HomeMy WebLinkAboutOshkoshCompPlanFinalAdopted
October 9, 2018
City of Oshkosh
Comprehensive Plan Update 2040
City of Oshkosh Comprehensive Plan
Update 2040
City of Oshkosh
October 9, 2018
Prepared by the
East Central Wisconsin Regional Planning Commission
EAST CENTRAL WISCONSIN REGIONAL PLANNING COMMISSION
Martin Farrell, Chair
Jeff Nooyen, Vice-Chair
Eric Fowle, Secretary-Treasurer
COMMISSION MEMBERS
CALUMET COUNTY SHAWANO COUNTY
Alice Connors Jerry Erdmann, Chair
Hope Karth Thomas Kautza
Merlin Gentz Chuck Dallas
Rick Jaeckels
WAUPACA COUNTY
FOND DU LAC COUNTY
Dick Koeppen
Allen Buechel James Nygaard
Martin Farrell Brian Smith
Brenda Schneider DuWayne Federwitz
Karyn Merkel
(Joseph Moore, Alt.) WAUSHARA COUNTY
Charles Hornung
Donna Kalata
MENOMINEE COUNTY Larry Timm
Neal Strehlow
Ruth Winter
Elizabeth Moses WINNEBAGO COUNTY
(Jeremy Johnson, Alt.)
James Lowey Mark Harris
Shiloh Ramos
OUTAGAMIE COUNTY (David Albrecht, Alt.)
Ernie Bellin
Thomas Nelson Steve Cummings
Daniel Rettler Ken Robl
Timothy Hanna Robert Schmeichel
Jeff Nooyen
Michael Thomas EX-OFFICIO MEMBERS
Kevin Sturn
Jill Michaelson, WisDOT
Ronald McDonald, Valley Transit
CITY OF OSHKOSH GOVERNING BOARD MEMBERS
PLAN COMMISSION
David Borsuk
Edward Bowen
Steve Cummings (Mayor)
Tom Fojtik (Chair)
Mike Ford
John Hinz
John Kiefer
Andrew Mott
Thomas Perry
Kathleen Propp (Vice Chair)
Robert Vajrt
COMPREHENSIVE PLAN UPDATE COMMITTEE
Lurton Blassingame
David Borsuk
Edward Bowen
Steve Cummings (Mayor)
Thomas Fojtik
Gary Gray
John Hinz
Donna Lohry
Stan Mack
Ruth McGinley
Karl Nollenberger
Kathleen Propp
Julia Salomón
Tom Sonnleitner
Jeffrey Thoms
Robert Vajgrt
CITY COUNCIL
Debra Allison-Aasby
Steve Cummings (Mayor)
Steve Herman
Jake Krause
Lori Palmeri (Deputy Mayor)
Matt Mugerauer
Thomas Pech
i
ABSTRACT
TITLE: CITY OF OSHKOSH COMPREHENSIVE PLAN UPDATE
2040
CONTACT: Tom Baron, AICP, Principal Planner, ECWRPC
Darryn Burich, Planning Director, City of Oshkosh
AUTHORS: Tom Baron, AICP Principal Planner
Darryn Burich, Planning Director, City of Oshkosh
Mark Lyons, Principal Planner, City of Oshkosh
Alexa Naudziunas, Assistant Planner, City of Oshkosh
Kelly Nieforth, Economic Development Services Manager,
City of Oshkosh
Eric Fowle, AICP, Executive Director
Todd Verboomen, Associate Planner
Kolin Erickson, Planner
Sarah Van Buren, Associate Planner/Economic Development
Tyler DeBruin, GIS Assistant
Kyle McNair, GIS Assistant
SUBJECT: Comprehensive Plan Update for the City of Oshkosh
DATE: October 9, 2018
PLANNING AGENCY: East Central Wisconsin Regional Planning Commission
SOURCE OF COPIES: East Central Wisconsin Regional Planning Commission
400 Ahnaip Street, Suite 100
Menasha, WI 54952
(920) 751-4770
www.ecwrpc.org
This report describes the goals, objectives and recommendations for the comprehensive plan
update for the City of Oshkosh, Winnebago County, WI.
CHAPTER 1
INTRODUCTION
CHAPTER 1: INTRODUCTION
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………......1-1
Planning History………………………………………………………………………………………..1-1
Plan Purpose……………………………………………………………………………………………1-1
Enabling Legislation……………………………………………………………………………………1-1
Comprehensive Plan Format………………………………………………………………………….1-2
Interrelationships between Plan Elements…………………………………………………………..1-3
Planning Process……………………………………………………………………………………….1-3
City of Oshkosh Comprehensive Plan Update 2040
Chapter 1: Introduction
East Central Wisconsin Regional Planning Commission 1-1
CHAPTER 1: INTRODUCTION
INTRODUCTION
Located within the Fox Cities in northeast Wisconsin, Oshkosh is strategically located along the
western shores of Lake Winnebago. With a population of nearly 67,000 people, the City offers
residents the friendliness and strong community spirit of a small town and the amenities of a
much larger area. The City encompasses about 17,700 acres and includes a mix of residential,
commercial, industrial and recreational land uses. Embracing its past, Oshkosh’s unique and
distinct character merges the historic architecture of the past with the modern design of today.
PLANNING HISTORY
Oshkosh enjoys a long history of land use and comprehensive planning. This plan updates an
earlier comprehensive plan that was originally adopted by the City in 2005. To comply with the
“Smart Growth” legislation (Wisconsin Statutes 66.1001), a comprehensive plan “shall be
updated no less than once every 10 years”. This update maintains compliance for this
legislation.
PLAN PURPOSE
The purpose of the City’s comprehensive plan is to assist local officials in making land use
decisions that are harmonious with the overall vision of the community’s future. Developing a
comprehensive plan is a proactive attempt to delineate the ground rules and guidelines for
future development. Comprehensive planning decisions evaluate existing facilities and future
needs; promote public health, safety, community aesthetics, orderly development and preferred
land use patterns; and foster economic prosperity and general welfare in the process of
development. The plan evaluates what development will best benefit the community’s interests,
while at the same time provide flexibility for land owners and protect property rights.
ENABLING LEGISLATION
This plan was developed under the authority granted by Wisconsin Statutes 66.1001. If the
local governmental unit enacts or amends any of the following ordinances, the ordinance should
be consistent with local government’s comprehensive plan:
Official mapping ordinances enacted or amended under s. 62.23 (6).
Local subdivision ordinances enacted or amended under s. 236.45 or 236.46.
City or village zoning ordinances enacted or amended under s. 62.23 (7).
Shorelands or wetlands in shorelands zoning ordinances enacted or amended under s.
59.692, 61.351, 61.353, 62.231, or 62.233.
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COMPREHENSIVE PLAN FORMAT
This comprehensive plan is composed of the nine elements required by the Wisconsin Statutes
66.1001:
1. Issues and Opportunities
2. Economic Development
3. Housing
4. Transportation
5. Utilities and Community Facilities
6. Agricultural, Natural and Cultural Resources
7. Land Use
8. Intergovernmental Cooperation
9. Implementation
In addition, the state requires that Wisconsin’s 14 goals for local planning be considered as
communities develop their goals, objectives and recommendations. These goals are:
1. Promotion of the redevelopment of lands with existing infrastructure and public services
and the maintenance and rehabilitation of existing residential, commercial, and industrial
structures.
2. Encouragement of neighborhood designs that support a range of transportation choices.
3. Protection of natural features, including wetlands, wildlife habitats, lakes, woodlands,
open spaces, and groundwater resources.
4. Protection of economically productive farmlands and forests.
5. Encouragement of land uses, densities, and regulations that promote efficient
development patterns and relatively low municipal and state governmental utility costs.
6. Preservation of cultural, historic, and archeological sites.
7. Encouragement of coordination and cooperation among nearby units of government.
8. Building of community identity by revitalizing main streets and enforcing design
standards.
9. Providing an adequate supply of affordable housing for individuals of all income levels
throughout each community.
10. Providing adequate infrastructure and public services and an adequate supply of
developable land to meet existing and future market demand for residential, commercial,
and industrial uses.
11. Promoting the expansion or stabilization of the current economic base and the creation
of a range of employment opportunities at the state, regional, and local levels.
12. Balancing individual property rights with community interest and goals.
13. Planning and development of land uses that create or preserve varied and unique urban
and rural communities.
14. Providing an integrated, efficient, and economical transportation system that affords
mobility, convenience, and safety that meets the needs of all citizens, including transit
dependent and disabled citizens.
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INTERRELATIONSHIPS BETWEEN PLAN ELEMENTS
Although all required elements are presented as separate chapters, it is important to recognize
that they are interrelated. For instance, transportation infrastructure allows for the movement of
goods, services, and employees; likewise, land use and zoning affects the types of housing that
can be built within the City, thus affecting the affordability of housing.
Chapter 10: Implementation integrates the goals into one location, Map 10 -1 Future Land Use,
which not only depicts future land use but also illustrates key items that affect land use, as
identified in other elements. These include, but are not limited to, natural resources, growth
areas, potential upgrades to transportation infrastructure (trails and roads) and public
infrastructure.
PLANNING PROCESS
The City’s comprehensive plan was completed in six phases, all of which provided opportunities
for public involvement, as specified in the public participation plan (Appendix A). The phases
include: Organization, Plan Kickoff, Inventory/Analysis and Issue Identification, Plan/Goal
Alternative Development, Plan Implementation, and Plan Adoption. The City’s Comprehensive
Plan Update Committee worked with East Central staff on the development of the plan.
Public Participation
Public participation is a major component of the comprehensive planning process. In
accordance with s. 66.1001 (4), which defines “Procedures for Adopting Comprehensive Plans”,
the City actively sought public participation from its citizens. To gain citizen understanding and
support throughout the planning process, the public was provided with a variety of meaningful
opportunities to become involved in the process. The first step in the planning process was the
development and adoption of a public participation plan for comprehensive planning. Public
input was encouraged through meetings and activities. Recent Riverfront Visioning session
input was also utilized. Oshkosh State of the City events included a booth with materials for the
update along with comment opportunities. Seventeen (17) public meetings with the
Comprehensive Plan Update Committee were held. A public hearing was held to present the
final draft version of the plan to the general public and neighboring municipalities and to solicit
further input. The draft plans were available for review at the Oshkosh Public Library, City Hall,
and the comprehensive plan update website. A website specific to the planning effort was
developed for the planning effort.
