseal Lavigne Associates
Imagine Oshkosh: Existing Conditions Report 113
This section assesses the Center City housing market, includ-
ing the existing supply, type, tenure, age, development activity,
rental pricing, sales volume, sales pricing, and more. This section
concludes with a residential demand analysis that outlines the
projected demand for housing within Oshkosh’s Center City.
Just as driving distance has a significant influence in determining
the market for downtown businesses, the quality and character
of the housing stock in Oshkosh and neighboring communities
will influence a given household’s decision to purchase or rent
a home in Center City Oshkosh. For purposes of this study, the
Market Area is defined as the communities of Oshkosh, Appleton,
Neenah, Menasha, and Fond du Lac.
Supply
ESRI estimates that the study area contains 1,458 housing units in
2016. The housing supply is projected to grow over the next five
years to 1,505. It is expected that the total number of units will
exceed ESRI’s projections if several currently proposed projects
are completed as proposed.
With an estimated city-wide supply of 28,868 housing units in
2016, 5.1% of Oshkosh’s housing units are located within the
Center City. This is the highest concentration of any downtown/
center city in the region, as depicted in the accompanying chart.
General Profile
Some of the key attributes of Center City housing units include:
◊A plurality (49%) of housing units are multi-family units. Not
surprisingly, the Center City contains a greater percentage
of multi-family units than the greater market area (49.0% vs
24.2%). The study area also contains a fair amount of single
family detached (28.0%) and attaches uses (23.1%).
◊The vast majority (79.7%) of housing units are renter-occupied.
This is much higher than the market area (36.3%).
◊Residential vacancy is low (4.6%). The vacancy rate in the
Center City is lower than the market area (6.3%), and the Center
City vacancy rate has declined noticeably over the past five
years from 8.0% to 4.6%).
◊The housing stock in the Center City is older than the market
area. In the Center City, more than half (56.7%) of units were
built prior to 1939, compared to only 24.9% in the market area.
13.3% of the Center City housing supply was built after 2000.
◊The value of units within the Center City is lower than that of
the market area. In 2016, the median home value in the Center
City was $89,312, roughly $40,000 less than that of the market
area ($130,370).
◊Residential land uses are found throughout the study area in
various forms and sizes. The types of residential land uses vary
from single family detached uses on residential blocks to high-
rise multi-family buildings, from upper floor loft conversions to
townhomes.
Center City Housing
Imagine Oshkosh: Existing Conditions Report114
41
41
LAKEWINNEBAGO
Appleton
Menasha
Oshkosh
Fond du Lac
Neenah
ResidentialMarket Area
Housing - Supporting Facts & Figures
16.8%15.7%15.3%
75.2%79.7%80.1%
8.0%4.6%4.6%
0
200
400
600
800
1,000
1,200
1,400
1,600
2010 2016 2021
Total Housing Units (2010, 2016, 2021)
Center City Oshkosh
Owner-Occupied Renter-Occupied Vacant
Source: ESRI Business Analyst; Houseal Lavigne Associates
1,458 1,505
0%10%20%30%40%50%60%
1940 - 1949
1950 - 1959
1960 - 1969
1970 - 1979
1980 - 1989
1990 - 1999
2000 - 2009
2010 - 2014
Housing Units by Age (2010-2014 Avg.)
Center City Oshkosh & Market Area
Center City Market Area
Source: U.S. Census Bureau; Houseal Lavigne Associates
$90,370
$156,644
$89,312
$130,370
$0 $25,000 $50,000 $75,000 $100,000 $125,000 $150,000 $175,000
Center City
Market Area
Median Home Value (2016, 2021)
Center City & Market Area
2016 2021
Source: ESRI Business Analyst; Houseal Lavigne Associates
0%<$50,000 $50,000 -
$99,999
$100,000 -
$149,999
$150,000 -
$199,999
$200,000 -
$249,999
$250,000 -
$299,999
$300,000 -
$399,999
$400,000 -
$499,999
$500,000 -
$749,999
$750,000+
Owner-Occupied Home Values (2016)
Center City Oshkosh & Market Area
Center City Oshkosh Market Area
Source: ESRI Business Analyst; Houseal Lavigne Associates
4.2%
3.7%
4.1%4.0%
3.5%
5.1%
4.7%4.6%4.9%4.9%
0.0%
1.0%
2.0%
3.0%
4.0%
5.0%
6.0%
Oshkosh Appleton Fond du Lac Green Bay Neenah
Downtown Share of Population & Housing
Oshkosh & Peer Cities
% of City Residents Living Downtown
% of City Housing Units Located in Downtown
Source: U.S. Census On the Map; Houseal Lavigne Associates
62.9%12.9%
24.2%
Housing Type (2010-2014 Avg.)
Center City Oshkosh & Market Area
Single Family, Detached
Single Family, Attached & Duplex
Multi-Family Source: U.S. Census Bureau; Houseal Lavigne Associates
28.0%
23.1%
49.0%Center City OshkoshMarket Area
Note: Single Family Detached includes Mobile Home
Imagine Oshkosh: Existing Conditions Report116
Building Permit Activity
Data for new construction permits was gathered for market area
communities, as data for individual downtowns and center cities
was unavailable. The accompanying table depicts the combined
permitting activity of the five market area communities over the
past five years (2011 to 2015). Some of the key findings include:
◊The total number of permitted units has increased, suggesting
a ramping up of development activity within the overall market
area. In 2015, 834 units were permitted, the highest volume of
permits issued in the past five years and up from 501 units in
2014.
◊Multi-family development is driving the increase in permitted
units. In 2015, for example, 74.6% of the units permitted were
multi-family units. Over the past five years, 64% of all units
permitted were multi-family units.
◊26.0% of all units permitted within the past five years occurred
in Oshkosh. Of the 2,859 permits issued: 1,164 units were in
Appleton (40.7%), 742 units in Oshkosh (26.0%), 326 units in
Neenah (11.4%), 301 units in Fond du Lac (10.5%), and 247 units
in Menasha (8.6%). For context, 29.1% of the market area popu-
lation is found within Oshkosh.
149 182
18 30
421
622
0
100
200
300
400
500
600
700
2011 2012 2013 2014 2015
New Construction Permits -Total Units (2011-2015)
Market Area
Single-Family Two-Family Multi-Family
Source: US Census Bureau; Houseal Lavigne Associates
Imagine Oshkosh: Existing Conditions Report 117
Rents
Roughly 8 in 10 units within the Center City are renter-occupied.
As shown in the accompanying graph, the median rent in Center
City Oshkosh is estimated at roughly $500, which is on par with
most of the downtowns/center cities within the market area.
However, Center City rents are lower than city-wide medians
($534-$582) as well as the median within the market area ($563).
More specifically, an inventory was conducted in June 2016 to as-
sess rents of specific Center City/Downtown properties within the
market area. Properties that were included either (a) have publicly
listed units available for rent or (b) publicly list their rental rates.
As of the drafting of this report, there was no data available for
units within Downtown Neenah or Menasha.
Based upon this online inventory, the average rents of listed or
advertised properties in Center City Oshkosh was $914, with an
average of $0.88 per square foot. It can be surmised that newer
units in Center City Oshkosh are renting at higher rates than older
units and that the current marketplace consists of rents of rough-
ly $0.90 to $1.00 per square foot for newer units (note: this figure
was produced by filtering out units older than 15 years). Figures
from the June 2016 inventory are reinforced by the Tax Increment
Financing Application for the new mixed-use Morgan District,
submitted by the developer in December 2015. The developer
proposes, on average, $925 dollars in monthly rent for 900 square
feet of apartment space, or $0.97 per square foot.
$497 $489 $491 $480
$563 $553 $582
$534 $549 $563
$0
$100
$200
$300
$400
$500
$600
$700
Oshkosh Appleton Fond du Lac Neenah Menasha Market Area
Median Rent (2010-2014 Avg.)
Oshkosh & Peer Communities
Downtown/Central City City-Wide
Source: American Community Survey; Houseal Lavigne Associates
Imagine Oshkosh: Existing Conditions Report118
Inventory: Rental Multi-Family & Townhome Units (June 2016)Market Area: Center City Oshkosh, Downtown Appleton, & Downtown Fond du Lac
Project Address BR BA Size (SF) Asking Rent Asking Rent PSF / Month Year Built
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--221 High Avenue #A 3 2 1,200 $995 $0.83 1919
Dawes Street Apartments 95 Dawes Street 3 2.5 1,520 $1,350 $0.89 2005
Converted Upper Floor 705 N. Main Street #A 3 1 1,200 $900 $0.75 1920
Rivers Senior Living 475 Marion Road 1 1 Unavailable $610-$700 Unavailable 2011
Rivers Senior Living 475 Marion Road 2 1 Unavailable $720-840 Unavailable 2011
100 North Main 100 N. Main Street - 1A 1 1 800 $690 $0.86 2003
100 North Main 100 N. Main Street - 2A 2 2 1100 $795 $0.72 2003
100 North Main 100 N. Main Street - 3A 3 2 1368 $1,065 $0.78 2003
The Anthem 431 Marion Road 2 2 910 $900 $0.99 2015
The Anthem 431 Marion Road 2 2 1150 $1,150 $1.00 2015
The Anthem 431 Marion Road 3 2 1171 $1,300 $1.11 2015
Morgan Crossing 495 Pearl Avenue - 1A 1 1 716 $699 $0.98 2007
Morgan Crossing 495 Pearl Avenue - 2A 2 2 944 $879 $0.93 2007
Morgan Crossing 495 Pearl Avenue - 2B 2 2 1001 $899 $0.90 2007
Morgan Crossing 495 Pearl Avenue - 3A 3 2 1277 $1,300 $1.02 2007
Morgan Crossing 495 Pearl Avenue - 3B 3 2 1230 $1,300 $1.06 2007
Concord Place 151 Dawes Street - A 1 1 695 $675 $0.97 2003
Concord Place 151 Dawes Street - B 2 2 950 $850 $0.89 2003
Concord Place 151 Dawes Street - C 2 2 991 $830 $0.84 2003
Concord Place 151 Dawes Street - D 2 2 1045 $850 $0.81 2003
Bent Block / Converted Upper Floor 470 N. Main St. Studio 1 704 $540 $0.77 1886
Bent Block / Converted Upper Floor 470 N. Main St. Studio 1 826 $540 $0.65 1886
Bent Block / Converted Upper Floor 470 N. Main St. 3 1 1309 $1,000 $0.76 1886
MK Townhomes 808 Nebraska Street 1 1 800 $605 $0.76 2009
Average 1,041 $914 $0.88
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Converted Upper Floor 212 E. College Avenue - Upper Floors Studio 1 Unavailable $550 Unavailable 1895
Converted Upper Floor 609 W. College Avenue - Unit F 2 1 Unavailable $600 Unavailable Unavailable
Converted Upper Floor 609 W. College Avenue - Unit G 2 1 Unavailable $700 Unavailable Unavailable
Historic Fox River Mills 101 E. Water Street 1.5 1 1114 $1,040 $0.93 1883-1915
River Heath 201 S. Riverheath Way 1 1 1,200 $1,575 $1.31 2014
Average 1,157 $893 $1.12
Do
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Retlaw Apartments / Converted Upper Floor 7 Sheboygan St. #203 2 1.5 1450 $875 $0.60 1925
Retlaw Apartments / Converted Upper Floor 7 Sheboygan St. #204 2 1.5 1736 $875 $0.50 1925
Converted Upper Floor 111 S. Main Street 1 1 650 $550 $0.85 Unavailable
Converted Upper Floor 42 1/5 N. Main Street 2 1 1800 $775 $0.43 Unavailable
Converted Upper Floor 171 S. Main Street 1 1 650 $425 $0.65 Unavailable
Converted Upper Floor 33 N. Main Street 1 1 650 $400 $0.62 1929
Average 1,156 $650 $0.61
Source: Houseal Lavigne Associates; Trulia; Zillow; HotPads; Downtown Appleton, Inc.; Oshkosh Business Improvement District
Imagine Oshkosh: Existing Conditions Report 119
Multi-Family Development
Based upon available real estate data and conversations with
local developers, there has been somewhat limited development
of multi-family units – including condominiums and apartments –
in market area center cities/downtowns over the past five years.
The vast majority of market area apartment development has
occurred within Center City Oshkosh along Marion Road, including
Rivers Senior Living – Phase I (2011; 60 units), Rivers Senior Living
– Phase II (2016; 40 units), and The Anthem (2015; 80 units). With-
in Center City Oshkosh, however, there has been no development
of condominium buildings during the same time period.
Throughout the outreach process, residents, developers, and
local stakeholders expressed interest in high-quality condomini-
um 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 condo-
miniums in an urban setting is very limited.
Using the leading real estate websites, such as First Weber, Re-
altor.com, Zillow, and Trulia, an inventory was conducted to cata-
logue prices of condominiums. The accompanying table includes
pricing of units either listed for sale as of June 2016 or those
sold within the past six months. Because of the limited inven-
tory of center city and downtown units within the market area,
multi-family units that are located on a waterfront (but outside
of a downtown or center city) are also included, provided they
are similar in character. Using this criteria, most of the applicable
inventory is found in Oshkosh and Appleton.
As the table depicts, 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 condomini-
um developments can list as high as $350,000 due to scenic views,
high quality finishes, and generous square footage; examples in-
clude 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.
Imagine Oshkosh: Existing Conditions Report120
Inventory: Condominium Units (June 2016)Market Area: Center City/Waterfront Oshkosh & Downtown/Waterfront Appleton
Location Project Name Address BR BA SF Price Price / SF Year Built
Os
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Waterfront River Mill Condominiums 1545 Arboretum Drive #425*2 3 1881 $191,500 $101.81 1986
Waterfront River Mill Condominiums 1545 Arboretum Drive #313*1 1.5 1072 $111,000 $103.54 1986
Waterfront River Mill Condominiums 1545 Arboretum Drive #233*2 2.5 2014 $143,549 $71.28 1986
Waterfront River Mill Condominiums 1545 Arboretum Drive #222*3 2.5 2512 $229,000 $91.16 1986
Waterfront River Mill Condominiums 1545 Arboretum Drive #216*2 2.5 2100 $190,000 $90.48 1986
Waterfront River Mill Condominiums 1545 Arboretum Drive #307*2 2.5 1858 $185,000 $99.57 1986
Waterfront River Mill Condominiums 1545 Arboretum Drive #327*2 2 1878 $130,000 $69.22 1986
Ap
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Downtown Richmond Terrace 400 N Richmond St - #446 2 2 1273 $155,900 $122.47 2002
Downtown Richmond Terrace 400 N Richmond St - #423 2 2 1273 $122,900 $96.54 2002
Downtown Richmond Terrace 400 N Richmond St - #1052 2 2 1003 $112,000 $111.67 2002
Downtown Richmond Terrace 400 N Richmond St - #435 1 1 875 $94,900 $108.46 2002
Downtown Richmond Terrace 400 N Richmond St - #417 2 2 1426 $130,000 $91.16 2002
Downtown Lawrence Court 5 Lawrence Court 2 1.5 1096 $189,900 $173.27 Unknown
Waterfront Stroebe Island / Sunrise Pointe 2187 Sunrise Drive 3 4 3270 $329,900 $100.89 Unknown
Waterfront Stroebe Island / Sunrise Pointe 2193 Sunrise Drive #6A 3 3 2346 $255,000 $108.70 Unknown
Waterfront Stroebe Island / Island Harbor 2494 Stroebe Island Drive 3 2 1670 $179,900 $107.72 Unknown
Waterfront Banta Court Townhomes 1155 E Banta Court 3 2 2390 $350,000 $146.44 2012
Waterfront Banta Court Townhomes 1155 E Banta Court 3 2 2240 $344,000 $153.57 2012
Total Average 2 2 1,788 $191,358 $108.22
Source: Houseal Lavigne Associates; FirstWeber; Trulia; Zillow; HotPads
Imagine Oshkosh: Existing Conditions Report 121
Demand Analysis
The residential demand analysis estimates the number of house-
holds that would be “eligible” to purchase or rent units in Center
City Oshkosh based on various household characteristics. 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 predom-
inant buyer of single family homes. By examining how many
householders fall into various age and income cohorts, the de-
mand for units of a given housing type can be estimated.
Home Pricing & Minimum Income Requirements
Condominiums
For the residential demand analysis, two base sale prices were
selected to determine the minimum income requirements for
potential home buyers: $200,000 and $375,000. This provides
data for two different scenarios: development of “middle end”
condominium units ($200,000) and development of “high end”
condominium units ($375,000). The former figure was generated
by rounding up the average 2016 condominium price of $191,358;
the latter is based upon pricing for high end condominiums
included in the aforementioned Morgan District site proposal. As
shown in the accompanying table, a minimum household income
of $61,113 is needed for the middle end condominiums and
$104,933 for the high end condominiums.
Minimum income requirements consider the ability to put at least
15% down toward the purchase of a home, various housing expe-
riences in addition to a mortgage payment (e.g. condo fees, home
insurance, private mortgage insurance, etc.), and acceptable bench-
marks of percentage of income allocated towards housing (30%).
Imagine Oshkosh: Existing Conditions Report122
Apartments
The accompanying “Home Pricing” table also estimates the mini-
mum income requirements for households who rent their homes.
The typical property on the market as of June 2016 is a roughly
1,000 square foot two-bedroom apartment. Units built within the
past ten years range typically rent for around $1.00 per square
foot per month. Using this math, a rent of $1,000 monthly is uti-
lized to estimate demand for new units. Affording this rent would
require a minimum income of $40,000. As well as a minimum in-
come requirement, a maximum income threshold of $99,999 was
used so as to not overstate the market. It is assumed that those
households earning $100,000 or greater would seek the opportu-
nity to purchase a home.
Home Pricing (2016)Center City Oshkosh
Condominum 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
Imagine Oshkosh: Existing Conditions Report 123
Market Area Demand
The following section further refines the pool of income qualify-
ing buyers and renters using various factors to derive estimated
market area demand for condominium housing in Center City
Oshkosh. The outcomes of the various steps of the market area
demand calculation are highlighted in the accompanying tables. A
market area demand table has been created for both condomini-
ums and apartments.
Part One: Age & Income
Estimates for market area demand should exclude households that
do not meet the income requirements ($61,113+ for the middle
end condominiums; $104,933+ for the high end condominiums)
and probable ages of someone seeking a condominium in the
defined market area. Multi-family units in downtown locations are
typically occupied by some combination of young professionals,
empty nester households looking to downsize, and those looking
for home ownership without maintenance responsibilities. These
buyers are typically aged 25 to 34 and 55 and older, respectively.
Imagine Oshkosh: Existing Conditions Report124
Part 2: Mobility Index
After establishing a baseline of those households able to afford
and likely to purchase or rent a unit, a “mobility index” is used
to ascertain the percentage of households moving each year
within given age cohorts. This index has been derived and further
refined using 2014-2015 movement patterns recorded by the US
Census for the Midwest region. It identifies the propensity for
a household in a given age bracket to move from their current
residence. For purposes of this analysis, it was determined that
20.9% of households aged 25 to 34 would be likely to move while
only 3.4%-5.3% of households aged 55 and older would be likely
to move in any given year.
Part 3: Home Ownership
The next step of the analysis is to determine what proportion of
households, of those deemed eligible, are homeowners or renters.
In other words, of those meeting age and minimum income re-
quirements who are moving, how many households prefer to buy
versus rent? The accompanying “Tenure by Age of Householder”
table depicts the proportion of owner- and renter-occupied units
according to the age of the head of households.
The homeownership and rental rates are used to further refine
the market and potential buyers and renters of units in each
respective market area.
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
Imagine Oshkosh: Existing Conditions Report 125
Part Four: Oshkosh Market Share
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 propor-
tion 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 in 2016 for 205 middle-end condominium
units, 108 high-end condominium units, and 216 apartment units.
Demand for middle- and high-end condominium units are not mu-
tually exclusive, as the analysis is drawing from much of the same
pool for both calculations.
Household Demand for Condominiums (2016)Market Area
Middle-End Condominums ($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 Condominums in Oshkosh: 205 Units
High-End Condominums ($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 Condominums in Oshkosh: 108 Units
Source: Houseal Lavigne Associates; US Census Bureau; Zillow
Household Demand for Apartments (2016)Market Area
Middle-End Condominums ($200,000 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
Imagine Oshkosh: Existing Conditions Report126
Part Five: Capturing New Development in the Center City
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. However, as noted earlier, the supply for quality
residential units within or near a downtown district and along a
waterfront is very minimal. New units that are well-positioned,
well-marketed, and well-built in relation to the existing supply
have an excellent chance of capturing the potential demand iden-
tified and growing the pie.
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. The availability of land,
necessary approvals and zoning, financing, and community sup-
port are all critical to successful new development.
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, Me-
nasha, 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.
Takeaways
The Center City housing market is trending in a positive direction,
with a growing number of units, low vacancy, and significant de-
velopment activity. Based on recent development activity and the
potential for new investment, Center City Oshkosh is an extremely
well-positioned city center for further residential growth, partic-
ularly in the condominium market, which is likely undersupplied.
Continued residential density will facilitate spin-off retail spending
as well as increase the attractiveness for new retail development.
Imagine Oshkosh: Existing Conditions Report 127
As noted earlier, successful downtowns and center cities are
activity hubs with an integrated mixture of offices, residences,
restaurants, entertainment venues, shops, and more. This creates
activity on the street such as people walking, biking, sidewalk
dining, and hanging out in the park. Such bustle and interaction is
what makes center cities great and draws people to them.
Establishing a critical mass of activity requires aligning multiple
public and private investments that can build on one another and
reinforce one another. If activity is too spread out, it dilutes the
investment and creates small pockets of activity that fail to add
up to something larger.
One of the most important components of establishing critical
mass is a concentrated residential population intermixed with
commercial uses. While the Center City has added several new
residential developments in recent years along Marion Road and
Pearl Avenue (and another large program is underway on the Jeld
Wen site on the south shore), this development is somewhat
suburban in style and is located within a 10-15 minute walk from
the heart of the Center City.
This walking distance, combined with an irregular street grid,
harsh winters, a local aversion among some to walking, and easy
automobile access decreases the likelihood that these residents
will spend their time, money, and energy in Downtown Oshkosh.
This observation does not suggest that the recent and ongoing
development should not occur or is not desirable. Merely, it is be-
ing suggested that new residential development also be pursued
within the heart of the Center City, and at minimum, that nearby
residential development be as closely integrated with the Down-
town Core as possible through pedestrian infrastructure. Imagine
Oshkosh will identify sites and potential development programs
for infill development or redevelopment within the Downtown
Core and Outer Core that can help achieve critical mass.
Establishing Critical Mass Targeted Residential Development
Imagine Oshkosh: Existing Conditions Report128
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CRITICAL MASS:RESIDENTIAL DENSITY
In order for a center city to be competitive as a desirable “neigh-
borhood” to live in, it must provide for the day-to-day amenities
that most residents seek in-and-around their residences, regard-
less of where they live. At present, the Center City already has
many businesses that cater to the day-to-day needs of residents
(and beyond), including hardware store, a bookstore, automotive
repair, dry cleaner, restaurants, bars, barbershop/salon, yoga
studio, deli, and more. On the whole, Center City Oshkosh has a
strong inventory of important day-to-day retail and service uses.
However, two items that could improve the attractiveness of living
in the Center City include: programmed park space and a dog park.
While Center City Oshkosh has green spaces (e.g. Riverside Park,
Leach Ampitheatre, Opera House Square) and recreation opportu-
nities (Riverwalk, boat docks), it does not have any programmed
park space or playgrounds other than Roe Park. The addition of such
space could support families living in/near the Center City as well as
provide safe play spaces for visiting families.
Additionally, dog parks are becoming increasingly popular as
downtown populations grow throughout the country. Because
many Center City homes are multi-family units that do not have
their own yard, a fenced-in dog park would provide space for
dogs to run around and get exercise out of the way of the general
public. This could be an amenity that could increase the attrac-
tiveness of living in the Center City among dog-owners current-
ly living in multi-family units elsewhere. For context, using a
national benchmark, the American Veterinary Medical Foundation
(AVMF) estimates that Oshkosh, WI may have 14,937 dogs.
Providing Day-to-Day Amenities
Imagine Oshkosh: Existing Conditions Report130
The fringe of the study area and the surrounding blocks are
traditional neighborhoods mostly comprised of single family
detached homes built between 1900 and 1945. These homes were
built on a grid system on lots typically 7,500 square feet in size.
Relative to the entire city’s housing stock, these homes tend to
be older, more likely to be renter occupied, and with a higher
concentration of code violations. The majority of homes are not a
component of a historic district, but some have historic attributes
that give them a unique presentation. Additionally, many blocks
either lack porch lights or do not use them. When combined with
relatively dim street lights, these blocks can appear unwelcoming
after dusk.
As mentioned earlier in the report, Imagine Oshkosh is not a
residential neighborhoods plan and many of the surrounding
neighborhoods have undergone, or will undergo, their own unique
planning process. However, the health and vitality of these blocks
are vital to the success of Center City Oshkosh and will be rec-
ognized as such. Imagine Oshkosh may outline, from a high-level,
specific programs, catalyst blocks for investment, reinvestment
strategies, or planning tools that could promote stabilization and
investment in these neighborhoods.
Stabilizing Surrounding Neighborhoods
Imagine Oshkosh: Existing Conditions Report 131
Likel y Owner Occupied
Likel y Not Owner Occupied
ResidentialOwner Occupancy
1 900 or Earl ier
1 901 to 1 945
1 946 to 1 960
1 95 9 to 1 980
1 981 to 2000
2000 or Later
ResidentialYear Built
Many of the residential single family blocks surrounding Center City Osh-
kosh are dominated by renters.
Source: City of Oshkosh
The housing stock surrounding the Center City tends to be older than the
rest of the city.