Intergovernmental Meeting
The City hosted an intergovernmental meeting February 26, 2018. Invitations, which included a
link to the plan documents and future land use map, were sent to neighboring jurisdictions,
county departments, local governmental units, state agencies and those with non-metallic
mineral interests near the City.
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The meeting was designed as an open forum for the City to solicit input into the development of
the comprehensive plan update.
Written Comments
Written comments were solicited throughout the planning process. A website and was
developed and maintained by the City and the East Central Wisconsin Regional Planning
Commission.
Public Hearing
A formal public hearing on the proposed comprehensive plan update was held by the City’s Plan
Commission prior to recommendation to the City Council for approval of the plan. The hearing
was held on 9/4/18 to solicit input on the comprehensive plan. The plan received readings at
Common Council meetings on 9/25/18 and 10/9/18.
A Class I public notice was published in the Oshkosh Northwestern on 8/24/18. Copies of the
City’s draft comprehensive plan update was available for review at the Oshkosh Public Library,
City Hall in the Community Development Department, and on the City’s comprehensive plan
update website. Notices were sent to non-metallic mining operators and the Oshkosh Public
Library.
CHAPTER 2
ISSUES AND OPPORTUNITIES
CHAPTER 2: ISSUES AND OPPORTUNITIES
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 2-1
Key Summary Points………………………………………………………………………………….. 2-1
Inventory and Analysis………………………………………………………………………………… 2-2
Population Trends...…………………………………………………………………………………… 2-2
Race………………………………………………………………………………………………….…. 2-9
Household Structure and Trends………………….……………………………………………….. . 2-10
Income and Education……………………………………………………………………………… ... 2-12
Group Quarters Population………………………………………………………………………….. . 2-16
Policies and Programs……………………………………………………………………………… .. 2-16
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CHAPTER 2: ISSUES AND OPPORTUNITIES
INTRODUCTION
The Issues and Opportunities chapter provides information regarding the socioeconomic
conditions and growth patterns within the City. This information aids in defining existing
problems and identifying available socioeconomic resources. Changes in population and
household characteristics combined with existing development patterns and policy choices will
determine how well the City will be able to meet the future needs of its residents and the 14
comprehensive planning goals established by the Wisconsin Legislature.
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Population Trends
a) The City experienced a significant gain in population between 1980 and 2000, followed
by a moderate rate of population growth between 2000 and 2015.
b) Between 2010 and 2015, the population in the City is estimated to have grown by 1.2%,
outpacing the estimated growth in the county (0.9%) and the same as the state (1.2%).
c) The City is expected to grow by 11.7% (7,717 people) between 2010 and 2040 (WDOA).
d) From 2000 to 2010, the overall population density of the City decreased from 2,595.5
persons per square mile in 2000 to 2,485.3 persons per square mile in 2010.
e) In 2010, the median age of City residents was 33.
f) The child bearing population (25 to 44) comprised the City’s largest cohort in both 2000
(29.7%) and 2010 (26.7%).
Race
a) In 2010, whites comprised 90.5% of the City population compared to 92.5% in the
county and 86.2% of the state’s population.
Household Structure and Trends
a) Household size in the City decreased slightly from 2.31 persons per household in 2000
to 2.26 persons per household in 2010.
b) In 2000 (56.7%) and 2010 (52.9%), just over half of the households in the City were
family households.
c) Married couple families (husband and wife) made up 38.7% of all households in the City
in 2010, compared to 47.8% in Winnebago County and 49.6% in the state.
d) The number of households is expected to increase by about 16.0% from 26,138 in 2010
to 30,309 in 2040.
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Income and Education
a) The City had a slightly lower percentage of residents age 25 or older who graduated
from high school or higher (89%) than the county (92.0%) and the state (91%) (2010-
2014 American Community Survey 5-Year Estimates).
b) The share of residents holding a bachelor’s degree or higher increased by 1.7% in the
City between 2000 (23.1%) and 2010-2014 5- Year Estimates (24.8%).
c) Approximately 77.8% (+/-1.3%), of households derive income from earnings in the City
(2010-2014 American Community Survey).
d) The City’s median household income in 1999 was $37,636; this was lower than both
Winnebago County’s median income of $44,445 and the State of Wisconsin’s median
income of $43,791.
e) The City median family income was $59,818, which was an increase from the 1999
median family income of $48,843 (2010-2014 ACS 5-Year Estimates).
f) The per capita income in the City in 2010-2014 was $22,367, an increase of 18% from
1999 ($18,964).
g) In 2010-2014, 18.9% (+/-1.8%) of the City’s population was living below the poverty line
(American Community Survey 5-Year Estimates).
h) Approximately 10% (+/-1.9%) of families lived below the poverty level in the City (2010-
2014 American Community Survey 5-Year Estimates).
INVENTORY AND ANALYSIS
The following section provides an inventory and assessment of demographic and economic
trends as required by Wisconsin’s Smart Growth legislation. Some data in the following chapter
was obtained from the American Community Survey (ACS). The ACS is an ongoing statistical
survey by the U.S. Census Bureau representing a sample of the population over a period of
time, differing from the Decennial U.S. Census where figures are based on actual counts during
a point in time. ACS estimates are controlled to decennial population estimates and become
less accurate over the decade, meaning estimates are only as accurate as the census count on
which they are based.
ACS data can be used to draw conclusions, however, due to the limitations of these estimates,
patterns can only be inferred through the data and consequently there is a larger margin of error
(MOE). Small sample size increases the MOE, indicating inaccuracy and rendering the data
unreliable. As a result, annual fluctuations in the ACS estimates are not meant to be interpreted
as long-term trends and caution should be taken when drawing conclusions about small
differences between two estimates because they may not be statistically different. It should also
be noted when comparing ACS multi-year estimates with decennial census estimates, some
areas and subjects must be compared with caution or not compared at all.
POPULATION TRENDS
Historic Population
The City experienced a significant gain in population between 1980 and 2000, followed by
a moderate rate of population growth between 2000 and 2015 (Table 2-1 and Figure 2-1).
Between 1980 and 1990, the City grew by about 11 percent (10.9%). This was followed by
greater growth of about 14 percent (14.4%) during the next decade (1990 to 2000). Since 2000,
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the City has experienced a steady growth in population, increasing by 5.0% between 2000 and
2010.
Table 2-1: Historic Population Growth, 1980 to 2015
1980 1990 2000 2010 2015
City of Oshkosh 49,620 55,006 62,916 66,083 66,900
Winnebago County 131,772 140,320 156,763 166,994 168,526
Wisconsin 4,705,642 4,891,769 5,363,675 5,686,986 5,753,324
Percent
Change 1980-
1990
Percent
Change 1990-
2000
Percent
Change 2000-
2010
Percent
Change 2010-
2015
City of Oshkosh 10.9%14.4%5.0%1.2%
Winnebago County 6.5%11.7%6.5%0.9%
Wisconsin 4.0%9.6%6.0%1.2%
Source: U.S. Census, 1980-2010, WDOA, Wisconsin Demographic Services Center, 1/1/2015 Final Estimates
Since 1980, the historic population growth rate in the county has been lower but has somewhat
mirrored the growth rate experienced by the City. A significant growth in population during the
2000’s (11.7%) was the highest growth rate in the period shown. In comparison, the state grew
significantly, but at a slightly lower rate during the 1960’s (11.8%), and has been a little less
subject to the larger ups and downs in growth rate.
Figure 2-1: Historic Population Growth, 1960-2015
Source: U.S. Census, 1960-2010, WDOA, Wisconsin Demographic Services Center,
1/1/2015 Final Estimates
Recent estimates from the WDOA indicate that the population of the City is continuing to grow
and at a slightly faster rate than county and the state. Between 2010 and 2015, the
population in the City is estimated to have grown by 1.2 %, outpacing the estimated
growth in the county (0.9%) and the same as the state (1.2%).
0
10000
20000
30000
40000
50000
60000
70000
80000
1980 1990 2000 2010 2015
Po
p
u
l
a
t
i
o
n
Year
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Population Forecast
Population projections can provide extremely valuable information for community planning but
have particular limitations. Population projections are typically based on historical growth
patterns and the composition of the current population base. To a large extent the reliability of
the projections is dependent on the continuation of past growth trends. Continued population
growth will result in an increase in demand for services and land consumption.
Table 2-2: Components of Population Change, Winnebago County
Natural
Increase
Net
Migration
Total
Change
Natural
Increase
Net
Migration
Total
Change
2000-2010 5,907 4,324 10,231 3.8% 2.8% 6.5%
2010-2020 5,581 4,475 10,056 3.3% 2.7% 6.0%
2020-2030 5,001 6,629 11,630 2.8% 3.7% 6.6%
2030-2040 3,377 1,073 4,450 1.8% 0.6% 2.4%
Source: WDOA, Vintage 2013
Numeric Change Percent Change
Year
According to the WDOA, natural increase (births minus deaths) had slightly more of an influence
on population increase in Winnebago County during the 2000’s, than net migration (number of
people leaving an area subtracted from the number of people coming into an area). It is
assumed that natural increase will continue to have a slightly higher impact on population
growth during the 2010’s, while migration will play a larger role in population change during the
2020’s as the population ages (Table 2-2). Table 2-3 presents population estimates through
2040. According to the WDOA, the City is expected to grow by 11.7% (7,717 people)
between 2010 and 2040. This increase is less than the Winnebago County (15.7%) and
Wisconsin (14.1%).
Table 2-3: Population Estimates, 2010-2040
Municipality 2010 2015 2020 2025 2030 2035 2040
Percent
Change
2010-
2040
City of Oshkosh 66,083 66,900 69,250 71,250 72,900 73,650 73,800 11.7%
Winnebago County 166,994 169,925 177,050 183,230 188,680 191,710 193,130 15.7%
Wisconsin 5,686,986 5,783,015 6,005,080 6,203,850 6,375,910 6,476,270 6,491,635 14.1%
Source: WDOA, Wisconsin Demographic Services Center, Vintage 2013 Population Projections
Population Density
Population density reflects the degree of urbanization of a community as well as the impacts on
demand and cost effectiveness of the provision of urban services. Population density is
calculated as the number of people per square mile of land area excluding surface water.