Source: City of Oshkosh
Imagine Oshkosh: Existing Conditions Report132
Property M aintenance
Publ ic Nuisance
Central City
Code Violations (2014-2016)
Property M aintenance
Publ ic Nuisance
City of OshkoshCode Violations (2014-2016)
Code violations (reported since 2014) are a significant problem for residential blocks near the Center City, particularly to the northwest. However, it should be
noted that a portion of reported code violation have been corrected.
Source: City of Oshkosh
Imagine Oshkosh: Existing Conditions Report 133
$0 - $84,000
$84,001 - $1 07,700
$1 07,701 - $1 44,700
$1 44,701 or Greater
Central CityResidential Parcel Values
$ 0 - $ 84,000
$ 84,001 - $ 1 07,700
$ 1 07,701 - $ 1 44,700
$ 1 44,701 or Greater
City of OshkoshResidential Parcel Values(2014-2016)
Residential properties near the core of the city tend to be valued less than those found on the outskirts of the city.
Source: City of Oshkosh
Imagine Oshkosh: Existing Conditions Report134
Imagine Oshkosh: Existing Conditions Report 135
Working in theCenter City
142 Employment
147 Retail Market
154 Office Market
CHAPTER 3C
A vibrant economy is an important component of any successful
downtown or center city. A thriving employment base generates
tax revenue, spending on retail and dining, street activity, real
estate investment, and residential growth, among many other
things. Imagine Oshkosh will seek to increase the number of jobs
in Center City Oshkosh and position the Center City as a premier
employment hub in the knowledge economy.
This section details key information and issues relating to work-
ing and owning a business in the Center City, including:
◊Center City Economy, providing an overview of the Center City
economy as well as other important economic and employment
trends at both the regional and local level; and
◊Retail Market, detailing information on retail activity and busi-
nesses in the Center City;
◊Office Market, detailing existing commercial land uses and real
estate inventory in the Center City.
Additional information related to real estate development can be
found in Chapter 3D: Developing Property in the Center City.
Imagine Oshkosh: Existing Conditions Report138
Data Sources
Data for this chapter were acquired from a variety of sources,
including the 2010-2014 American Community Survey (ACS), the
2010 US Census, Oshkosh Chamber of Commerce, LoopNet, and
ESRI Business Analyst, a nationally recognized provider of business
and market data. The figures presented in this chapter are the
most recent and reliable available, as of the drafting of this report.
Imagine Oshkosh: Existing Conditions Report 139
This section provides an overview of employment in the Center
City as well as other key economic indicators.
Total Employment
Center City Oshkosh contained 5,512 jobs in 2014, a notice-
able increase over 2005 employment levels of 3,059 jobs. Total
employment also grew in both in the City of Oshkosh (33,549 to
37,341) and the five-county region (355,178 to 381,109) during
the same time period.
Over the past decade, the Center City’s share of city-wide total
employment has grown from 9.1% to 14.7%. Compared to the
downtowns/center cities of neighboring communities, Center City
Oshkosh contains fewer jobs than most, both in total employ-
ment as well as share of city-wide employment. As shown in the
accompanying graph, Oshkosh outperforms Fond du Lac but lags
behind Green Bay, Appleton, and Neenah.
General Profile
Some of the key attributes of the Center City economy include:
◊The Center City economy mostly driven by government, “white
collar,” and retail/hospitality service jobs. In 2014, the top five
industries in Center City Oshkosh were Public Administration
(1,223 jobs), Professional, Scientific, and Technical Services (903
jobs), Retail Trade (779 jobs), Accommodation and Food Ser-
vices (727 jobs), and Finance and Insurance (393 jobs). Roughly
1 in 5 jobs are public sector jobs. While Manufacturing remains
the largest industry at both the city-wide and five-county re-
gional level, it is only a very small component of the Center City
economy (62 jobs), as manufacturing companies have down-
sized, closed, or relocated out of the study area.
◊Six of Oshkosh’s fifteen largest employers have a presence in
the Center City. Major Center City employers include Winnebago
County (1,018 jobs), 4Imprint (729 jobs), Silver Star Brands (650
jobs), City of Oshkosh (569 jobs), and Clarity Care (569 jobs).
◊The Center City economy contains burgeoning technology
and creative enterprises sectors. 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, 4Imprint, and more. The
creation and success of Amplify Oshkosh, a local organization
focused on growing the tech economy in Oshkosh, reflects the
importance of this segment of the economy.
◊Much of the retail, hospitality, and entertainment economy is
dependent on the season, according to business leaders. During
warm months, the Center City is activated with boat traffic
along the river and lake, concerts at the Leach Amphitheatre
and Opera House Square, the Farmers Market, and other out-
door activities that draw residents and tourists to spend, shop,
and stay in the Center City. However, much of the Center City’s
activities cease in winter months and cold temperatures can
inhibit outdoor events and walking. One prominent business
owner noted a drop of 75% in business between July and Janu-
ary, and a local restauranteur reported that 70% of his annual
revenue is collected in the summer.
◊The vast majority of those who work in the Center City do not
live there. In 2014, only 2.4% of Center City employees also
lived there. A plurality of these workers are commuting from
elsewhere in Oshkosh (42.5%), but many are also traveling from
Appleton, Neenah, Fond du Lac, Omro, Menasha, and the great-
er Milwaukee area.
Employment
Imagine Oshkosh: Existing Conditions Report140
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348 - 1 ,374 jobs per
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1 ,375 - 3,086 jobs
per sq. mi.
3,087 - 5 ,482 jobs
per sq. mi.
5 ,483 or greater jobs
per sq. mi.
Legend
NORTH 0 0.1 0.20.05
M il es
EMPLOYMENT IN THECENTER CITY
Employment Density
Takeaways
Center City Oshkosh is nearing the completion of its 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 enter-
tainment. A physical representation of this trend is the transfor-
mation 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.
Employment growth over the past ten years – and at a pace fast-
er than the city -- reflects the attractiveness of opening or ex-
panding a business within the Center City. 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 Downtown Oshkosh
is also increasingly attractive for employers seeking to recruit
and retain younger talent. Hurdles to Center City business growth
include a limited volume of contemporary office product, parking
availability, and interstate access.
The benefits of additional office workers within the Center City
would be significant. More employees require more square feet
of office space, thus filling existing vacancies or spurring new
office development. They also tend to spend money at neighbor-
ing businesses (e.g. dry cleaners, delis, grocery stores, etc.), and
some may even choose to live in the Center City. Using industry
benchmarks, the accompanying chart depicts some of the eco-
nomic benefits of additional office workers including: new retail
spending, demand for office square footage, and residential units.
For example, the addition of 250 new employees within Cen-
ter City Oshkosh could generate in new demand roughly 46,000
square feet of office space, 6 housing units, and $1.7 million in
new retail spending.
3,059
5,512
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
Source: U.S. Census On the Map; Houseal Lavigne Associates
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
Imagine Oshkosh: Existing Conditions Report142
Employment - Supporting Facts & Figures
9.1%14.7%
33,549
37,414
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
40,000
45,000
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Total Primary Jobs (2005-2014)
Center City Oshkosh & City of Oshkosh
Center City City of OshkoshSource: U.S. Census On the Map; Houseal Lavigne Associates
355,178
381,109
200,000
220,000
240,000
260,000
280,000
300,000
320,000
340,000
360,000
380,000
400,000
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Total Primary Jobs (2005-2014)
Five County Region*
Source: U.S. Census On the Map; Houseal Lavigne Associates
* Includes Outagamie, Winnebago,Calumet, Brown, and Fond du Lac Counties
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
Employment by Industry (2014)5 County Region
Employees
Industry (NAICS Code)381,163 100%
Manufacturing 81,379 21.4%
Health Care and Social Assistance 49,158 12.9%
Retail Trade 38,625 10.1%
Accommodation and Food Services 27,910 7.3%
Educational Services 25,991 6.8%
Finance and Insurance 22,087 5.8%
Admin & Support, Waste Mgmt & Remediation 20,351 5.3%
Construction 18,864 4.9%
Wholesale Trade 18,063 4.7%
Transportation and Warehousing 14,118 3.7%
Professional, Scientific, and Technical Services 13,970 3.7%
Public Administration 12,791 3.4%
Other Services (excluding Public Administration)10,806 2.8%
Management of Companies and Enterprises 10,260 2.7%
Information 6,406 1.7%
Arts, Entertainment, and Recreation 3,669 1.0%
Real Estate and Rental and Leasing 2,672 0.7%
Agriculture, Forestry, Fishing and Hunting 2,565 0.7%
Utilities 937 0.2%
Mining, Quarrying, and Oil and Gas Extraction 541 0.1%
Source: U.S. Census Bureau; Houseal Lavigne Associates
Imagine Oshkosh: Existing Conditions Report 143
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)
%
o
f
C
i
t
y
'
s
J
o
b
s
i
n
D
o
w
n
t
o
w
n
Downtown (Downtown Jobs)
% of a City's Jobs Located in Downtown (2014)*
Oshkosh & Peer Cities
* Inincludes only primary jobs
Source: U.S. Census On the Map; Houseal Lavigne Associates
15 Largest Employers (2016)City of Oshkosh
Business/ Organization Type Located in the Center City? Employees
Oshkosh Corporation Specialized Trucks No 2,800
Bemis
Packaging Tape/
Plastic Film No 2,300
University of Wisconsin
Oshkosh Higher Education No 1,327
Oshkosh Area School
District Education No 1,290
US Bank Financial Institution Partly 1,144
Winnebago County Government Yes 1,018
Aurora Medical Center &
Medical Group Healthcare No 870
4Imprint Advertising Yes 729
Winnebago Mental
Health Institute Healthcare No 702
Affinity - Mercy Medical
Center Healthcare No 688
Silver Star Brands
Mail Order Distri-
bution Yes 650
City of Oshkosh Local Government Yes 569
Clarity Care Healthcare Yes 569
Oshkosh Correctional
Institution Corrections No 502
Hoffmaster Group Paper Specialties No 444
Source: Oshkosh Chamber of Commerce; Houseal Lavigne Associates
Economic Benefits of New Office Employees (2016)Center City vOshkosh
If the Center City Added X New Of-fice Employees…….Potential Economic Benefits Include
New Square Foot-
age 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
696people
134people
5,378people
Center City Oshkosh
Employed in Center City Oshkosh , Live Outside
Live in Center City Oshkosh , Employed Outside
Employed and Live in Center City Oshkosh
Inflow / Outflow Venn Diagram
Imagine Oshkosh: Existing Conditions Report144
This section provides an overview of retail businesses, activi-
ty, and spending habits in the Center City. For purposes of this
analysis, two retail markets have been identified: a five-minute
drive time (“primary market area” or PMA) and fifteen-minute
drive time (“secondary market area” or SMA) from Opera House
Square. Households located within a 5-minute drive of the Center
City are those likely to utilize it for routine errands and everyday
shopping; those located within a 15-minute drive are more likely
to visit shops and restaurants on a less frequent and more tar-
geted basis. While visitors or tourists living outside of these drive
times may occasionally patronize the Center City, they are not
considered average consumers and were not included in analyses
to prevent an overstating of demand.
Retail Market
Imagine Oshkosh: Existing Conditions Report 145
Existing Retail Snapshot
In 2016, Center City Oshkosh contained 130 retail businesses,
including 51 bars and restaurants, and annual retail sales are
estimated at roughly $62 million dollars. As noted in early chap-
ters, 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 most-
ly concentrated within the Downtown and Oregon Street districts.
Based on the field reconnaissance of the consulting team, the
existing retail mix is relatively healthy, with a diversity of shops
catering to different needs and populations. The Center City still
contains many retail businesses that used to be staples within
American downtowns but typically (in other communities) either
closed or relocated to other locations. This is a huge benefit;
examples include a hardware store, shoe store, book store, movie
theatre, deli, furniture store, and more. While some undesirable
retail uses were identified, and there is always a need for more
businesses catering to day-to-day living (e.g. a grocery store),
the existing composition is actually fairly diverse relative to many
other communities of Oshkosh’s size and is a strong base to build
upon. Undesirable uses will likely relocate over time as reinvest-
ment occurs and rents increase.
Retail within the Center City, and downtowns across the coun-
try, is evolving. Several decades ago, major retailers relocated
to larger sites and malls with easy highway access, such as J.C.
Penney’s (which moved from the 400 block of N. Main to Koeller
Street next to I-41; the store has since closed). Today, the growth
of online shopping through retailers such as Amazon has impact-
ed local shopping habits and reduced reliance on physical stores
(“clicks vs. bricks”). 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 (“destination shopping”).
Imagine Oshkosh: Existing Conditions Report146
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
Miscellenous Retail 40 42 29 11
*Excludes Non-Store Retailers
Source: Houseal Lavigne Associates; ESRI Business Analyst
6 centsis spent in the Center City
Of Every Dollar Spent inOshkosh for Retail and Dining...
$62 million
Consumer spent ...
... annually in Center City Oshkosh.