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Table 2-4: Population Density, 2000 and 2010
Municipality
2000 2010
Land Area
Sq. Miles Pop
People
per Sq.
Mile
Land
Area in
Sq. Miles Pop
People
per Sq.
Mile
City of Oshkosh 24.42 62,916 2,576.4 25.59 66,083 2,582.4
Winnebago County 438.58 156,763 357.4 434.49 166,994 384.3
Wisconsin 54,310.1 5,363,675 98.8 54,157.8 5,686,986 105.0
Source: U.S. Census, 2000, 2010. ECWRPC, 2013
From 2000 to 2010, the overall population density of the City decreased from 2,595.5
persons per square mile in 2000 to 2,485.3 persons per square mile in 2010 (Table 2-4).
While Winnebago County and the state increased in population density over this same time
period. According to the U.S. Census, the City experienced about a 2.35 mile increase in land
area between 2000 and 2010, probably as a result of annexations. Since the population density
decreased, it is likely that areas recently annexed into the City remain mostly undeveloped.
Age Distribution
The age structure of a population impacts the service, housing, and transportation needs of a
community. In 2010, the median age of City residents was 33.5 (Table 2-5). This is younger
than Winnebago County’s median age of 37.9 and the State of Wisconsin’s median age of 38.5.
Reflecting state and national trends, the City’s population has aged slightly since 2000 when the
median age was 32.4 years. However, it should be noted that the census age group of 20 to 24
represents a very significant portion of City’s population in 2010. This most likely represents the
University of Wisconsin Oshkosh campus location within the city.
Table 2-5: Percent of Population by Age Cohort, 2000 and 2010
Percent Percent Percent Percent Percent Percent
City of Oshkosh 5.4% 20.7% 12.7% 29.7% 18.4% 13.1% 62,916 32.4
Winnebago County 6.9% 23.5% 6.1% 31.9% 20.7% 10.9% 156,763 35.4
Wisconsin 6.4% 22.2% 6.7% 29.5% 22.2% 13.1% 5,363,675 36.0
Percent Percent Percent Percent Percent Percent
City of Oshkosh 5.5% 18.4% 13.4% 26.7% 23.0% 12.9% 25,501 33.5
Winnebago County 5.9% 19.1% 8.5% 26.0% 27.1% 13.4% 166,994 37.9
Wisconsin 6.3% 20.1% 6.8% 25.5% 27.7% 13.7% 5,686,986 38.5
Source: U.S. Census 2010, DP-1
45 to 64 65 & older
2000
Under 5 5 to 19 20 to 24 25 to 44 45 to 64
2010
Under 5 5 to 19 20 to 24 25 to 44
Total
Median
Age
65 & older
Total
Median
Age
The child bearing population (25 to 44) comprised the City’s largest cohort in both 2000
(29.7%) and 2010 (26.7%). In 2000, the next largest age cohort in the City was the school age
population (5 to 19), while in 2010, it was the baby boom population (45 to 64), 20.7% and 23.0
% respectively. Similar to the City, in 2000, the child bearing population (25-44) comprised the
largest age cohort in Winnebago County (31.9%) and the state (29.5%). While the second
largest age cohort in Winnebago County was the school age population (5 to 19, 22.9%). In
Wisconsin, the second largest age cohort was the baby boomer (45 to 64, 22.2%) and the
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school age population (5 to 19, 22.2%). Unlike the City, in 2010, the largest age cohort in the
county (27.1%) and state (27.7%) was the baby boomer (45 to 64). Lastly, it should be noted
that the census age group of 20 to 24 (Figure 2-2) represents a very significant portion of
Oshkosh’s population in 2010. This most likely represents the University of Wisconsin Oshkosh
campus location within the City.
Table 2-6: Population by Gender, 2010
Number Percent
Median
Age Number Percent
Median
Age
City of Oshkosh 33,836 51.2% 33.1 32,247 48.8% 34.1 66,083 33.5
Winnebago County 83,952 50.3% 36.8 83,042 49.7%39 166,994 37.9
Wisconsin 2,822,400 49.6% 37.3 2,864,586 50.4% 39.6 5,686,986 38.5
Source: U.S. Census 2010, DP-1
Total
Median
Age
Male Female
Males outnumbered females in the City in 2010 (Table 2-6 and Figure 2-2). Much like the
county or state, within the City the ratio of males to females fluctuated between which gender
was in majority, though overall males dominated until the age 60 to 64 age cohort and females
dominated from the age 65 to 69 age cohort and above. In the county, males tended to
dominate until the age 55 to 59 age cohort and females dominated in the 60 to 64 age cohorts
and above. Within the state, males made up the majority population through the 40 to 44 age
cohort, and then the majority varied between male and female until the 55 to 59 age cohort.
Females outnumbered males, beginning with the 60 to 64 age cohort. The life expectancy of
females is longer than that of males and this is reflected in the higher median age for females in
all jurisdictions.
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Figure 2-2: Population by Age Cohort, 2010
5,000 4,000 3,000 2,000 1,000 0 1,000 2,000 3,000 4,000 5,000
Under 5
5 to 9
10 to 14
15 to 19
20 to 24
25 to 29
30 to 34
35 to 39
40 to 44
45 to 49
50 to 54
55 to 59
60 to 64
65 to 69
70 to 74
75 to 79
80 to 84
85 and older
Population
Ag
e
(
Y
e
a
r
s
)
City of Oshkosh, Age Cohort, 2010
Male Female
8,000 6,000 4,000 2,000 0 2,000 4,000 6,000 8,000
Under 5
10 to 14
20 to 24
30 to 34
40 to 44
50 to 54
60 to 64
70 to 74
80 to 84
Population
Ag
e
(
Y
r
s
)
Winnebago County, Age Cohort, 2010
Male Female
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300,000 200,000 100,000 0 100,000 200,000 300,000
Under 5
10 to 14
20 to 24
30 to 34
40 to 44
50 to 54
60 to 64
70 to 74
80 to 84
Population
Ag
e
(
Y
e
a
r
s
)
Wisconsin, Age Cohort, 2010
Male
Female
Source: U.S. Census 2010, DP-1
Figure 2-3: Population Projections by Age Cohort, 2010
Source: Demographic Services Center, DOA State of Wisconsin, Vintage 2013 projections
10000 8000 6000 4000 2000 0 2000 4000 6000 8000 10000
0-4
10-14
20-24
30-34
40-44
50-54
60-64
70-74
80-84
90 & over
Number of People
Ag
e
G
r
o
u
p
Winnebago County Age-Sex Pyramid by Cohort
2010 and 2040 Final Projections
PopFem 2010
PopMale 2010
PopFem 2040
PopMale 2040
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RACE
Population by race provides information regarding the social and cultural characteristics of an
area. It also provides information regarding population dynamics. Access to education and
economic opportunities differ by race. Differences also exist in age structure, language barriers
and risks for various diseases and health conditions.
Since new immigrants are more likely to settle in areas with existing populations from their
country of origin, race and ethnicity, existing populations may also influence migration patterns.
National population trends indicate that persons of color (includes African Americans, Native
Americans, Alaskan Natives, Pacific Islanders, Asians and persons declaring two or more
races) and persons of Hispanic Origin are growing faster than non-Hispanic whites.1 As the
population of the City, Winnebago County and Wisconsin continues to grow, it is likely that the
minority proportion of the population (persons of color and whites of Hispanic Origin) will also
continue to grow. If this occurs, communities may need to compensate for the changing
demographic composition. Communities may also find it beneficial to promote opportunities for
positive interaction between cultures. An increase in understanding of differences and
similarities in expectations and cultural values may help reduce friction between groups.
Racial Distribution
The population in the City is less diverse than that of the state and more diverse than the
county. Between 2000 and 2010, the City experienced a slight increase in the share and
number of minority persons of non-white race during this time period (Table 2-7). In 2010,
whites comprised 90.5% of the City population compared to 92.5% in the county and
86.2% of the state’s population.
Although Hispanics are the fastest growing ethnic group in the United States, they currently
comprise less than four percent of the county’s and less than six percent of the state’s
population. However, like the nation, this segment of the population is one of the fastest
growing segments in the area. Between 2000 and 2010, the Hispanic population within
Winnebago County just about doubled, increasing from 2% in 2000 to 3.5% in 2010. At the
state level the Hispanic population increased from 3.6% in 2000 to 5.9% in 2010.
The share and number of Hispanics also increased in the City between 2000 and 2010. In
2010, Hispanics comprised 2.7% of the population, up from 1.7% in 2000. If the City is going to
grow through migration, it is likely that the number and percentage of Hispanics in the area will
also increase as Hispanics are becoming a larger share of the national, state and county
population.
1 U.S. Census.
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2-10 East Central Wisconsin Regional Planning Commission
Table 2-7: Population by Race and Hispanic Origin, 2000 and 2010
No. Percent No. Percent No. Percent No. Percent No. Percent No. Percent
White 58,886 92.7% 59,812 90.5% 148,900 95.0% 154,445 92.5% 4,773,553 89.0% 4,902,067 86.2%
African American 1376 2.2%2051 3.1% 1,729 1.1% 2,975 1.8% 300,355 5.6% 359,148 6.3%
American Indian -
Alaskan Native 331 0.5%510 0.8%781 0.5% 1,036 0.6% 49,661 0.9% 54,526 1.0%
Asian or Pacific
Islander 1940 3.1%2143 3.2% 2,480 1.6% 3,880 2.3% 84,654 1.6% 131,061 2.3%
Other Race 346 0.5%475 0.7% 1,192 0.8% 2,188 1.3% 84,281 1.6% 135,867 2.4%
Two or More
Races 621 1.0%1092 1.7% 1,681 1.1% 2,470 1.5% 71,171 1.3% 104,317 1.8%
Total Persons 63,500 100%66,083 100%156,763 100%166,994 100%5,363,675 100%5,686,986 100%
Hispanic or Latino 1074 1.7%1770 2.7% 3,065 2.0% 5,784 3.5% 192,921 3.6% 336,056 5.9%
Source: U.S. Census 2000, 2010, DP01
City of Oshkosh Winnebago County Wisconsin
2000 2010 2000 2010 2000 2010
HOUSEHOLD STRUCTURE AND TRENDS
Household Size
Household size and alterations in household structure provide a method to analyze the potential
demand for housing units. The composition of a household coupled with the level of education,
training, and age also impacts the income potential for the particular household. These
characteristics can also determine the need for services such as child care, transportation, and
other personal services. Decreases in household size create a need for additional housing units
and accommodating infrastructure, even if there is not an increase in the overall population.
Household size in the City decreased slightly from 2.31 persons per household in 2000 to
2.26 persons per household in 2010 (Table 2-8). At the same time, a decrease in the
average household size also occurred at the state and county levels. In Winnebago County the
average household size decreased from 2.43 persons per household in 2000 to 2.34 persons
per household in 2010. The state saw a slightly smaller decrease, falling from 2.5 persons per
household in 2000 to 2.43 persons per household in 2010.
The City’s average household size has remained slightly lower than the county and the State of
Wisconsin in both time periods (Table 2-8).
Table 2-8: Households and Persons per Household,
2000 and 2010
No. HH
Persons
per HH No. HH
Persons
per HH
City of Oshkosh 24,082 2.31 25,987 2.26
Winnebago
County 61,157 2.43 67,875 2.34
Wisconsin 2,084,544 2.5 2,279,768 2.43
Source: U.S. Census: 2000 & 2010, DP-1
2000 2010
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Household Composition
In 2000 (56.7%) and 2010 (52.9%), just over half of the households in the City were family
households. During both years, the City had a lower percentage of family households
compared to the county (64.7%, 61.2%). The state had a slightly larger share of family
households compared to the City in 2000 (66.5%), and in 2010 (64.4%). Individuals living
alone, age 65 years old and older, made up about 12 percent of the households in the City in
2000 (11.7%) and in 2010 (11.4%). This was a larger share of the total households compared
to the county (9.9%, 10.3%) and the state (9.9%, 10.2%) during both time periods. By 2010, the
portion of households with individuals 65 years old and older living alone stayed about the same
in the City and increased in the county and state.
Households are composed of family households (married couple and male or female, no spouse
present) and nonfamily households. In 2000, the percentage of married couple families was
lower in the City (44.3%) than in the county (53.0%) and the state (53.2%). Between 2000 and
2010, the percentage of married couples decreased in all jurisdictions, as the percentage of
single parent families increased. During this time period, the largest decrease was experienced
by the City (5.6%), in comparison the percentage of married couples decreased by 5.2% in the
county and 3.6% in the state. Married couple families (husband and wife) made up 38.7%
of all households in the City in 2010, compared to 47.8% in Winnebago County and 49.6%
in the state.
Household Forecasts
Total population figures include not only persons in households, but also persons in group
quarters2. As the population ages during the projection period, it is likely that the persons in
group quarters will increase over time. This increase will come from not only the elderly
component of the population, but also from the disabled component of the population as aging
parents will no longer be able to care for disabled offspring. It is important to remember that the
actual growth rate and the amount of future growth a community will experience will be
determined by local policies which can affect the rate of growth within the context of county,
state, and national population growth trends. Migration is expected to play a part in the City and
Winnebago County’s growth patterns in the coming decades. Therefore growth rates and
trends outside the county will influence the pool of potential residents the county can attract.
Based on anticipated growth trends, the City’s population is expected to continue to increase
through 2040 (Table 2-3). During this same time period, the number of households is
expected to increase by about 16.0% from 26,138 in 2010 to 30,309 in 2040 (Table 2-9).
The increase in the number of households is expected to result from a decrease in household
size and an increase in population. Between 2010 and 2040 it is anticipated that the household
size will decrease from 2.24 persons per household to 2.15.
During this same time period, Winnebago County and Wisconsin are expected to experience a
larger increase in the number of households. It is anticipated that the number of households in
2 Group Quarters, as defined by the 2010 U.S. Census, “is a place where people live or stay, in a group living
arrangement, that is owned or managed by an entity or organization providing housing and/or services for the
residents. This is not a typical household-type living arrangement. These services may include custodial or medical
care as well as other types of assistance, and residency is commonly restricted to those receiving these services.
People living in group quarters are usually not related to each other. Group quarters include such places as college
residence halls, residential treatment centers, skilled nursing facilities, group homes, military barracks, correctional
facilities, and workers’ dormitories.”
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Winnebago County will increase by about 20%, while the state will see an increase of 22.4%
between 2010 and 2040.
Table 2-9: Household Projections, 2010 – 2040
No. HH
Person/H
H No. HH
Person/H
H No. HH
Person/H
H
2010 26,138 2.24 67,875 2.34 2,279,768 2.43
2015 26,796 2.22 69,784 2.32 2,371,815 2.38
2020 27,965 2.21 73,211 2.30 2,491,982 2.35
2025 28,936 2.19 76,221 2.29 2,600,538 2.32
2030 29,742 2.18 78,920 2.28 2,697,884 2.30
2035 30,190 2.16 80,713 2.26 2,764,498 2.28
2040 30,309 2.15 81,611 2.25 2,790,322 2.26
2010 to 2015 2.5% -0.9% 2.8% -0.9% 4.0% -2.2%
2015 to 2020 4.4% -0.5% 4.9% -0.9% 5.1% -1.2%
2020 to 2025 3.5% -0.9% 4.1% -0.4% 4.4% -1.0%
2025 to 2030 2.8% -0.5% 3.5% -0.4% 3.7% -1.0%
2030 to 2035 1.5% -0.9% 2.3% -0.9% 2.5% -1.0%
2035 to 2040 0.4% -0.5% 1.1% -0.4% 0.9% -0.8%
City of Oshkosh
Year
Percent Change
Winnebago County Wisconsin
Source: WDOA, Wisconsin Demographic Services Center, 1/1/2015 Final Estimates and Vintage 2013 Population
Projections
INCOME AND EDUCATION
The U.S. Census Bureau reports that an individual with a bachelor’s degree can expect to earn
$2.1 million over the course of a career, nearly double what the expected earnings are for a high
school graduate. The results of the Census Bureau’s study demonstrate that there is a definite
link between earning potential and education.
Educational Attainment
The City had a slightly lower percentage of residents age 25 or older who graduated from
high school or higher (89%) than the county (92.0%) and the state (91%) according to the
2010-2014 American Community Survey 5-Year Estimates, as depicted in Figure 2-3.
Additionally the City has a slightly lower share of residents that hold a bachelor degree or
higher. Approximately 25% of City residents hold a bachelor degree or higher compared to 26%
of county residents and 27% of state residents.
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Figure 2-3: Percent Educational Attainment, 2010-2014 ACS 5-Year Estimates (Population
25 years and over)
0%
5%
10%
15%
20%
25%
30%
35%
40%
City of Oshkosh
Winnebago
County
Wisconsin
Source: U.S. Census, 2010-2014 American Community Survey 5-Year Estimates, (Population 25 years and over),
S1501
Between 2000 and the 2010-2014 5-Year Estimates, the percentage of high school graduates
or higher, and the percentage of residents receiving a bachelor degree or higher, increased in
all jurisdictions (Table 2-10). The share of residents holding a bachelor’s degree or higher
increased by 1.7 percent in the City between 2000 (23.1%) and 2010-2014 5- Year
Estimates (24.8%). The portion of City residents with a bachelor degree or higher became
lower than the county (26.1%) and the state (27.4%) in the 2010-2014 5-Year estimates.
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Table 2-10: Graduation Rates, 2000 and 2010-2014 ACS 5-Year Estimates
Percent High School Graduate or
Higher
Percent Bachelor’s Degree or Higher
2000 2010-2014 5-Yr
Est.
Percent
Change,
2000 to
2010-
2014
2000 2010-2014 5-Yr
Est.
Percent
Change
2000 to
2010-
2014
Number Estimate MOE
+/-
Number Estimate MOE
+/-
City of
Oshkosh
84.0% 89.2% 1.0% 5.2% 23.1% 24.8% 1.7% 1.7%
Winnebago
County
86.3% 91.9% 0.5% 5.6% 22.8% 26.1% 0.9% 3.3%
Wisconsin 85.1% 90.8% 0.1% 5.7% 22.4% 27.4% 0.2% 5.0%
Source: U.S. Census 2000; 2010-2014 American Community Survey 5-Year Estimates, DP02
Income Levels
Income includes both earned and unearned income. Earned income includes money earned
through wages, salaries, and net self-employment income (including farm income). Unearned
income includes money from interest, dividends, rent, Social Security, retirement income,
disability income, and welfare payments.3 Approximately 77.8% (+/-1.3%), of households
derive income from earnings in the City according to the 2010-2014 American Community
Survey. This is somewhat reflective of the percent (12.9%) of City population in the age 65 or
older age cohort. Since a somewhat large percentage of Winnebago County household income
is from earnings (78.4%, +/-0.8%).
Three commonly used income measures are median household income, median family income
and per capita income. Median income is derived by examining the entire income distribution
and calculating the point where one-half of the incomes fall below that point, the median, and
one-half above that point. For households and families, the median income is based on the
total number of households or families, including those with no income. Per capita income is
the mean income computed for every man, woman, and child in a particular group including
those living in group quarters. It is derived by dividing the aggregate income of a particular
group by the total population in that group.
The City’s median household income in 1999 was $37,636; this was lower than both
Winnebago County’s median income of $44,445 and the State of Wisconsin’s median
income of $43,791 (Table 2-11). Although the median household income for all jurisdictions
increased between 1999 and 2010-2014, the City’s median household income made smaller
gains, about 14%, while Winnebago County had an increase of about 17% and Wisconsin
experienced an increase of about 20%.