Imagine Oshkosh: Existing Conditions Report 147
Competition
Center City Oshkosh performs a dual function, providing for the
day-to-day needs of residents while also serving an employ-
ee population and those visiting for events, dining, boutique
shopping, and more. As such, Center City Oshkosh serves several
target groups of patrons. Households living in the Center City or
living nearby will utilize it for routine errands and everyday shop-
ping such as dropping by a local coffee shop on the way to work
or ordering carry-out from a local eatery. Households located far-
ther away, on the other hand, are more likely to visit the Center
City on a less frequent and more targeted basis.
The location of existing and proposed commercial development
in areas where day-to-day and destination-oriented customers
live has significant implications for businesses within Center
City Oshkosh. 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 Shopko, Best Buy, Hobby Lobby, Buffalo
Wild Wings, Walmart, Auto Zone, Target, and more. While not all
businesses along the I-41 corridor may compete directly with
businesses in the Center City given differences in the shopping
experience and pricing, there are many instances of likely direct
competition (e.g. True Value [Center City] vs. Lowe’s [I-41]; Best
Western Premier Waterfront Hotel [Center City] vs. several hotels
along the interstate [I-41]). However, as noted earlier, the com-
petitive edge of the Center City’s retail and dining market is its
unique character, water access, and “destination” experience;
core challenges include providing a parking regime that is conve-
nient and easy to understand for visitors.
From a regional destination perspective, Center City Oshkosh’s
main “downtown competition” is Downtown Appleton. Major
draws that ancillary generate retail and dining spending include
the Children’s Museum and the Fox Cities Performing Arts Center.
Plans for a Fox Cities Exhibition Center in Downtown Appleton are
currently underway.
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. In the accompanying Retail
Gap Analysis Summary table, leakage has been converted into
supportable square footage, depicted in black.
However, it is important to note the difference between market
potential (“leakage”) and the tangible development of a particular
site or location. While leakage may exist, the success of recap-
turing that lost revenue depends on a variety of factors beyond
spending habits, including the availability of developable land,
construction costs, rents, road conditions, competition from
nearby municipalities, and/or the business climate.
Data indicates unmet demand for new retail development in both
primary and secondary markets. As depicted in the accompany-
ing table, there are some categories that demonstrate potential
market support for additional retail development. Although the
volume of retail leakage varies in the primary market area, some
of the retail that the Center City may be best positioned to capi-
talize include:
◊Grocery Stores, with leakage of $14.3 million (43,357 support-
able 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: Existing Conditions Report148
Gap Analysis
A gap analysis is a comparison of retail supply and demand within
a defined market area, which is typically a drive time. Its findings
help establish what types and volume of new retail could or could
not be supported based on existing spending and sales.
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,” and is displayed in green on
the accompanying graphs. 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,” and is depicted in red on the accompanying
graphs. As the market is oversupplied with spending, a retail cate-
gory with surplus is challenging for new retail development.
Primary Market Area: Undersupplied by $62.6 Million
As shown in the accompanying table, it is estimated that there
is unmet demand for retail goods and services totaling approx-
imately $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
As shown in the accompanying table, it is estimated that there is
an oversupply of retail goods and services totaling $70.9 mil-
lion. 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 under-
supplied, including Furniture and Home Furnishings, Electronics
and Appliance Stores, Health and Personal Care Stores, and Other
General Merchandise Stores.
Imagine Oshkosh: Existing Conditions Report 149
FOND DU LAC
WINNEBAGO
41
41
26
44
91
21
76
45
45
45
LAKEWINNEBAGO
LAKE BUTTEDES MORTS
CENTRAL CITYPLANNING AREA
CITY OFOSHKOSH
Retail Secondary Market Area
Retail Primary Market Area
Retail Market Area
Imagine Oshkosh: Existing Conditions Report150
Retail Gap Analysis SummaryCenter 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)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
Imagine Oshkosh: Existing Conditions Report 151
Some of the key issues, opportunities, and attributes of the Cen-
ter City office market include:
◊Professional office uses are located mostly within the Down-
town Core and Outer Core districts. The size, intensity, and
quality of office buildings varies, from historic multi-story com-
mercial buildings (e.g. First National Bank Building), a contem-
porary office park (Bridgeview Center), a large former mall that
is now mostly offices (City Centre), and single-story standalone
buildings (Riverfront Landing).
◊The Center City office market lacks contemporary and concen-
trated “Class A” product. While there has been considerable
residential development in recent years, office development
has been limited. Some existing commercial buildings have
been recently renovated or improved, such as 531 N. Main
Street (Dealer Socket), however, the vast majority of exist-
ing product is dated and lacking the modern amenities and
contiguous square footage that a higher profile or sizable
tenant might require. During community outreach, stakeholders
expressed desire for high quality office towers, such as those
in Neenah (Neenah Towers, Gateway Tower) and Menasha (One
Menasha Center). It is believed that if the Center City is truly to
be a hub for innovation and “knowledge-based” employment,
upgraded or new quality office space will likely be needed.
◊Vacant or underutilized parcels along the South Shore may
accommodate the development of new office space. Prelimi-
nary interest has been expressed during community outreach
for the joining of industrial properties south of the Fox River
for development of a large-scale office building or complex.
Such a development could be speculative in nature or be built
“to-suit” for a large user. During public outreach, much support
was expressed for recruiting a corporate headquarters, such as
Oshkosh Corporation.
Office Market
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
Imagine Oshkosh: Existing Conditions Report152
◊Several prominent office buildings are currently underutilized.
Vacancy ebbs-and-flows through different market cycles and
is common in any market. However, Oshkosh’s three largest
office buildings – 111 N. Main Street, 217 N. Main Street, and
404 N. Main Street – are experiencing vacancy, with a collec-
tive 90,000 square feet available in these three buildings alone
(based on current listings; actual vacancy may be higher). The
full utilization of these properties, given their prominence in
the heart of Downtown, is critical to a vibrant economy. Op-
portunities may include working with developers to add value
to the properties to attract new tenants previously uninterest-
ed in renting space (“value add”), converting upper floors into
residential units, or proactively recruiting new tenants that can
fill the spaces as-is.
◊There is 457,722 square feet of commercial space for lease and
424,161 square feet for sale collectively in area downtowns
and center cities (June 2016). This includes Center City Osh-
kosh, Downtown Appleton, Downtown Fond du Lac, Downtown
Neenah, and Downtown Menasha. Roughly 33% of the square
footage for lease and 13% of the square footage for sale is
within Center City Oshkosh. The ability of the Center City to
compete will depend on pricing, amenities, floor plates, and the
location requirements of the tenant.
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.
Imagine Oshkosh: Existing Conditions Report 153
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347 or fewer jobs per
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348 - 1 ,374 jobs per
sq. mi.
1 ,375 - 3,086 jobs
per sq. mi.
3,087 - 5 ,482 jobs
per sq. mi.
5 ,483 or greater jobs
per sq. mi.
Mixed-Use
Office & Finance
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Industrial
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NORTH 0 0.1 0.20.05
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OFFICEMARKET
Employment Density
Commercial Properties for Lease - Downtowns (June 2016)Primary Market Area Downtowns
Property Space Available (SF)Asking Rent (SF / Year)
Center City Oshkosh 153,792 $10.54
528 N. Main Street 4000 $4.50
705 N. Main Street 1200 $9.00
146 Algoma Boulevard 2178 $9.00
21 Waugoo Avenue 320 $13.13
21 Waugoo Avenue 785 $12.23
100 N. Main Street 1200 $11.95
217 N. Main Street 59,000 $12.00
404 N. Main Street 9,744 $7.20 - $16.56
208 State Street 3,850 Unavailable
219 Washington Avenue 8,500 $14.00
600 S. Main Street 1,600 $4.50
601 Oregon Street 7,480 $12.00
208 & 212 W. 12th Avenue 1,320 $9.12
135 Jackson Street 14,016 $12.00
551 High Avenue #530 1,678 $9.95
551 High Avenue #551 2,101 $10.00
350 Ohio Street 1,400 $13.00
111 N. Main Street 20,420 $15.00
16 Washington Avenue - First Floor 9,000 $10.00
16 Washington Avenue - Lower Level 4,000 $7.00
Downtown Appleton 254,508 $12.54
900 W. College Avenue 3,135 $14.00
122 S. Memorial Drive 9,600 $7.25
225 N. Richmond Street 443 $12.00
330 W. College Avenue - 2nd Floor 10,884 $14.00
330 W. College Avenue - 3rd Floor 4,160 $16.00
330 W. College Avenue - 3rd Floor 607 $14.82
330 W. College Avenue - 3rd Floor 640 $15.00
423 W. College Avenue 15,000 $3.50
318 W. College Avenue 35,138 $15.00
222 W. College Avenue 22,000 $20.00
207 W. College Avenue 2,000 $12.00
103 W. College Avenue 78,480 $12.00
100 W. Lawrence Street 1,055 $20.00
10 E. College Avenue 4,750 $6.00
100 E. College Avenue 5,300 $7.50
122 E. College Avenue - First Floor 5,230 $18.00
122 E. College Avenue - Lower Level 24,640 $12.00
215 E. College Avenue 3,200 $11.25
200 E. Washington Street 925 $14.00
200 E. Washington Street 12,042 $18.00
200 E. Washington Street 280 $12.86
101 W. Edison Avenue - Suite 170 2,562 $12.00
101 W. Edison Avenue - Suite 160 4,351 $4.00
101 W. Edison Avenue - Suite 211 318 $14.15
101 W. Edison Avenue - Suite 219 285 $12.63
101 W. Edison Avenue - Suites 180, 247, 224, 234, 245 5,409 $12.00
304 N. Appleton Street 2,074 $8.50
Downtown Fond du Lac 19,901 $9.71
17 S. Main Street 3,200 $11.25
55 S. Main Street 6,474 $12.00
17 Forest Avenue 5,227 $12.00
51 E. 1st Street 5,000 $3.60
Downtown Menasha 16,700 $8.50
150 Main Street 16,700 $8.50
Downtown Neenah 12,821 $11.50
111 E. Wisconsin Avenue 10,226 $8.00
333 N. Commercial Street 2595 $15.00
Total 457,722 $11.48
Source: Oshkosh Chamber of Commerce, Downtown Oshkosh BID, LoopNet, Houseal
Lavigne Associates
Commercial Properties for Sale - Downtowns (2016)Primary Market Area
Property Property Size (SF)Asking Price Price (SF)
Center City Oshkosh 56,028 $321,427 $57.51
208 State Street 8960 $389,900 $43.52
210 N. Main Street 5638 Unavailable Unavailable
309 High Avenue Unavailable $138,000 Unavailable
703 Oregon Street Unavailable $55,000 Unavailable
909 Oregon Street 2205 $89,900 $40.77
216 N. Main Street Unavailable $299,900 Unavailable
319 Pearl Avenue 2,056 $174,000 $84.63
303 Pearl Avenue 10,200 $650,000 $63.73
405 Washington Avenue (Eagles Club)Unavailable $375,000 Unavailable
683 N. Main Street 11,165 $350,000 $31.35
601 Oregon Street (Second Floor)7,000 $799,000 $114.14
601 Bay Shore Drive (Warehouse)8,804 $215,000 $24.42
Downtown Appleton 327,878 $868,832 $41.68
820 W. College Avenue 23,572 $795,000 $33.73
122 S. Memorial Drive 9,600 $350,000 $36.46
225 N. Richmond Street 12,500 $625,000 $50.00
523 W. College Avenue 5,760 $349,000 $60.59
423 W. College Avenue 15,000 $297,500 $19.83
330 W. College Avenue 32,314 $3,900,000 $120.69
318 W. College Avenue 45,916 $1,500,000 $32.67
130 E. Franklin Street 8,530 $250,000 $29.31
122 E. College Avenue 53,125 $650,000 $12.24
323 N. Morrison Street 5,650 $299,000 $52.92
200 E. Washington Street #2A 88,888 $1,600,000 $18.00
128 N. Durkee Street 2,800 $149,900 $53.54
618 S. Olde Oneida Street (Light Industrial)24,223 $529,416 $21.86
Downtown Fond du Lac 28,600 222,850 $33.38
15 N. Main Street 3,100 $98,400 $31.74
7,9,11 N. Main Street 11,500 $225,000 $19.57
119 S. Main Street 6,000 $269,000 $44.83
161 S. Main Street 8,000 $299,000 $37.38
Downtown Menasha 0 $0 $0
None ------
Downtown Neenah 11,655 $272,000 $51.98
411 S. Commercial Street 3,936 $269,000 $68.34
216 N. Commercial Street 7,719 $275,000 $35.63
Total 424,161 $529,542 $45.46
Source: Loop Net; Houseal Lavigne Associates
Imagine Oshkosh: Existing Conditions Report 155
Developing Property in the Center City
160 Current Development Regulations
166 Incentives & Tools
172 Opportunity Sites
CHAPTER 3D
Current Development Regulations
This section proves an overview of the City’s current zon-
ing. The City’s Zoning Ordinance is Chapter 30 within the
Code of Ordinances. The Center City currently contains
5 zoning districts and 2 overlays which regulate the us-
age and intensity of land. Zoning Districts & Overlays
Reinvestment in existing property and the development of new
property is a key indicator of the health and vitality of a local
economy, as well as the ability to meet the demands of residents
and employers. This section details issues and opportunities
relating to building, improving, and reinvesting in commercial,
residential, and mixed-use properties within the Center City. It is
organized into the following sections:
◊Current Regulations, providing an overview of current zoning,
signage, and parking requirements;
◊Incentives & Tools, detailing existing programming that can be
leveraged to stimulate new development and redevelopment;
and
◊Opportunity Sites, identifying properties that are suitable for
redevelopment, development, or additional investment and
would have a catalytic impact on the Center City.