3 U.S. Census Bureau.
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Table 2-11: Comparative Income Characteristics, 1999 and 2010-2014 ACS 5-Year
Estimates
Estimate MOE +/- Estimate MOE +/- Estimate MOE +/-
City of Oshkosh $37,636 $42,860 $2,052 $48,843 $59,818 $2,751 $18,964 $22,367 $974
Winnebago County $44,445 $51,949 $900 $53,932 $67,595 $1,259 $21,706 $27,295 $607
Wisconsin $43,791 $52,738 $201 $52,911 $67,232 $278 $21,271 $27,907 $114
Source: U.S. Census 2000, STF3A, 2009-2013 American Community Survey 5-Yr Estimate, DP03
Median HH Income Median Family Income Per Capita Income
1999
2010-2014 5-Yr Est.
1999
2010-2014 5-Yr Est.
1999
2010-2014 5-Yr Est.
The median family income also increased for all three jurisdictions. The City’s median family
income (22.5%) increased at a slightly smaller rate as compared to the county level (25.3%) and
the state (27.1%). The City median family income was $59,818, which was an increase
from the 1999 median family income of $48,843 according to 2010-2014 ACS 5-Year
Estimates.
As depicted in Table 2-11, the City had a lower median household income, median family
income and a higher per capita income than the county and state in both time frames. The per
capita income in the City in 2010-2014 was $22,367, an increase of 18% from 1999
($18,964).
Poverty Status
The poverty level is determined by the U.S. Census Bureau based on current cost of living
estimates adjusted for household size. In 2000, the poverty threshold for a family of four with
two children was a household income of $17,463. By 2010, the poverty threshold for a family of
four with two children had increased to $22,1134.
In 2010-2014, 18.9% (+/-1.8%) of the City’s population was living below the poverty line
according to American Community Survey 5-Year Estimates (Table 2-12). This is slightly
less than Winnebago County (12.5%+/-0.9%) and the State of Wisconsin (13.3%+/-0.2%).
Between 1999 and 2010-2014, the percentage of people living below the poverty line increased
for the City, Winnebago County and the State of Wisconsin. In 1999, 10.2% of the City’s
residents were living below the poverty line, while 6.7% of Winnebago County residents were,
and 8.7% of residents of the State of Wisconsin were living below the poverty line.
Table 2-12: Poverty Status, Total Persons - 1999 and 2010-2014 ACS 5-Year Estimates
1999 2010-2014 5-Yr Est.
No. Estimate MOE +/- No. Percent Estimate MOE +/- Percent MOE +/-
City of Oshkosh 62,916 58,660 909 5,672 10.2% 11,090 1,057 18.9% 1.8
Winnebago County 148,696 159,429 1,109 9,940 6.7% 19,961 1,414 12.5% 0.9
Wisconsin 5,211,603 5,571,083 1,287 451,538 8.7% 738,557 10,521 13.3% 0.2
Source: U.S. Census 2000 SF 3, 2010-2014 American Community Survey 5-Yr Estimate, S1701
Total Persons Total Persons Below Poverty Level
1999 2010-2014 5-Yr Est.
Approximately 10% (+/-1.9%) of families lived below the poverty level in the City,
according to 2010-2014 American Community Survey 5-Year Estimates (Table 2-13). This
was more than the share of families in Winnebago County (7.1%+/-0.8%) and more than the
4 U.S. Census Bureau, 2000 and 2010 Poverty Thresholds.
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2-16 East Central Wisconsin Regional Planning Commission
share of families in the state (8.9%, +/-0.2). Between 1999 and 2010-2014, the percentage of
families living below the poverty level increased in the City, county and the state. In 1999, 5.2%
of families lived below the poverty level in the City compared to 3.8% of the families living in
Winnebago County and 5.6% of the families living in Wisconsin.
Table 2-13: Poverty Status, Total Families - 1999 and 2010-2014 ACS 5-Year Estimates
1999
No. Estimate MOE +/- No. Percent Percent MOE +/-
City of Oshkosh 13,653 13,426 488 718 5.2% 10.1% 1.9%
Winnebago County 39,788 41,260 767 1,517 3.8% 7.1% 0.8
Wisconsin 1,395,037 1,469,359 4843 78,188 5.6% 8.9% 0.2
Source: U.S. Census 2000 SF 3, 2010-2014 American Community Survey 5-Yr Estimate, S1702
2010-2014 5-Yr
Total Families Total Families Below Poverty Level
2010-2014 5-Yr Est.1999
GROUP QUARTERS POPULATION
The Census Bureau classifies all people not living in housing units (house, apartment, mobile
home, rented rooms) as living in group quarters. There are two types of group quarters:
Institutional, such as
correctional facilities
nursing homes
or mental hospitals
Non-Institutional, such as
college dormitories
military barracks
group homes
missions
or shelters
The City includes two significant facilities that are classified as Group Quarters by the United
States Census. The University of Wisconsin Oshkosh includes a population of 3,195 per the
2010 Census. The Oshkosh Correctional Institution is located in the northern portion of the City
and Census figures indicate there were 2,888 individuals institutionalized within the City in 2010.
The previously identified groups total 6,083, or 9.2% of the City’s population. Group Quarters
population is included in many demographic characteristics for the City including total
population, per capita income, race, and relationship. Other measures of City’s population that
do not include the institutionalized population include household statistics (such as household
type, income, occupancy, and tenure) and employment status (civilian labor force).
POLICIES AND PROGRAMS
Policies and programs related to the Issues and Opportunities element can be found in
Appendix D.
CHAPTER 3
HOUSING
CHAPTER 3: HOUSING
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 3-1
Goals…………………………………………………………………………………………………… . 3-1
Key Summary Points………………………………………………………………………………….. 3-1
Inventory and Analysis………………………………………………………………………………… 3-2
Housing Stock Characteristics ………………………………………………………………………. 3-3
Occupancy Characteristics……………………………………………………………………….…... 3-4
Housing Stock Value………………………………………………………………………………….. 3-6
Housing Affordability…………………………………………………………………………………... 3-8
Household Characteristics……………………………………………………………………………. 3-9
Housing Conditions…………………………………………………………………………………... . 3-12
Policies and Programs……………………………………………………………………………… .. 3-14
Objectives and Actions………………………………………………………………………………. . 3-14
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-1
CHAPTER 3: HOUSING
INTRODUCTION
Planning for housing will ensure that the City’s housing needs are met. The design, placement
and density of housing impacts the overall appearance and character of a community by
defining a sense of place and encouraging or discouraging social interaction between residents.
It influences the cost of housing and the cost and efficiency of other plan elements such as
roadways, school transportation (e.g. busing vs. walking), economic development and the
provision of public utilities.
The “Smart Growth” legislation requires that the housing element contain objectives, policies,
goals, maps and programs to meet current and future housing needs of the City, by developing
and promoting policies that provide a range of housing choices for City residents which meet the
needs of all income levels, age groups, and persons with special needs. An assessment of age,
structural, value, and occupancy characteristics of the City’s housing stock is also required.
This chapter addresses these requirements.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal H1
Develop policies and programs to create housing products to
address unmet needs as market conditions evolve.
Goal H2 Maintain or rehabilitate the City's existing housing stock.
Goal H3
Enhance environmental quality, promote good design, and
eliminate and lessen land use conflicts throughout the
community.
Goal H4
Ensure ongoing communication regarding housing issues and
activities.
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Housing Stock
a) Forty-four percent (43.6%) of the existing housing stock in the City was built after 1970.
b) Fifty-six percent (56.0%) of the residential structures in the City were comprised of single
family (one) units detached (2010-2014 ACS 5-Year Estimates).
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Occupancy Characteristics
a) Owner-occupied units accounted for 56.2% of the occupied housing units in 2010, while
rentals made up the remaining 43.8%.
b) In 2000, homeowner vacancy rates indicate a less than adequate supply of owner-
occupied units for sale (1.3%) and an adequate supply in 2010 (2.2%).
c) In 2000 the rental vacancy rate (6.5%) was above the vacancy standard of 5.0%, which
would indicate that the City had an adequate supply of housing units for rent (Table 3-4).
By 2010, the rental vacancy rate had increased to 7.8%.
Housing Stock Value
a) Between 2000 and the 2010-2014 ACS 5-Year Estimate period, median value owner-
occupied housing prices in the City rose by 33.6% from $86,300 to $115,300.
b) Median gross rent in the City increased by 35.5% from $487 to $660 between 2000 and
the 2010-2014 ACS 5-Year Estimate period.
c) As a result of the economic recession that began in 2008, the value of residential
property (land plus improvements) in the City fluctuated from a high of $2,253,953,000 in
2010 to a low of to $2,157,990,800 in 2013 (decrease of 4.3%). From 2013 to 2014, the
total value of residential property in the City has slightly increased by 0.3 % to
2,164,448,600.
d) Eighteen percent (18.3%) of homeowners with a mortgage and 46.7% of renters were
paying a disproportionate amount of their income for housing in the City (2010-2014
ACS 5-Year Estimates).
Housing Characteristics
a) Two-person households were the most prevalent owner occupied household size in the
City and county in years 2000 and 2010.
b) One-person renter-occupied housing units accounted for slightly less than half of rental
units for both the City and county in years 2000 and 2010.
c) Almost half of households in both the City (42.7%) and the county (41.2%) moved into
their households between 2000 and 2009.
d) Occupied units lacking complete plumbing and kitchen facilities are not a significant
issue in the City, occurring in less than one percent of units (2010-2014 ACS 5-Year
Estimates).
e) Overcrowding is not an issue in the City (2010-2014 ACS 5-Year Estimates).
f) There are 54 Assisted Living Facilities in the City with a combined capacity of 886.
g) There are three emergency shelters in the City.
h) According to the January 2018 Point in Time survey there were 97 people in Oshkosh
who were in a shelter, in transitional housing or unsheltered and sleeping outdoors.
INVENTORY AND ANALYSIS
Developing a baseline of housing characteristics for the City provides a foundation upon which
to build the City’s goals, strategies and recommendations. Some data in the following chapter
was obtained from the American Community Survey (ACS). The ACS is an ongoing statistical
survey by the U.S. Census Bureau representing a sample of the population over a period of
time, differing from the Decennial U.S. Census where figures are based on actual counts during
a point in time. ACS estimates are controlled to decennial population estimates and become
City of Oshkosh Comprehensive Plan Update 2040
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East Central Wisconsin Regional Planning Commission 3-3
less accurate over the decade, meaning estimates are only as accurate as the census count on
which they are based.