The detailed demographic and market information that provides
the foundation for much of the information in this chapter can
be found in Chapter 3b: Living in Downtown (as it relates to the
residential market) and Chapter 3c: Working in Downtown (as it
relates to the commercial market).
Imagine Oshkosh: Zoning Summary
District Acreage % of Study Area
R-2 20.9 5.2%
R-5 9.5 2.3%
C-2 11.5 2.8%
C-3 264.1 65.3%
M-2 75.7 18.7%
Split Zoning 23.0 5.7%
Total 404.62 100%
Overlay Districts
+ Downtown Overlay 67.7 16.7%
+ PD Overlay 128.5 34.0%
Note: District and overlay designations are not mutually exclusive.
Imagine Oshkosh: Existing Conditions Report158
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(C2) General Commercial
(C3) Central Commerical
(M2) Central Industrial
(R2) Two Family
Residence
(R5) Multiple Dwelling
(PD) Planned
Development Overlay
(DO) Downtown Overlay
Legend
CURRENTZONING
R-2 Two Family Residence District
The R-2 district permits single family homes, two family dwell-
ings, and other similar uses. The minimum lot dimensions are: 60
feet (width), 100 feet (depth), 7200 square feet (area), and 3600
square feet (per unit). Minimum residential structure dimensions
are: 35 feet (height), 7.5 feet (side yard setback), 25 feet (front
yard and rear yard setback), 1200 square feet (structure area),
400 square feet (dwelling unit structure). Permitted height and the
minimum side yard setback are increased to 45 feet and 10 feet,
respectively, for non-residential structures.
R-5 Multiple Dwelling District
The R-5 district accommodates a diversity of residential uses
at differing densities while also permitting fraternity and so-
rority houses, rooming houses, bed and breakfasts, and other
similar uses. The minimum lot dimensions are: 60 feet (width),
100 feet (depth), 7200 square feet (area), 1500 square feet (per
unit). Structure dimensions vary based on the type, however,
multi-family dwellings can only be at maximum 45 feet high and
setbacks include a sliding scale starting at 7.5 feet for sideyard
setbacks, a front yard setback of 25 feet, and a sliding scale
starting at 25 feet for rear yard setbacks. Dwelling unit square
footage must be 400 square feet at minimum.
Imagine Oshkosh: Existing Conditions Report160
C-2 General Commercial District
The C-2 district accommodates any use permitted in the C-1 district
(except residential uses) as well as banks, hotels, entertainment
uses (bowling alleys, movie theatre, etc.), and a wider variety of re-
tail stores. Mixed-use (commercial and residential) is not permitted
by right. Standards vary by the usage, detailed below.
◊Commercial structures are limited to 45 feet in height, with
setbacks as follows: 10 feet (side yard), 25 feet (front yard),
and 25 feet (rear yard).
◊Mixed Commercial/Residential structures must meet the stan-
dards of commercial structures with a minimum dwelling unit
area of 400 square feet. Residential units are only permitted on
upper floors.
C-3 Central Commercial District
The C-3 district permits any use permitted in R-5 and C-2, unless
when noted otherwise, as well as parking lots, automobile stor-
age garages, funeral homes, bus passenger depots, and more.
Mixed-use (commercial and residential) is not permitted by right.
Standards vary by the usage, detailed below.
◊Residential structures must meet all the standards of the R-5
district.
◊Commercial structures are limited to 45 feet in height, no
required front, rear, or sideyard setbacks.
◊Mixed Commercial/Residential structures must meet the stan-
dards of commercial structures with a minimum dwelling unit
area of 400 square feet. Residential units are only allowed on
upper floors.
Imagine Oshkosh: Existing Conditions Report 161
Downtown Overlay District
The Downtown Overlay District was established to foster a strong
viable downtown as a commercial, civic, residential, and cultural
center. The boundaries are generally considered to be the historic
Central Business District (CBD) and are roughly coterminous with
the Business Improvement District (BID), but two stretches of
streetwall along South Main are also included. The District imple-
ments minimum standards to preserve and restore historic build-
ings, ensure coordinated design between new and old buildings,
protect vehicular and pedestrian movement, and aid in improving
the overall economic viability of the district.
The district allows any uses permitted within the underlying
zoning district, but specifies that all residential uses are limited to
upper floor areas. No new detached residential units are permit-
ted. Any new building, building addition, and/or façade renovation
(where 50%+ is renovated) is subject to the following building
design standards:
◊Buildings must have one public entrance facing the primary
street.
◊Buildings shall be oriented to the public street and a minimum
of 70% of the façade shall be constructed at the setback line.
◊Facades shall incorporate design elements to denote base,
middle, and cap. Horizontal elements shall visually align with
similar elements of neighboring properties.
◊No height restriction.
◊Doors and windows should be similar in size, proportion, and
alignment based on the architectural style of the building and
adjacent properties. Original door and window openings shall
be maintained and shall be restored to original style and size if
the façade is being renovated.
◊Replacement windows shall fit exactly into the original window
openings and should match the historic windows in size, shape,
arrangement of panes, and materials.
◊Primary exterior building finishes must make-up atleast 75% of
the façade finish and consist of material equivalent in grade
and quality such as brick, stone, concrete panels with a grid or
brick-like appearance, terra cotta, cast iron, and more. EIFS and
metal may be used but not as a primary material.
◊When façade changes are made, hidden architectural elements
and original materials shall be restored or replaced to match
the original architecture of the building.
Additionally, properties must also follow the below signage stan-
dards, which supplements Section 30-37 of the Zoning Ordinance.
Key regulations include:
◊Signage shall relate to the design of the principal building on
the property. For buildings without a recognizable style, the
sign shall reflect the decorative features of the building or the
elements of the buildings in the adjacent area.
◊Portable, electronic message board, and sheet metal signs are
prohibited.
◊Projecting signs are limited to the tenant’s store name and logo
only.
◊Only one wall sign is permitted per storefront operation.
The district also requires that all mechanical equipment and ser-
vice areas be screened from the public view.
Planned Development Overlay District
The Planned Development Overlay District facilitates a more
flexible mixture and pattern of development, grouping of open
spaces, and arrangement of living patterns in accordance with
good planning principles. Several areas within the Center City area
are designated for/were built as planned developments, including
the City Center, Pearl Road area, the Jeld Wen site, Pioneer Island,
and more. When applied to a specific geographic area, the process
shall be governed by the PD process but the underlying zoning dis-
trict shall prevail in determining land uses, density, and intensity.
M-2
The M-2 district allows any use permitted C-3 district (except
hospitality and residential uses) as well as moderately intensive
industrial and manufacturing uses. No front, rear, or side yard set-
back is required. No minimum lot width or lot size is required for
uses also permitted in the M-1 district, but those found within the
M-3 district trigger different standards.
Imagine Oshkosh: Existing Conditions Report162
Off-Street Parking & Loading
Section 30-36 of the Zoning Code regulates off-street parking and
loading. Some of the key regulations affecting development in the
Center City include:
◊Parking is not required for non-residential uses in the C-3
Central Commercial District, however, when off-street parking
facilities are provided, such facilities shall be provided in ac-
cordance with the ordinance, except in respect to the required
number of spaces. Mixed-use and upper floor residential uses
need to provide evidence of the availability of off-street public
or private parking within 1,000 feet of the unit.
◊Required parking varies by use, with: multi-family parking re-
quiring 2 spaces per each unit with 2 bedrooms or less, and 0.5
spaces per additional bedroom; office uses requiring 5 spaces
for the first 1,000 square feet NFA plus 1 space per 300 square
feet thereafter; hotels requiring 1 space per guest room; and
general retail sales requires 1 space per 300 square feet plus 1
space per 1,000 square feet outside sales or display area.
◊Many uses have established maximums for parking to prevent
“overparking.”
◊Shared/pooled parking is permitted under the right conditions.
◊A minimum of four bike parking spaces may be provided in lieu
of one required automobile space in a nonresidential parking
lot with a maximum reduction of up to 5 parking spaces.
◊Loading and unloading facilities shall be provided for all com-
mercial and industrial structures unless an equivalent number
of spaces is provided in conformity with these regulations.
Signage
Signage is regulated within the Zoning Ordinance within section
30-37. Additional signage regulations for the Downtown area are
included within the Downtown Overlay District. The ordinance regu-
lates sign area, installation, type of sign, location of sign, and more.
Imagine Oshkosh: Existing Conditions Report 163
The city, state, and federal government offer various incentives
to encourage economic development and improvements to
existing properties. This section details available some of the
incentives and tools that could be leveraged to generate desired
redevelopment and development scenarios recommended in
Imagine Oshkosh.
Redevelopment Districts (City)
The City of Oshkosh, based on recommendations in the Comprehen-
sive Plan, created several redevelopment districts to further revital-
ization efforts and align resources and funding. The main source of
public funding has been through Tax Increment Financing (detailed
in the next section) with the purpose of creating the conditions
for private development. Within the project study area are eight
designated Redevelopment Areas, 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.
Incentives & Tools
Imagine Oshkosh: Existing Conditions Report164
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Excel sior & Badger
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South Shore
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REDEVELOPMENTAREAS
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Tax Incremental Financing (City)
Tax Increment Financing (TIF) is the most common economic de-
velopment tool utilized by Wisconsin cities to spur development.
Authorized by the state legislature in 1975, TIF allows munic-
ipalities 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.
In order for a TIF to be approved, among other factors, the de-
veloper must meet the “but for” test – that the new development
could not feasible but 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. The declaration is based on the type of
land that makes up 50% of the area in the TID, or which of the four
is predominant with regard to the TID area. The TID is terminated
at the end of the expenditure period (15-22 years, dependent upon
the district type), following receipt of tax increments that total
more than the project costs, or due to voluntary termination.
Eligible project must be consistent with the Comprehensive Plan
and meet seven basic objectives:
◊Stimulate and continued revitalization of the central city and
downtown area
◊Promote efficient usage of land through redevelopment of
blighted areas.
◊Strengthen the economic base of the City and support Econom-
ic Development.
◊Stabilize and upgrade targeted neighborhoods.
◊Create and retain family supporting jobs in the City.
◊Increase property values and tax revenues.
◊Leveraging the maximum amount of non-city funds into a de-
velopment and back into the community.
The project study area contains ten TIF districts. They are depict-
ed on the accompanying map, with information relating to each
TIF in the accompanying table. One outcome of Imagine Oshkosh
may be to recommend evaluating the creation of new TIFs or to
amend the boundaries of existing TIFs to accommodate recom-
mended development or redevelopment.
Tax Increment Financing Districts (2016)Center City Oshkosh
TIF #Termination Date TIF Type Purpose
10 September 16, 2020 Redevelopment Main & Washington Street Redevelopment – Washington Parking Lot/Economic Development
11 January 10, 2022 Redevelopment Oshkosh Office Center – Parking Lot
12 April 22, 2024 Redevelopment Division Street Redevelopment – Housing Redevelopment
13 September 22, 2025 Redevelopment Marion Road/Pearl Avenue Redevelopment – Commercial and Housing Development
15 January 9, 2028 Redevelopment Park Plaza/Commerce Street Redevelopment – Economic Development and Rehabilitation
16 May 22, 2028 Redevelopment 100 Block Redevelopment
17 September 25, 2028 Redevelopment City Center Redevelopment
20 July 12, 2032 Redevelopment South Shore Redevelopment Area
21 February 14, 2033 Redevelopment Fox River Corridor Project
25 May 22, 2039 Redevelopment City Center Hotel Redevelopment
Source: Houseal Lavigne Associates; City of Oshkosh
Imagine Oshkosh: Existing Conditions Report166
Historic Preservation Tax Credit (State)
The State’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% credit for qualified rehabilitation expenses. Eligible
buildings must be recommended by the State Historic Preserva-
tion 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 ser-
vice 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/or old
buildings. The credits are:
◊20% Federal Tax Credit. A 20% income tax credit is available for
the rehabilitation of historic, income-producing buildings that
are determined by the Secretary of the Interior, through the
National Park Service, to be “certified historic structures.” The
State Historic Preservation Offices and the National Park Service
review the rehabilitation work to ensure that it complies with
the Secretary’s Standards for Rehabilitation. The Internal Reve-
nue 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% 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. In order to qualify for the tax credit, the rehabilitation
must meet three criteria: at least 50% of the existing exter-
nal walls must remain in place as external walls, at least 75%
of the existing external walls must remain in place as either
external or internal walls, and at least 75% of the internal
structural framework must remain in place. There is no formal
review process for rehabilitations of non-historic buildings.
Revolving Loan Fund Program (City/EDC)
In 2014, the City established the Revolving Loan Fund Program
in partnership with the Greater Oshkosh Economic Development
Corporation. The $2.4 million program provides a flexible gap fi-
nancing tool for businesses involving high-income and job growth
projects through expansion and/or relocation in the City. Eligible
businesses may receive a loan minimum of $50,000 to a maxi-
mum of $200,000 to acquire land, buildings, and equipment; for
site preparation, construction, and/or rehabilitation; clearance or
demolition; and several other activities.
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%
of expenses up to $1,000.
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; tele-
marketing, other than inbound call centers; pawn shops; media
outlets; retail; farms; primary care medical facilities; financial
institutions; and businesses in the hospitality industry.
Enterprise Zone Tax Credit (State)
Enterprise Zone Tax Credits are available through the Wisconsin
Economic Development Corporation to assist Wisconsin business-
es 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 purchas-
es from Wisconsin vendors. Ineligible businesses include payday
loan and title loan companies; telemarketing; pawn shops; media
outlets such as newspapers and radio, unless the job creation is
significant; businesses in the tourism industry, unless the job cre-
ation is significant; retail; farms; primary care medical facilities;
and financial institutions.
Imagine Oshkosh: Existing Conditions Report168
Neighborhood Business Revitalization Guarantee (State)
The Wisconsin Housing and Economic Development Authority
(WHEDA) provides financial assistance to small businesses. The or-
ganization’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.
Affordable Housing Programming (State)
The Wisconsin Housing and Economic Development Authority
(WHEDA) provides several financing options for affordable hous-
ing developers and property managers to construct and maintain
affordable housing. Financing includes tax-exempt bond financ-
ing, stand-along bond financing, and flex financing, among others.
Special Project Loan Fund (State)
The Special Project Loan Fund is administered through the Wis-
consin 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.
Imagine Oshkosh: Existing Conditions Report 169
Opportunity sites are vacant and/or underutilized parcels where
development, adaptive-re-use, 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, only 20 sites were identified, mostly in
concentrated areas with the greatest likelihood of development
activity. These sites are only preliminary at this point; Imagine
Oshkosh will build upon this list and develop an actionable and
prioritized list of redevelopment scenarios that can achieve the
plan’s vision of increased vitality and activity.
Key criteria used to identify opportunity sites include:
◊Location
◊Visibility and access
◊Vacancy
◊Current use
◊Surrounding land uses
◊Ability to fill gaps in the street wall
◊Ability to generate new tax revenue
◊Ability to enhance urban character
◊Ability to create synergies with nearby land uses
Opportunity sites have been broken down into two categories:
Redevelopment Sites, which include development of vacant
parcels or demolition of an existing structure for a new structure;
and Value Add Sites, which include existing structures that should
be preserved but activated with expansion, higher occupancy,
repositioning, and/or adaptive re-use. Some sites include multiple
parcels; in some cases it may be appropriate to integrate existing
uses and buildings into larger redevelopment scenarios.
Opportunity Sites
Opportunity Sites (2016)Center City Oshkosh
#Type Current Use Acreage Functional Subarea Current Zoning # of Parcels # of Owners
A Redevelopment Parking Lot; Small Office 0.86 Downtown Core C-3 (+DO)2*2
B Value-Add Commercial Building 0.26 Downtown Core C-3 (+DO)1 1
C Redevelopment Bank 0.55 Downtown Core C-3 (+DO)1 1
D Redevelopment Commercial; Bank; Parking Lot 1.43 Downtown Core C-3 (+DO)3 3
E Redevelopment Parking Lot 0.73 Downtown Core C-3 (+DO)2 2
F Redevelopment Motel 0.50 Downtown Outer Core C-3 (+DO)1 1
G Redevelopment Bank 0.89 Downtown Core C-3 (+DO)1 1
H Redevelopment Parking Lot 0.27 Downtown Core C-3 (+DO)1 1
I Redevelopment Industrial; Vacant 7.65 Marion Road Waterfront M-2; C-3 (+PD)4 4
J Redevelopment Industrial 3.54 Marion Road Waterfront M-2 1 1
K Redevelopment Vacant Lot 2.58 Marion Road Waterfront C-3 (+PD)1 1
L Redevelopment Industrial; Vacant; Residential 36.57 South Shore West C-3 (+PD)14 8
M Value-Add Commercial 0.75 South Shore Central M-2; M-2 (+DO)7 4
N Redevelopment Vacant Lot 1.28 South Shore Central M-2 6 1
O Value-Add Industrial; Commercial 0.79 South Shore Central C-3 (+PD); M-2 (+DO)6 5
P Redevelopment Industrial; Commercial 39.53 South Shore East M-2 25 16
Q Redevelopment Commercial 15.86 South Shore East C-3 (+PD)1 1
*Denotes that parcels would have to be split to accommodate development
Source: Houseal Lavigne Associates; City of Oshkosh
Imagine Oshkosh: Existing Conditions Report170
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OPPORTUNITYSITES
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Activating the Center City
160 Current Development Regulations
166 Incentives & Tools
172 Opportunity Sites
CHAPTER 3E
Successful center cities are activity hubs with an integrated mix-
ture of offices, residences, restaurants, entertainment venues,
outdoor spaces, recreation, shopping, and more. This creates ac-
tivity on the street such as people walking, biking, dining al fresco,
and hanging out in the park. Such bustle and interaction is what
draws people to live, work, and play in center cities across the
country and gives them their sense of place.
This section provides an overview of issues relating to activating
the Center City, including:
◊◊Establishing Critical Mass, detailing major activity generators,
dead zones, existing festivals and programming, and the need
for year-round activities;
◊◊Touching the Water, providing an overview of how the water-
front relates to Center City activity and the need for further im-
provements; and
◊◊Providing Public Spaces & Green Spaces, detailing the need for
spaces that allow for socialization, recreation, and relaxation.
Imagine Oshkosh: Existing Conditions Report174
Establishing a critical mass of activity requires aligning multiple
public and private investments that can build on one another and
reinforce each other. If activity is too spread out, it dilutes the in-
vestment and creates small pockets of activity that fail to add up to
something larger. A core component of Imagine Oshkosh will be to
identify and prioritize “critical mass areas” within the study area.
Understanding Center City Users
At the most basic level, an understanding of activity in the Center
City requires an understanding of its users and modes of trans-
portation. Throughout any given day or week, the primary users
of the Center City may include:
◊Employees
◊Business owners
◊Government workers
◊Shoppers
◊Diners
◊Commuters
◊Government service users
◊Residents
◊Bicyclists
◊Boaters
◊Dog walkers
◊Drivers
◊Pedestrians
◊Tourists
◊Business conference/meeting attendees
Identifying Major Activity Generators
The Center City has many “activity generators” that stimulate
daytime, nighttime, and weekend traffic. Based on community
outreach, some of the major activity drivers in the Center City are
depicted in the accompanying map and include:
◊City Hall
◊Winnebago County Courthouse
◊Leach Amphitheatre
◊400-500 Block of N. Main Street
◊Public Library
◊Riverwalk / Waterfront
◊Farmers Market
◊Opera House
◊Opera House Square
◊Hotel/Convention Center
◊City Center
Establishing Critical Mass
Imagine Oshkosh: Existing Conditions Report 175
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MAJORACTIVITY GENERATORS
Hosting Outdoor Festivals & Events
Oshkosh hosts many events throughout the year that draw res-
idents and visitors to the Center City. Some of the major events
held in the Center CIty include:
◊Oshkosh Saturdays Farmers Market (June through October, held
along N. Main Street)
◊Gallery Walk (first Saturday of every month, held in Downtown
Oshkosh)
◊Waterfest (Thursdays in the summer, held at Leach Amphithe-
atre)
◊Irish Fest (early summer, held at Leach Amphitheatre)
◊Oktoberfest (fall, held at Leach Amphitheatre)
◊Chili Cook-Off (October, held in Opera House Square)
◊Gus Macker 3-on-3 Tournament (August, held in Opera House
Square)
Promoting Year-Round Events & Activities
As noted in an earlier chapter, much of the retail, hospitality,
and entertainment economy is dependent on the season. During
warm months, the Center City is activated with boat traffic along
the river and lake, concerts at the Leach Amphitheatre and Opera
House Square, the Farmers Market, and other outdoor activities
that draw residents and tourists to spend, shop, and stay in the
Center City. However, much of the Center City’s activities cease
in the winter months and cold temperatures can inhibit outdoor
events and walking, although ice fishing on the lake is popular
during the winter as well as snowmobiling and ice boating. The
world famous sturgeon spearing season happens for up to sixteen
days in February where over 13,000 special spearing licenses are
issued and Lake Winnebago is covered with ice shanties.
Imagine Oshkosh will evaluate opportunities for activating the
Center City year-round, particularly in colder months when activ-
ities wane. An example of other successful winter programming
includes “Take Back Your Winter” in Muskoka, Canada; former
programming in Oshkosh that was cancelled included Heart of
Winter Fest and an ice skating rink.
Imagine Oshkosh: Existing Conditions Report 177
One of Center City Oshkosh’s greatest assets is the ability to
“touch the water.” While many other center 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
speedboat, or launch a canoe. For example, in Downtown Ap-
pleton, steep bluffs separate the waterfront from Downtown; por-
tions of Downtown Neenah’s waterfront remain private residential
or industrial property, although it does have a short riverwalk and
green space at Arrowhead Park.
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 incom-
plete.
Continuation of the Riverwalk along the south shore is underway
as funding becomes available. A segment of the south shore
portion between Wisconsin Avenue and Michigan Street was com-
pleted in 2014 and the Boat Works Marina property was complet-
ed in 2016.
However, much work remains to continue its extension eastwards
to Pioneer Island. Imagine Oshkosh will incorporate existing plans
for the Riverwalk into the plan, advocate for its extension, and
ensure that redevelopment scenarios of South Shore properties
accommodate its extension.
Touching the Water
Imagine Oshkosh: Existing Conditions Report178
Capitalizing on Boat Activity
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 high-
way 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 water-
front is inviting and attractive. Imagine Oshkosh should provide
recommendations to encourage further boat traffic within the
Center City, making it the “place to be” for boaters. Examples
could include: redevelopment of Pioneer Island, redevelopment of
other waterfront properties, extension of the Riverwalk, public
art, additional boat launches, and more.
Imagine Oshkosh: Existing Conditions Report 179
Center City Oshkosh is fortunate to have several green and public spaces, including Roe Park, Opera
House Square, Riverside Park, and the plaza across from the Oshkosh Public Library. Proximate to the
study area are Shapiro Park and Steiger Park. However, much of the dedicated open space is concen-
trated near the waterfront and there are few public spaces or plazas outside of the very core of the
study area. Imagine Oshkosh will evaluate the creation of new green and public spaces, such as pocket
parks, plazas, dog parks, and more. Other options include programming space that is currently un-
programmed, such as adding a beach volleyball court in an existing green space. The addition of such
spaces could support residents living in/near the Center City, generate activity and excitement, and
provide recreation areas for visiting families.
Providing Public Spaces & Green Spaces
Small pocket parks located between buildings on formerly vacant lots
can serve as an oasis and public space for reading, people watching, and
eating lunch. This example in New York City has been very successful.
Source: Project for Public Spaces
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.
Imagine Oshkosh: Existing Conditions Report180
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OPENSPACES
Getting Around in the Center City
179 Motorized Mobility
186 Public Transit
188 Pedestrian & Bike Mobility
195 Streetscaping
CHAPTER 3F
The ability to safely and efficiently move through the Center City
is critical to quality of life as well as economic development.
While the Center City should accommodate both vehicles and pe-
destrians, walking should be the primary mode of transportation
within most areas of the Center City.
A distinguishing characteristic of any successful center city is a
strong pedestrian orientation. Even visitors that arrive by auto-
mobile become pedestrians the moment they park and exit their
cars. Unlike suburban commercial corridors, which are primar-
ily oriented toward the automobile, center cities should orient
toward the pedestrian. The movement of pedestrians between
stores, employment areas, dwelling units, theatres, restaurants,
parking areas, and the riverfront are critical considerations Imag-
ine Oshkosh must consider. A safe and attractive pedestrian envi-
ronment can significantly contribute to the overall character and
appeal of the Center City and help catalyze additional investment.
This section is organized into the following sections:
◊Motorized Mobility, providing an overview of the road network,
road conditions and classifications, parking, and freight rail;
◊Public Transportation, summarizing existing transit service
within the Center City;
◊Pedestrian & Bike Mobility, detailing sidewalks, trails, cross-
walks, bike infrastructure, and more; and
◊Streetscape, providing information on the existing N. Main
streetscape.
Imagine Oshkosh: Existing Conditions Report184
City of Oshkosh
Wisconsin Department of Transporation
RoadwayJurisdiction
Existing Planning
Transportation planning within the City is already guided by
several plans and policy documents. As the designated Metro-
politan Planning Organization (MPO) for the Fox Cities Urbanized
Area, the East Central Wisconsin Regional Planning Commission
(ECWRPC) develops a Long Range Transportation Plan that is
reviewed annually and updated every five years. In conjunction,
the Transportation Improvement Program (TIP) is an annually
prepared program of transportation projects that will be utilizing
federal funding assistance in their implementation. In addition, the
City of Oshkosh utilizes local transportation plans in conjunction
with several citizen transportation committees to guide decision
making for roadway and service improvements.