ACS data can be used to draw conclusions, however, due to the limitations of these estimates,
patterns can only be inferred through the data and consequently there is a larger margin of error
(MOE). Small sample size increases the MOE indicating inaccuracy and rendering the data
unreliable. As a result, annual fluctuations in the ACS estimates are not meant to be interpreted
as long-term trends and caution should be taken when drawing conclusions about small
differences between two estimates because they may not be statistically different. It should also
be noted when comparing ACS multi-year estimates with decennial census estimates that some
areas and subjects must be compared with caution, or not compared at all.
HOUSING STOCK CHARACTERISTICS
Age
The age of occupied dwelling units reflect the historic demand for additional or replacement
housing units, thereby providing historic information regarding settlement patterns, household
formation, migration trends and natural disaster impacts. The age of units by itself is not an
indication of the quality of the housing stock. However, the age of occupied units can provide
limited information regarding building construction and material content, as construction
techniques and materials change over time.
Forty-four percent (43.6%) of the existing housing stock in the City was built after 1970
(Figure 3-1). About 22 percent (22.3%) of the housing stock has been built since 1990. In
comparison, slightly more than half the existing housing stock in the county (51.8%) and the
state (52%) was built after 1970. Additionally, the county (26.8%) and the state (26.9%) saw
more housing stock than the City (20.8%) built during the 1990’s and 2000’s.
Figure 3-1: Occupied Dwelling Units by Year Built,
2010-2014 ACS 5-Year Estimates
Source: U.S. Census, 2010-2014 ACS 5-Year Estimates, DP04
*Figure does not show Margin of Error.
Built 2010
or later, 0.4% Built 2000
to 2009, 9.7%
Built 1990
to 1999, 12.2%
Built 1980
to 1989, 9.5%
Built 1970
to 1979, 11.8%
Built 1960
to 1969, 10.1%
Built 1950
to 1959, 9.4%
Built 1940
to 1949, 6.0%
Built 1939
or earlier,
30.9%
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
3-4 East Central Wisconsin Regional Planning Commission
Structural Type
Structural type is one indication of the degree of choice in the housing market. Housing choice
by structural type includes the ability to choose to live in a single family home, duplex, multi-unit
building or mobile home. Availability of units by type is indicative not only of market demand,
but also of zoning laws, developer preferences and access to public services. Current state
sponsored local planning goals encourage communities to provide a wide range of choice in
housing types, as housing is not a ‘one size fits all’ commodity. As with most communities in
East Central Wisconsin, the dominant housing type in the City of is single family housing. Fifty-
six percent (56.0%) of the residential structures in the City were comprised of single
family (one) units detached (2010-2014 ACS 5-Year Estimates) (Table C-2). Single family
units comprised a slightly larger share of the housing units in the City than in Winnebago County
(66.6%) or the state (66.6%). Duplex units or two-family made up the second highest
percentage of housing units in the City (11.0%) and Winnebago County (7.3%). While multi-
family (20 or more units per building), comprised the second highest percentage of housing
units in the state (6.8%).
OCCUPANCY CHARACTERISTICS
Occupancy Status
Occupancy status reflects the utilization of available housing stock. The total number of
housing units includes renter-occupied, owner-occupied and various classes of vacant units.
Vacant units include those units which are available for sale or rent and those which are
seasonal, migrant, held for occasional use or other units not regularly occupied on a year-round
basis.
In 2010, the City’s occupied housing stock was primarily composed of owner-occupied units
(Table 3-1). Owner-occupied units accounted for 56.2% of the occupied housing units in
2010, while rentals made up the remaining 43.8%. The percent of owner-occupied housing
stock was less than in the state (68.1%) and the county (66.4%).
Table 3-1: Occupancy Characteristics, 2010
Occupied
Housing
Units
Owner
Occupied
Housing
Units
% Owner
Occupied
Renter
Occupied
Housing
Units
% Renter
Occupied
Oshkosh 26,138 14,693 56.2% 11,445 43.8%
Winnebago
County 67,875 45,036 66.4% 22,839 33.6%
Wisconsin 2,279,768 1,551,558 68.1% 728,210 31.9%
Source: U.S. Census 2010, SF-1, DP-1
The share of owner-occupied housing units in the City has decreased slightly since 2000, when
57.5% of the units were owner-occupied, and 42.5% were rental occupied (Table 3-2). The
percent of owner-occupied housing stock also decreased in the county and state.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-5
Table 3-2: Occupancy Characteristics, 2000
Occupied
Housing
Units
Owner
Occupied
Housing
Units
% Owner
Occupied
Renter
Occupied
Housing
Units
% Renter
Occupied
Oshkosh 24,082 13,851 57.5% 10,231 42.5%
Winnebago County 61,157 41,571 68.0% 19,586 32.0%
Wisconsin 2,084,544 1,426,361 68.4% 658,183 31.6%
Source: U.S. Census 2000, SF-1, DP-1
Vacancy Status
Vacant housing units are units that are livable, but not currently occupied. For a healthy
housing market, communities should have a vacancy rate of 1.5% for owner-occupied units and
5% for year-round rentals. The number of migrant, seasonal and other vacant units will vary
depending on the community’s economic base. If vacancy rates are at or above the standard,
the community may have an adequate number of units for rent or sale. However, additional
information such as choice in housing and housing affordability is needed to determine if the
units on the market meet the needs of potential buyers or renters. If the existing vacancy rate is
too high for existing conditions, then property values may stagnate or decline.
Table 3-3: Vacancy Status, 2010
Total
Housing
Units
Occupied
Housing
Units
Vacant
Housing
Units
Homeowner
Vacancy
Rate
Rental
Vacancy
Rate
Oshkosh 28,179 26,138 2,041 2.2% 7.8%
Winnebago
County 73,329 67,875 5,454 2.1% 7.2%
Wisconsin 2,624,358 2,279,768 344,590 2.2% 8.0%
Source: U.S. Census 2010 SF-1, DP-1
Table 3-4: Vacancy Status, 2000
Total
Housing
Units
Occupied
Housing
Units
Vacant
Housing
Units
Homeowner
Vacancy
Rate
Rental
Vacancy
Rate
Oshkosh 25,420 24,082 1,338 1.3% 6.5%
Winnebago
County 64,721 61,157 3,564 1.3% 6.1%
Wisconsin 2,321,144 2,084,544 236,600 1.2% 5.6%
Source: U.S. Census 2000 SF-1, DP-1
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
3-6 East Central Wisconsin Regional Planning Commission
Owner-Occupied Housing
In 2000, homeowner vacancy rates indicate a less than adequate supply of owner-
occupied units for sale (1.3%) and an adequate supply in 2010 (2.2%). (Table 3-3 and 3-4).
In Winnebago County and Wisconsin, homeowner vacancy rates were similar to the City in
2000 (1.3%, 1.2%) and 2010 (2.1%, 2.2%).
Rental Housing
In 2000 the rental vacancy rate (6.5%) was above the vacancy standard of 5.0%, which
would indicate that the City had an adequate supply of housing units for rent (Table 3-4).
By 2010, the rental vacancy rate had increased to 7.8% (Table 3-3). While the vacancy rate
was above the standard, it should be noted that municipalities with smaller rental unit pools may
actually need a higher rental vacancy rate than the standard in order to accommodate people
seeking rental units. In comparison, the rental vacancy rate for Winnebago County was lower
than the City in 2000 (6.1%) and in 2010 (7.2%). Overall, the rental vacancy rate in the state
was near the standard in 2000 (5.6%) and above the standard in 2010 (8.0%).
HOUSING STOCK VALUE
Historical Trends
Owner-occupied housing stock values can provide information about trends in property values,
housing demand and choice within the housing market. The City, Winnebago County and the
state all saw substantial increases in the median value of owner-occupied homes between 2000
and the 2010-2014 ACS 5-Year Estimates (Figure 3-2). The smallest growth in median housing
values occurred in the City during this time period. Between 2000 and the 2010-2014 ACS 5-
Year Estimate period, median value owner-occupied housing prices in the City rose by
33.6% from $86,300 to $115,300. At the same time, the median value of owner-occupied
homes rose by 45.4% in Winnebago County and 47.9% in the state. Median owner-occupied
housing values in the City lagged behind those in the county and the state.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-7
Figure 3-2: Median Value of Owner Occupied Homes,
2000, 2010-2014 ACS 5-Year Estimates
Source: U.S. Census 2000, 2010-2014 ACS 5-Year Estimates, DP04
Likewise the median value of contract rents increased over the same time period. Median
gross rent in the City increased by 35.5% from $487 to $660 between 2000 and the 2010-
2014 ACS 5-Year Estimate period (Figure 3-3). As a result, median gross rents, according to
the 2010-2014 ACS 5-Year Estimates, were slightly lower in the City ($660) than in Winnebago
County ($673) and significantly lower ($112) than the state ($772).
Figure 3-3: Median Rent of Occupied Rental Units,
2000, 2010-2014 ACS 5-Year Estimates
Source: U.S. Census 2000, 2010-2014 ACS 5-Year Estimates, DP04
The Wisconsin Department of Revenue releases yearly equalized value reports. Equalized
value is the total value of all real estate at full-market prices. Although these values are
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
$140,000
$160,000
$180,000
2000 2010-2014 5-Yr Est.
City of Oshkosh
Winnebago County
Wisconsin
$0
$100
$200
$300
$400
$500
$600
$700
$800
$900
2000 2010-2014 5-Yr Est.
City of Oshkosh
Winnebago County
Wisconsin
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
3-8 East Central Wisconsin Regional Planning Commission
reported as a total value for the entire City, they can be used as a way to gauge the pricing
trends for different sectors of real estate, such as residential, commercial and agriculture.
Figure 3-4: City of Oshkosh Residential Equalized Values (Millions),
2013-2017
Source: WisDOR, Statement of Equalized Value, 2013-2017
As a result of the economic recession that began in 2008, the value of residential
property (land plus improvements) in the City fluctuated from a high of $2,253,953,000 in
2010 to a low of to $2,157,990,800 in 2013 (decrease of 4.3%). From 2013 to 2014, the
total value of residential property in the City has slightly increased by 0.3 % to
2,164,448,600 (Figure 3-4).
HOUSING AFFORDABILITY
The relationship between housing costs and household income is an indicator of housing
affordability, which is gauged by the proportion of household income expended for rent or home
ownership costs. Rental costs include contract rent, plus the estimated average monthly cost of
utilities and fuel. Owner costs include payment for mortgages, real estate taxes, fire hazard and
flood insurance on the property, utilities and fuels. In 1989, the U.S. Department of Housing
and Urban Development (HUD) raised the standard for determining whether rent or home
ownership costs comprised a disproportionate share of income from 25% to 30% of gross
household income. Households spending more than 30% of their income for housing may be at
risk of losing their housing should they be confronted with unexpected bills or unemployment of
one of more workers per household. Communities should be aware that maintenance and
repair costs are excluded from this housing affordability formula, as are other outstanding debts,
because these items will have policy impacts. Potential homeowners should be aware that
these items are excluded from this housing affordability formula, as these items can impact their
housing affordability and future financial stability.
$-
$500,000,000
$1,000,000,000
$1,500,000,000
$2,000,000,000
$2,500,000,000
2013 2014 2015 2016 2017
Eq
u
a
l
i
z
e
d
V
a
l
u
e
Land
Improvements
Todal
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-9
Table 3-5: Households Paying a Disproportionate Amount of Their Income for Housing,
2010-2014 ACS 5-Year Estimates
Households with
Mortgage for Which
Owner Costs Are Not
Affordable
Households without
Mortgage for Which
Owner Costs Are Not
Affordable
Households for Which
Renter Costs Are Not
Affordable
Number %
MOE
+/- Number %
MOE
+/- Number %
MOE
+/-
Oshkosh 1,745 18.3% 225 747 16.3% 546 5,322 46.7% 486
Winnebago
County 7,553 25.1% 416 2,312 15.6% 295 9,722 43.1% 661
Wisconsin 317,705 31.0% 2,212 81,573 15.8% 1,201 336,881 48.3% 2,957
Source: U.S. Census, 2010-2014 ACS 5-Year Estimate, DP-4
Access to affordable housing is not only a quality of life consideration; it is also an integral part
of a comprehensive economic development strategy. Households which must spend a
disproportionate amount of their income on housing will not have the resources to properly
maintain their housing, nor will they have adequate disposable income for other living expenses,
such as transportation, childcare, healthcare, food and clothing.
Eighteen percent (18.3%) of homeowners with a mortgage and 46.7% of renters were
paying a disproportionate amount of their income for housing in the City (2010-2014 ACS
5-Year Estimates) (Table 3-5). There were 1,745 homeowners without a mortgage in the City
spending more than 30% of their income on housing. In comparison housing was not affordable
for about a quarter of Winnebago County (25.1%) and about a third of Wisconsin (31.0%)
homeowners with mortgages. For households without mortgages, housing was less affordable
in the City (16.3%) than the county (15.6%) and the state (15.8%). Similar to the City, a higher
share of renters in Winnebago County (43.1%) and the state (48.3%) were paying a
disproportionate amount of their income on housing than homeowners. The change in housing
affordability likely resulted from housing prices and values rising faster than incomes.
HOUSEHOLD CHARACTERISTICS
Evaluating household characteristics is important for understanding the City and the population
it serves. Household size and mobility information are two census variables that can help with
this evaluation.
When compared to Winnebago County, the City had a very similar household size in 2000 and
2010 (Table 3-6). Two-person households were the most prevalent owner occupied
household size in the City and county in years 2000 and 2010 (Table 3-6). Renter-occupied
households also had very similar household size for both the City and Winnebago County. The
largest share of renter-occupied households was by far 1-person households for both
jurisdictions, in both time frames. One-person renter-occupied housing units accounted for
slightly less than half of rental units for both the City and county in years 2000 and 2010.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
3-10 East Central Wisconsin Regional Planning Commission
Table 3-6: Persons per Household, 2000 and 2010
City of Oshkosh Winnebago County
2000 2010 2000 2010
Number % Number % Number % Number %
TENURE
Occupied
housing
units
24,082 100.0% 26,138 100.0% 61,157 100.0% 67,875 100.0%
Owner-
occupied
housing
units
13,851 57.5% 14,693 56.2% 41,571 68.0% 45,036 66.4%
Renter-
occupied
housing
units
10,231 42.5% 11,445 43.8% 19,586 32.0% 22,839 33.6%
Owner-
occupied
housing
units
13,851 100.0% 14,693 100.0% 41,571 100.0% 45,036 100.0%
1-
person
household
3,317 23.9% 3,806 25.9% 8,229 19.8% 9,863 21.9%
2-
person
household
5,297 38.2% 5,711 38.9% 16,104 38.7% 18,181 40.4%
3-
person
household
2,156 15.6% 2,247 15.3% 6,756 16.3% 7,081 15.7%
4-
person
household
1,984 14.3% 1,851 12.6% 6,715 16.2% 6,328 14.1%
5-
person
household
745 5.4% 723 4.9% 2,651 6.4% 2,468 5.5%
6-
person
household
210 1.5% 215 1.5% 765 1.8% 730 1.6%
7-or-
more-
person
household
142 1.0% 140 1.0% 351 0.8% 385 0.9%
Renter-
occupied
housing
units
10,231 100.0% 11,445 100.0% 19,586 100.0% 22,839 100.0%
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-11
1-
person
household
4,478 43.8% 5,192 45.4% 8,621 44.0% 10,413 45.6%
2-
person
household
3,003 29.4% 3,292 28.8% 5,699 29.1% 6,476 28.4%
3-
person
household
1,322 12.9% 1,455 12.7% 2,569 13.1% 2,887 12.6%
4-
person
household
899 8.8% 923 8.1% 1,641 8.4% 1,869 8.2%
5-
person
household
316 3.1% 340 3.0% 680 3.5% 710 3.1%
6-
person
household
126 1.2% 139 1.2% 240 1.2% 311 1.4%
7-or-
more-
person
household
87 0.9% 104 0.9% 136 0.7% 173 0.8%
Source: U.S. Census, 2000 and 2010, QT-H2
Table 3-7 illustrates the household longevity of the populations in the City and Winnebago
County. Almost half of households in both the City (42.7%) and the county (41.2%)
moved into their households between 2000 and 2009.
Table 3-7: Year Householder Moved into Unit
City of Oshkosh Winnebago County
Estimate MOE +/- % Estimate MOE +/- %
Occupied housing units 25,987 595 - 68,484 762 -
Moved in 2010 or later 7,651 508 29.4% 16,741 757 24.4%
Moved in 2000 to 2009 11,090 590 42.7% 28,208 819 41.2%
Moved in 1990 to 1999 3,588 358 13.8% 11,669 528 17.0%
Moved in 1980 to 1989 1,443 213 5.6% 5,072 416 7.4%
Moved in 1970 to 1979 1,096 179 4.2% 3,733 320 5.5%
Moved in 1969 or earlier 1,119 124 4.3% 3,061 238 4.5%
Source: U.S. Census 2010-2014 ACS 5-Year Estimates, DP04
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
3-12 East Central Wisconsin Regional Planning Commission
HOUSING CONDITIONS
Two census variables often used for determining housing conditions include units that lack
complete plumbing facilities, kitchen facilities, telephone service and overcrowded units1.
Complete plumbing facilities include hot and cold piped water, flush toilet and a bathtub or
shower. If any of these facilities is missing, the housing unit is classified as lacking complete
plumbing facilities. Complete kitchen facilities for exclusive use include sink, refrigerator, and
oven or burners. If any of these facilities is missing, the housing unit is classified as lacking
complete kitchen facilities. The census defines overcrowding as more than one person per
room in a dwelling unit.
Table 3-8: Units Lacking Complete Plumbing and Kitchen Facilities and No Available
Telephone Service, 2010-2014 ACS 5-Year Estimates
Total Occupied
Units
Units Lacking Complete
Plumbing
Units Lacking Complete
Kitchen Facilities
Units with No Available
Telephone Service
Est. MOE+/- Est. MOE+/- % Est. MOE+/- % Est. MOE+/- %
Oshkosh 25,987 595 87 69 0.3% 215 160 0.8% 709 212 2.7%
Winnebago
County 68,484 762 272 153 0.4% 448 186 0.7% 1,440 280 2.1%
Wisconsin 2,293,250 5,079 10,716 726 0.5% 21,050 934 0.9% 51,031 1,439 2.2%
Source: U.S. Census 2009-2013 ACS 5-Year Estimates, DP04
Occupied units lacking complete plumbing and kitchen facilities are not a significant
issue in the City, occurring in less than one percent of units (2010-2014 ACS 5-Year
Estimates) (Table 3-8). While still relatively small, 2.7% of occupied units had no available
telephone service. Overall, housing conditions were slightly worse at the county and state level.
Less than one percent or less of occupied units lacked complete plumbing and kitchen facilities
in Winnebago County (0.4% and 0.7%, respectively) and the state (0.5% and 0.9%,
respectively). Though still uncommon, 2.1% of county units and 2.1% of state units had no
available telephone service.
Table 3-9: Overcrowding, 2010-2014 ACS 5-Year Estimates
Total Occupied
Units Overcrowding
Est. MOE+/- Est. MOE+/- Percent
Oshkosh 25,987 595 172 75 0.7%
Winnebago County 68,484 762 702 152 1.0%
Wisconsin 2,293,250 5,079 39,332 1298 1.7%
Source: U.S. Census 2010-2014 ACS 5-Year Estimates, DP04
Overcrowding is not an issue in the City (2010-2014 ACS 5-Year Estimates). Overcrowding
occurred in less than one percent of the occupied housing units in the City (0.7%), Winnebago
County (1.0%) and Wisconsin (1.7%) (Table 3-9).
1 U.S. Census Bureau.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-13
Subsidized and Special Needs Housing
Subsidized and special needs housing serves individuals who, because of financial difficulties,
domestic violence situations, disabilities, age, alcohol and drug abuse problems, and/or
insufficient life skills, need housing assistance or housing designed to accommodate their
needs. In some instances, extended family structures and finances may allow families or
individuals to cope privately with special needs. In most instances however, some form of
assistance is needed. The housing needs of these populations vary based on their
circumstances, health, economic conditions and success of educational, training, treatment or
counseling programs.