Roadway Jurisdiction
Roadways within the project area are controlled by WisDOT
and the City of Oshkosh. While the City has the power to make
improvements to roadways under its jurisdiction, improvements
to WisDOT roadways require coordination and collaboration to
ensure future roadway treatments meet appropriate design and
performance regulations, while balancing the needs of access and
mobility. Roadways under WisDOT jurisdiction include US 45 and
WI 44. As streetscape and roadway improvements are identified
in the planning process, it will be critical to keep jurisdictional
issues in mind to ensure feasibility of recommendations.
Motorized Mobility
Imagine Oshkosh: Existing Conditions Report 185
Functional Classification
The functional classification of a street or highway is dependent
on the balance of mobility and access it provides as well as the
surrounding land uses served by that street or highway. The
functional classification of roadways not only designates their
use and frequency of use (annual average daily traffic), but also
their design. According to WisDOT, the functional classification of
roadways criterion is predicated on the following:
◊Principal arterial. These roadways serve a large percentage
of travel between cities and other activity centers, providing
a high degree of mobility. Principal arterials carry the major
portion of trips entering and leaving an activity center, as well
as the majority of through movements that either go directly
through or bypass an area.
◊Minor arterial. Minor arterial roadways carry traffic for inter-
community trips, serving some local traffic while providing
greater land access than principal arterials.
◊Collector. Collectors provide direct access to residential neigh-
borhoods, commercial, and industrial areas, and serve moder-
ate to low daily traffic and inter-neighborhood trips.
◊Local Street. Local streets predominantly serve to access adja-
cent land uses. All streets not classified as arterials or collec-
tors are classified as local streets.
Trucks Routes
The City of Oshkosh has several designated multi-axle truck
routes used for the delivery of industrial and commercial goods.
Designated truck routes prevent significant noise and traffic
impacts to neighborhood streets. Several designated truck routes
run through the Center City, including along S. Main Street, N.
Main Street, Wisconsin Street, Oregon Street, Jackson Street, and
Irving Street. It is likely desirable for truck routes to be diverted
away from N. Main Street, which is the heart of the Center City,
and possibly S. Main Street (as the area redevelops away from
industrial usage).
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. Roadways within
the project area are considered good (7-8 rating: needing routine
maintenance such as crack sealing and minor patching), fair
(5-6 rating: needing preservation treatments (non-structural),
surface repairs, and partial-depth patching), and poor (rating 3-4:
requiring structural renewal (overlay), and extensive slab or joint
rehabilitation).
Imagine Oshkosh: Existing Conditions Report186
N
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S
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WASHINGTON AVE
VILAS AVE
JA
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CO
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CEAPE AVE
NORTHWESTERN AVE
PROSPECT AVE
N M
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SCOTT AVE
W 5TH AVE
E 7TH AVE
MIL
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OR
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NE
B
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MI
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MINNESOTA STIO
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BA
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W LINCOLN AVE
E LINCOLN AVE
FULTON AVE
DI
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RIV
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A
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MADISON ST
MERRITT AVE
CHUR
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A
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OTTER AVE
E PARKWAY AVE
MARKETST
E 1 5TH AVE
BALDWIN AVE
BRO
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STERLING AVE
E MELVIN AVE
CO
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S
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BAY SHORE D
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WAUGOO AVE
W MELVIN AVE
E SOUTH PARK AVE
E 1 1 TH AVE
JE
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UNION AVE
DIV
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POPLAR AVE
W 7TH AVE
PUBLIC ALLEY
SCHOOL AVE
W SOUTH PARK AVE
W 1 5TH AVE
W 1 2TH AVE
W 6TH AVE
W 1 4TH AVE
W 8TH AVE
W 1 1 TH AVE
W 1 0TH AVE
E 9TH AVE
E 1 4TH AVE
E 8TH AVE
PL
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A
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A
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W 5TH AVE
CAMP
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P
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ALGO
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HIGH
A
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A
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F
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W IRVING AVE
W 4TH AVE
W 3RD AVE
E 1 0TH AVE
W 9TH AVE
PEAR
L
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N
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S
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BR
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ST
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BR
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DAW
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44
44
44
45
45
9,00
1 0,1 00
1 0,900
1 0,5 00
1 2,
700
1 3,900
3,1 00
9,600
5 ,700
8,5 00
Signalized Intersection
Local Road
Collector
Minor Arterial
Principal Arterial
RAILROAD
On-Street Parking
City Parking Lot
Average Dail y Traffic
Truck Routes
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x
VEHICULARTRANSIT
Ongoing & Planned Capital Improvements
Each year the MPO prepares the Transportation Improvement Pro-
gram (TIP), which outlines transportation projects needing federal
funding assistance to achieve the goals in the LRTP. The TIP aligns
with the capital improvement program of local governments, con-
sidering 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. LRTP
Illustrative Projects within the project area include:
Planned Capital Improvement Projects (2015-2018)Center City Oshkosh
Project Description Cost (in 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: Existing Conditions Report188
Downtown Parking Study
The availability of on- and off-street parking is a critical com-
ponent to the overall transportation network. Earlier this year, a
Downtown Parking Study was authored by Walker Parking Consul-
tants that provides parking and operating strategies for Down-
town Oshkosh. It is intended that this separate study serve as
the parking strategy for the Downtown, complementing Imagine
Oshkosh.
This brief section summarizes the current conditions identified
in the report as well as conclusions and recommendations. It is
also included in the section summarizing past plans in studies in
Chapter 2: Let’s Talk.
Current Conditions
◊The current downtown parking supply includes 4,860 park-
ing 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 limit-
ed public access, and 12% are located on-street.
◊Roughly 1 in 3 parking spots within downtown is controlled by
City Center (31%).
◊The distribution of parking supply is within reasonable stan-
dards when compared to similar size cities.
Imagine Oshkosh: Existing Conditions Report 189
Conclusions & Recommendations
◊The current peak weekday parking demand in downtown Os-
hkosh 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 ap-
proximately 2,446 unoccupied parking spaces during peak week-
day conditions. Development of a new public parking structure
in downtown Oshkosh is not recommended at this time.
◊A future parking surplus is projected to occur under each of the
five potential downtown development scenarios. The surplus of
unoccupied parking supply is projected to range between 2,431
spaces for Scenario 1 and 1,376 spaces for Scenario 5.
◊Based on current data and future development scenarios ana-
lyzed by Walker, a new parking ramp is not needed to support
current or future parking demand in downtown Oshkosh.
◊While an overall surplus of parking exists today, and a surplus
is projected under future development scenarios, there are
localized areas with more intense demand patterns that can be
addressed through parking management practices.
◊It is recommended that the City of Oshkosh invest in informing
the community on downtown public parking options through the
development and implementation of a sign/wayfinding program,
community outreach efforts, and public parking branding strategy.
◊To more effectively manage the use of public parking resourc-
es in downtown Oshkosh, it is recommended that the City
implement an on-street paid parking system in the core area
of downtown. A primary goal of the public parking system is to
provide access to downtown destinations and events. 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. Downtown patrons and employees would be
provided a range of parking products to choose from that best
align with personal preferences.
◊While current typical 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 esti-
mate 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 associ-
ated with the public parking ramp.
Imagine Oshkosh: Existing Conditions Report190
Rail
An active Canadian National (CN) rail line runs through the eastern
portion of the study area in a north-south direction. It extends
from Fond du Lac through Oshkosh, heading north to Neenah,
Menasha, and Appleton. Roughly 26-30 trains per day utilize the
rail line. The rail line and switching lines form a physical barrier
between Pioneer Island and the properties to the west along S.
Main. After the rail line crosses the Fox River, it runs at grade
along Broad Street, forming the eastern boundary of the Imagine
Oshkosh study area. The presence of the existing rail right-of-way
must be considered in future development scenarios within the
South Shore East subarea.
Imagine Oshkosh: Existing Conditions Report 191
GO Transit
Public transportation is provided through GO Transit. Go Transit
offers 10 fixed bus routes, 6 of which serve the project area.
Buses typically run between 6:15 am and 6:45 pm with fares cur-
rently set at $1.00 or $0.50 for seniors and those with disabilities.
GO Transit buses are equipped with bicycle racks, increasing
multi-mobility within the region. Transit stops are marked by
signage, and some stops include covered rest area. Nevertheless,
the majority of bus stops within the study area lack benches or
other facilities to accommodate waiting riders. The Transit Center
is located at the intersection of Pearl Avenue and Market Street.
Titan Transit
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.
Public Transit
Imagine Oshkosh: Existing Conditions Report192
N
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WASHINGTON AVE
VILAS AVE
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WAUGOO AVE
CO
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OTTER AVE
NORTHWESTERN AVE
PROSPECT AVE
MERRITT AVE
NMAINST
SCOTT AVE
NE
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W 5TH AVE
E 7TH AVE
MIL
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FULTON AVE
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MARKETST
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BALDWIN AVE
BRO
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JE
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CO
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BAY SHORE D
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W MELVIN AVE
E SOUTH PARK AVE
E 1 1 TH AVE
ALGO
M
A
B
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V
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UNION AVE
POPLAR AVE
W 7TH AVE
PUBLIC ALLE
Y
SCHOOL AVE
W SOUTH PARK AVE
W 1 5TH AVE
W 1 2TH AVE
W 6TH AVE
W 1 4TH AVE
W 8TH AVE
W 1 1 TH AVE
W 9TH AVE
W 1 0TH AVE
E 9TH AVE
E 1 4TH AVE
E 8TH AVE
PL
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W 5TH AVE
CAMP
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W 4TH AVE
W 3RD AVE
E 1 0TH AVE
PEARLAVEMARION
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Route 1
Route 2
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Route 8
Route 1 0
Titan Transit Evening
Route
Titan Transit Late Night
Route
Route 1
Route 2
Route 3
Route 5
Route 6
Route 8
Route 1 0
Titan Transit Late Night
Route
Bench
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PUBLICTRANSIT
Legend
0 0.5 10.25 0.75 Miles 0 0.5 10.25 0.75 Miles 0 0.5 10.25 0.75 Miles 0 0.5 10.25 0.75 Miles
Downtown Appleton Center City Oshkosh Oshkosh(I-41 Commercial District)Suburban Oshkosh
Street Grid Comparisons
Street Grid
The street grid of any area impacts its function. The size and
shape of the blocks in the center city affect its walkability and
pedestrian-friendliness. A street grid with short blocks means an
area is more walkable and accessible. This is a key component of
a center city and a planning consideration where walkability and
pedestrian friendliness are primary objectives.
There is a direct correlation between the size of blocks of an area
and its use and function. 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. Other
cited benefits that are attributed to pedestrian-scaled block sizes
include less traffic congestion, cleaner air, enhanced social capital
(face-to-face interaction) among residents, and healthier citizens.
Citizens that are driving less and walking more in the center city
of a community will also have more interaction with neighbors and
community members, helping to establish a critical mass. Increas-
ing interaction among residents will in turn increase the area’s
social capital and help create a greater sense of community.
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 angular orientation of some side streets to the west
of N. Main Street, combined with block length, can also inhibit
pedestrian friendliness and cause disorientation. It is not expect-
ed or recommended that the historic street grid will change given
existing development patterns; however, it becomes that much
more important to ensure that “super blocks” contain pedestrian
amenities, visual interest, and other forms of activity.
As redevelopment occurs within the study area, Imagine Oshkosh
will advocate for preserving the existing street grid and making
new connections, where possible. This will be especially important
as several large multi-acre sites redevelop on the South Shore.
Pedestrian & Bike Mobility
Imagine Oshkosh: Existing Conditions Report194
N
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WASHINGTON AVE
VILAS AVE
JA
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DAW
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WAUGOO AVE
CO
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OTTER AVE
NORTHWESTERN AVE
PROSPECT AVE
MERRITT AVE
NMAINST
SCOTT AVE
NE
B
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W 5TH AVE
E 7TH AVE
MIL
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OR
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MI
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BA
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W LINCOLN AVE E LINCOLN AVE
FULTON AVE
DI
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CHUR
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MARKETST
E 1 5TH AVE
BALDWIN AVE
BRO
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JE
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S
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CO
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BAY SHORE D
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W MELVIN AVE
E SOUTH PARK AVE
E 1 1 TH AVE
ALGO
M
A
B
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V
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UNION AVE
POPLAR AVE
W 7TH AVE
PUBLIC ALLE
Y
SCHOOL AVE
W SOUTH PARK AVE
W 1 5TH AVE
W 1 2TH AVE
W 6TH AVE
W 1 4TH AVE
W 8TH AVE
W 1 1 TH AVE
W 9TH AVE
W 1 0TH AVE
E 9TH AVE
E 1 4TH AVE
E 8TH AVE
PL
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W 5TH AVE
CAMP
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A
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W IRVING AVE
W 4TH AVE
W 3RD AVE
E 1 0TH AVE
PEARLAVEMARION
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Wayfinding Signage
Sidewalk
Bike Lane
Multi-Use Trail
Sharrow
Pl anned Bike Route -
Sign & Stripe
Pl anned Bike Route -
Sign & Share
Bike Rack
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PEDESTRIAN &BICYCLE FACILITIES
Legend
Complete Streets
A “complete street” is a roadway that is designed to be safe for
all users of the transportation network, including motorists, tran-
sit riders, bicyclists, and pedestrians. A key recommendation in
Vision Oshkosh Plan (2009) was to prepare and adopt a “complete
streets” plan. Imagine Oshkosh will evaluate roadways within the
study area for applicability for “complete streets” programming.
Sidewalks
The City of Oshkosh has an extensive, well-connected sidewalk
network. The network consists of sidewalks as well as 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 are created equally. The width, placement, and design
of sidewalks, as well as their use on different roadway classifi-
cations, can have a significant impact on pedestrian comfort and
overall use. While the City’s sidewalk network and best practices
are presented within the 2011 Pedestrian and Bicycle Circulation
Plan, the following analysis focuses on issues specific to the
study area.
Sidewalk Typology
The study area includes two types of sidewalks:
◊Carriage walks. Carriage walks are those in which the sidewalk
is directly adjacent to the roadway. This sidewalk placement
creates an uncomfortable pedestrian experience, with pedes-
trians adjacent to moving traffic. Carriage walks 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 pre-
ferred sidewalk gap treatment to provide a landscaped buffer
between pedestrians and vehicles. In addition to enhancing pe-
destrian 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.
While it is challenging to retrofit existing built-out areas with
wider sidewalks and pedestrian amenities, it can be possible.
Where the right-of-way width exists, streetscaping initiatives can
widen the sidewalk by reducing traffic or parking lanes. Addition-
ally, redevelopment of large properties or blocks could lead to the
development of better sidewalks along those blocks.
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
Sidewalks along S. Main Street are carriage walks. Their narrowness and
proximity to the roadway, which is also a truck route, can create a less
inviting pedestrian experience.
Imagine Oshkosh: Existing Conditions Report196
Frontage Zone PedestrianZone FurnitureZone CurbZone
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.
Imagine Oshkosh: Existing Conditions Report 197
Crosswalks
While streets with low traffic volume (<3,000 ADT), low speeds (<20 mph), and few lanes (1-2) do not
warrant marked crosswalks, marked crosswalks are generally in place at all other intersections within
the study area. Center City crosswalks are painted with a standard, transverse crosswalk design; how-
ever, there are more high-visibility design solutions that may increase crosswalk visibility and pedestri-
an safety. This is particularly important at mid-block crossings where stop lights, signals, and timers do
not exist.
Transverse Crosswalk
These serve as traditional crosswalk
marking, using two parallel bands to
delineate pedestrian space. This type of
crosswalk marking is difficult for motor-
ists 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 deco-
rative 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.
Imagine Oshkosh: Existing Conditions Report198
Riverwalk
The Oshkosh Riverwalk is one of the community’s most cherished
amenities and a world class asset to the Center City. Oshkosh is
the only community in the area where downtown pedestrians can
“touch the water” and hop directly into a motor boat or canoe.
Upon completion, it 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 Uni-
versity of Wisconsin-Oshkosh and the Wiouwash Trail. At present,
the northern shore of the project is complete while the south
shore portion remains incomplete.
Continuation of the Riverwalk along the south shore is underway
as funding becomes available. A segment of the south shore
portion between Wisconsin Avenue and Michigan Street was
completed in June 2016, including a bridge, picnic area, restroom,
and boat/kayak/canoe launch. Further expansion is proposed in
the new Morgan Door redevelopment plan, extending the trail to
Oregon Street.
However, much work remains to continue its extension eastwards
to Pioneer Island. Imagine Oshkosh will incorporate existing plans
for the Riverwalk into the plan, advocate for its extension, and
ensure that redevelopment scenarios of South Shore properties
accommodate its extension.
Imagine Oshkosh: Existing Conditions Report 199
Bicycle Facilities
The City of Oshkosh has a growing bicycle network; nevertheless, bi-
cycle facilities within and through the Center City are limited. The 2011
Pedestrian and Bicycle Circulation Plan serves as resource of best prac-
tices and addresses future improvements to the City’s bicycle network.
Most recently, the City began public outreach efforts and studies
to install a bike lane on East Irving Avenue between Wisconsin
Street and Hazel Street and a bike lane on N Main Street from Ir-
ving Avenue to New York Avenue. The Irving Avenue project would
require removal of on-street parking to one side of the street.
Most recent public outreach demonstrates strong support for
both these projects, which were identified as high priority streets
within the 2011 Pedestrian and Bicycle Circulation Plan.
Additional priority improvements identified within the study area
by the 2011 Plan include:
◊Sign & Share are streets designated as bike routes through the
use of signage and/or sharrows. Sign & Share streets include N
Main Street between Murdock Avenue and Washington Avenue;
Main Street Bridge; Court Street between Ceape Avenue and
the Riverwalk; Ceape Avenue between Broad Street and Court
Street; 10th Avenue between Michigan Street and S Main Street;
and Michigan Street between 4th Avenue and Osborn Avenue.
◊Sign & Stripe are streets designated as bike routes through the
use of striped bicycle lanes and signage. Sign & Stripe streets
include Algoma Boulevard between W New York Avenue and
N Main Street; High Avenue between Congress Avenue and
Commerce Street; Commerce Street between Waugoo Avenue
and Ceape Avenue; State Street between Ceape Avenue and
Washington Avenue; N Main Street between Ceape Avenue and
6th Avenue; Trunk Highway 44 between W Irving Avenue and S
Riverwalk; 6th Avenue between Idaho Street and S Main Street;
and 12th Avenue between Ohio Street and S Main Street.
◊Off-Road Trails are traffic separated bicycle facilities, such as
the Riverwalk.
Bike Parking
Streetscape improvement in the Center City yielded several bicy-
cle parking facilities along the Main Street corridor. These bike
racks provide critical bicycle storage infrastructure. In addition,
the City’s zoning ordinance incentivizes the installation of bicycle
parking on private development by allowing for a reduction in
parking spaces (City of Oshkosh Zoning Ordiannce, Section 30-
36.F.4). For every four bicycle parking spaces installed, one less
parking space is required, up to five parking spaces. This incentive
provides a good start to creating additional bicycle parking facili-
ties, however, it may not be significant enough to compel private
property owners to accommodate bikes.
Imagine Oshkosh: Existing Conditions Report200
The public right-of-way encompasses a significant holding of land
within the study area. These corridors are not only a means of trans-
portation and utility transmission, but play a large role in defining the
character of the community.
Recent streetscaping along N. Main Street from the Fox River in the
south to Irving Avenue has established a unique identity and pedes-
trian friendliness that sets it apart from the rest of the city and many
other communities. Brick accents mark the edge of the sidewalk while
street trees, lighting, and banners create a safe and inviting feel. In
addition, the use of planters, trash receptacles, and benches create
small hubs of activity. Streetscape elements not only help to identify
an area, but can be used to create a unique sense of place.
Elements include:
◊Lighting. Lighting not only contributes to community safety,
but also adds visual interest. Lighting within downtown is best
utilized when at the pedestrian scale and includes full-cutoff
design to reduce light pollution and glare.
◊Landscaping. Landscaping includes the use of street trees, dec-
orative planters, and parkway and bumpout vegetation. It plays
a significant role to provide shade, define space, and create a
sense of enclosure, as well as can be a contributor for effective
stormwater management.
◊Furniture. Street furniture plays an important role in placemak-
ing and includes such elements as seating, trash receptacles,
bollards, bike racks, and more. Public seating provides opportu-
nities for relaxation, people watching, and public gathering.
Imagine Oshkosh will evaluate additional areas for potential
streetscape expansion, such as Oregon Street or S. Main.
Streetscaping
Imagine Oshkosh: Existing Conditions Report 201
Partnering in the Center City
198 “Who’s Our Leader & Champion?”
199 Planning Partners
CHAPTER 3G
This section identifies organizations who have a stake in the suc-
cess of the Center City, whether it is living, working, activating, or
getting around in the Center City. As Imagine Oshkosh is being de-
veloped, it is expected that the organizations summarized in this
section will have a role in plan implementation. Please note that
this chapter is a working list that is evolving and is not currently
all inclusive.
“Who’s Our Leader & Champion?”
During the outreach process, it was communicated – particularly
in stakeholder interviews – that economic development lead-
ership within the Center City is fragmented 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 of was the not-for-profit Downtown Ap-
pleton, Inc.
This does not mean that progress is not being made or that
particular organizations do not work well together, but merely
that greater efficiency and progress could be achieved through
better cohesion, clearer roles, and aligned resources. The most
prominent groups for economic development within Center City
currently are the Business Improvement District (note: the juris-
diction only covers a portion of the study area), City of Oshkosh,
Greater Oshkosh EDC, and Chamber of Commerce. Imagine Osh-
kosh should help clarify existing roles or establish a framework
for clear leadership and responsibilities within the Center City,
starting with resources that are already available.
Imagine Oshkosh: Existing Conditions Report204
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 currently 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 & Beautification Committee
◊Redevelopment Authority (RDA)
City of Oshkosh - Department of Community Development
Planning Services Division
The Planning Service Division is responsible for zoning and subdi-
vision regulations, land use planning, economic development, his-
toric preservation and housing programming. The Division applies
for and administers the CDBG Program and Brownfield Grants, as
well as oversees the Sustainable Oshkosh program and Oshkosh
Healthy Neighborhoods Alliance.
Economic Development Division
The Economic Development Division is responsible for implement-
ing the City of Oshkosh Economic Development Plan. This Plan will
guide the City’s economic development efforts and investment
strategy for the next five years in coordination with the Greater
Oshkosh EDC and various other partners in the region.
Planning Partners
Imagine Oshkosh: Existing Conditions Report 205
Business Improvement District
The Downtown Oshkosh Business Improvement District (BID) was
established in 1987 initially to supply downtown parking but has
evolved into assisting with marketing, promotion, property man-
agement, revitalization, and business retention programs.
The BID is funded through property assessments. Property owners
within BID contribute a self-imposed levy that is calculated based
on a number of 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 a yearly operating
budget that is used to fund one full-time manager, the Recruit-
ment 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 EDC
Greater Oshkosh EDC provides leadership, direction, coordination,
and services to advance economic development in the greater
Oshkosh area. In addition to and strategy, GOEDC administers a
number of tools, including an interactive inventory of sites and
facilities, a Revolving Loan Fund Program, and a number of in-
formational resources for businesses and entrepreneurs.
Oshkosh Chamber of Commerce
The Oshkosh Chamber of Commerce is a member-based organi-
zation that advocates for more than 1,000 businesses within the
Oshkosh area. It is the fifth largest chamber in Wisconsin and
achieved a 5-star rating. The Chamber provides resources that
include networking opportunities and business startup and eco-
nomic development information. 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 organizations and the community; and Propel Oshkosh,
a development and networking group aimed at attracting and re-
taining young individuals for local businesses in the Oshkosh area.
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
event and amenities 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 approximately 45 in the winter. The volunteer-based or-
ganization works with local businesses to provide public restrooms and
is a key economic development driver in downtown. It supports and
accommodates other community events, such as Gus Macker, Main
Street Music Festival, Square Fair, Chili Cookoff, Chalk Walk, and more.
Imagine Oshkosh: Existing Conditions Report206
Oshkosh Public Library
The Oshkosh Public Library serves as the community’s “knowl-
edge center.” With more than 1,000 visitors a day, it is a signif-
icant driver of activity in the Center City. Library leadership is in
the process of transforming the Public Library into a “social com-
mons,” 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 organi-
zation that provides funding for projects that improve the Osh-
kosh community. Grant funding is directed at projects the expand
access to the arts, education, and quality of life for residents.
University of Wisconsin Oshkosh
The University of Wisconsin Oshkosh is the third largest universi-
ty 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 multi-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 also been an active
partner in Downtown development; it was 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, Out-
agamie, Shawano, Waupaca, Waushara and Winnebago. ECWRPC
staff provides assistance in the following areas: environmental,
economic development, open space, land use, housing, communi-
ty, transportation, and GIS.
Amplify Oshkosh
Amplify Oshkosh is a local organization focused on growing the
tech economy in Oshkosh. It looks to empower the IT community
through connections with industry leaders, promote awareness
by hosting idea exchanges and cross-promotion, and strengthen
the entrepreneurial spirit within Downtown’s IT community.
Oshkosh Opera House Foundation
The Oshkosh Opera House Foundation is responsible for The
Grand’s performance season and rental activities. Each year,
over 25 public performances and approximately 10 youth events
comprise the fine arts season with additional activities, including
community theater, corporate meetings and weddings, filling
The Grand to capacity. The Opera House is owned by the City of
Oshkosh.
Other Critical Partners
◊Residents
◊Developers
◊Investors
◊Business Leaders
◊Small Business Owners
Imagine Oshkosh: Existing Conditions Report 207