The Wisconsin Department of Health Services website has a listing of directories for a number
of assisted living options including Adult Day Care (ADC), Adult Family Homes (ADF),
Community Based Residential Care Facilities (CBRF) and Residential Care Apartment Complex
(RCAC). These facilities specialize in developmentally disabled, emotionally disturbed/mental
illness, traumatic brain injury, advanced age, irreversible dementia/Alzheimer, physically
disabled, and terminally ill. There are 54 Assisted Living Facilities in the City with a
combined capacity of 886 (Table 3-10). This includes 1 ADF facility with a capacity of 28; 19
AFH facilities with a combined capacity of 76, 30 CBRF with a combined capacity of 600; and 4
RCAC with a combined capacity of 182. Within Winnebago County (excluding Oshkosh), there
are 48 Assisted Living Facilities with a combined capacity of 953. This includes 14 AFH with a
combined capacity of 55; 28 CBRF facilities with a combined capacity of 462 and six RCAC with
a total of 436 apartments.
Table 3-10: Assisted Living Options, 2016
City of Oshkosh
Winnebago
County
Number Capacity Number Capacity
Adult Day Care (ADC) 1 28 0 0
Adult Family Home (AFH) 19 76 14 55
Community Based Residential Facilities
(CBRF) 30 600 28 462
Residential Care Apartment Units (RCA) 4 182 6 436
Total Units/Capacity 54 886 48 953
Source: Wisconsin Department of Health Services, Consumer Guide to Health Care
- Finding and Choosing Health and Residential Care Providers in Wisconsin
Data compiled July, 2016
The Oshkosh/Winnebago County Housing Authority (OHAWCHA) was formed in 1970 and
provides affordable rental housing assistance, homebuyer support, and resident services to low
and moderately low income families living in Winnebago County. The OHAWCHA maintains
over 650 Public Housing units including family, single, disabled, and elderly units, administers
over 400 Housing Choice Vouchers, owns and maintains the properties of multiple group
homes, coordinates a family self-sufficiency program, and facilitates the county's home
ownership program. Within the City, the OHAWCHA provides housing programs through Court
Tower (101 units), Cumberland Court (72 units), Marian Manor (120 units), Raulf Place (104
units) and an additional 156 unites spread throughout Oshkosh, Neenah and Menasha.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
3-14 East Central Wisconsin Regional Planning Commission
Homelessness
According to the U.S. Department of Housing and Urban Development (HUD) the term
“homeless” or “homeless individuals and families” includes: (1) and individual or family who lack
a fixed, regular, and adequate nighttime residence and includes a subset for an individual who
is exiting an institution where he or she resided for 90 days or less and who resided in an
emergency shelter or a place not meant for human habitation immediately before entering that
institution; (2) Individuals and families who will imminently lose their primary nighttime
residence; (3) Unaccompanied youth and families with children and youth who are defined as
homeless under other federal statutes who do not otherwise qualify as homeless under this
definition; or (4) Individuals and families who are fleeing, or are attempting to flee, domestic
violence, dating violence, sexual assault, stalking, or other dangerous or life-threatening
conditions that relate to violence against the individual or a family member.2
There are three emergency shelters in the City for the general public. These include Day
by Christine Ann Domestic Abuse Services, Day Warming Shelter (open from mid-October to
mid-April, and Father Carr’s.
The Department of Housing and Urban Development (HUD) requires communities to conduct
sheltered counts of people living in emergency shelter or transitional housing every year. While
every other year, HUD requires communities to conduct unsheltered counts of people living in a
place unfit for human habitation (such as in an abandoned building or in a park).3 In Wisconsin,
Point in Time surveys are conducted two times per year on a single night and include a count of
the number of people in shelters and people not in shelters. A Point in Time survey was last
conducted in January, 2018 for the Fox Cities. According to the January 2018 Point in Time
survey there were 97 people in Oshkosh who were in a shelter, in transitional housing or
unsheltered and sleeping outdoors.
POLICIES AND PROGRAMS
Policies and programs related to the housing element can be found in Appendix D. Of note, the
Greater Oshkosh Healthy Neighborhoods Incorporated, a 501(c)(3) nonprofit, was created in
2016 dedicated to strengthening Oshkosh neighborhoods by engaging residents, encouraging
reinvestment and elevating community pride through the creation of community investment
partnerships to benefit residents in the greater Oshkosh area. Additionally, the City’s
Community Development Department operates a Neighborhood program that provides support
to 15 Neighborhood Associations within the city.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
2 HUD’s definition of “homeless” was changed in 2009, when the HEARTH Act amended the McKinney-Vento
Homeless Assistance Act. HUD’s Final Rule implementing the new definition can be found at 24 CFR Part 91, 582
and 583. 3 http://www.endhomelessness.org/blog/entry/the-2015-point-in-time-count-is-finally-here#.VwbIz_krJaQ .
City of Oshkosh Comprehensive Plan Update 2040
Chapter 3: Housing
East Central Wisconsin Regional Planning Commission 3-15
Type Reference Content
Goal H1
Develop policies and programs to create housing products to
address unmet needs as market conditions evolve.
Objective H1.1
Conduct housing/market studies as needed to better understand
housing needs.
Objective H1.2
Develop a variety of housing types to address unmet housing
needs.
Action H1.2.1
Ensure there is an adequate supply of all types of residential
densities to meet current and projected housing demand.
Action H1.2.2
Encourage a mix of lot sizes and housing types as reflected in the
Traditional Neighborhood Zoning District in development.
Action H1.2.3
Promote employer-sponsored housing programs and walk-to-work
programs.
Action H1.2.4
Work with public and private housing providers to plan for the
development of additional workforce housing units that are
affordable to low and moderate income owners and renters as
needed. Also to coordinate and secure additional subsidies for
rental of existing privately owned units.
Action H1.2.5
Promote opportunities and programs to provide owner and rental
options for all income levels.
Action H1.2.6
Provide an analysis of supply of residentially zoned land as part of
evaluating zoning and annexation requests.
Action H1.2.7
Research “executive” housing needs to better quantify demands
and opportunities.
Action H1.2.8 Address housing needs for people with disabilities.
Action H1.2.9
Collaborate with appropriate agencies to address housing needs for
the homeless and transitional housing.
Action H1.2.10
Partner with appropriate agencies and/or developers to undertake
redevelopment projects that create a variety of appropriate housing
types in Central City areas.
Type Reference Content
Goal H2 Maintain or rehabilitate the City's existing housing stock.
Objective H2.1
Strengthen neighborhoods by developing tools and programs to
protect and revitalize the city’s older housing stock.
Objective H2.2 Support decent and healthy rental housing.
Action H2.1.1
Continue housing rehabilitation programming which provides
assistance to low and moderate-income persons in upgrading their
housing and in purchasing and improving properties in older
neighborhoods.
Action H2.1.2
Encourage Downtown/Central City residential development through
rehabilitation, adaptive reuse, or new construction.
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3-16 East Central Wisconsin Regional Planning Commission
Action H2.1.3
Implement "Neighborhood Improvement Strategies" in areas
identified as average or below average in the City’s “Quality of Life”
analysis.
Action H2.1.4
Develop a program to encourage owners to convert rental property
back to owner-occupied structures in single family neighborhoods.
Action H2.1.5
Create a rehabilitation code for pre-existing conditions on historic
properties to help preserve historical value.
Action H2.1.6
Continue housing rehabilitation programming for owner occupied
and rental housing and prioritize funding towards recognized
neighborhoods and areas identified as average or below on the
City’s Quality of Life Analysis or other priority neighborhoods.
Action H2.1.7 Continue to support and implement the ONE Oshkosh initiative.
Action H2.1.8 Continue to development and implement neighborhood plans.
Action H2.1.9 Research the potential of creating residential tax increment districts.
Type Reference Content
Goal H3
Enhance environmental quality, promote good design, and
eliminate and lessen land use conflicts throughout the
community.
Objective H3.1
Promote design that increases neighborhood aesthetics and
environmental quality.
Action H3.1.1 Create and implement a parkland impact fee.
Action H3.1.2
Revise Zoning Ordinance to address: a. Accommodation of energy-
efficient techniques in design and construction of residential units. b.
Creation of minimum requirements for open space area and/or
recreational facilities for higher density development (or require a
deposit to a park development fund).
Action H3.1.3
Implement a streetscaping, street lighting, and terrace planting
program for city identified priority areas (gateway corridors, etc.).
Action H.3.1.5
Coordinate with utility providers and property owners to place
overhead lines underground or parallel during street reconstruction
projects in gateway corridors.
Action H3.1.6
Implement recommendations of the “Comprehensive Outdoor
Recreation Plan” for parkland dedication, park development,
acquisition, and officially mapping parks and trails.
Action H3.1.8
Continue citywide proactive code enforcement program and develop
programs and educational materials to promote compliance.
Action H3.1.9
Research ordinance provisions and create programs to protect and
enhance “curb appeal” of residential properties.
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East Central Wisconsin Regional Planning Commission 3-17
Type Reference Content
Goal H4
Ensure ongoing communication regarding housing issues and
activities.
Objective H4.1
Continue ongoing communication with housing stakeholders within
the ONE Oshkosh initiative.
Action H4.1.1
Include the Oshkosh School District and Greater Oshkosh Healthy
Neighborhoods in Plan Commission agenda distribution.
Action H4.1.2
Continue city staff involvement with Oshkosh School District and
Oshkosh Healthy Neighborhood Alliance.
Action H4.1.3
Work with local realtors, landlords and other key individuals or
agencies on housing issues.
CHAPTER 4
LAND USE
CHAPTER 4: LAND USE
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 4-1
Goals…………………………………………………………………………………………………… . 4-1
Key Summary Points………………………………………………………………………………….. 4-1
Inventory and Analysis………………………………………………………………………………… 4-2
Existing Land Use……………………………………………………………………………………… 4-2
Land Market and Development………………………………………………………………….…… 4-6
Land Use Density and Intensity……………………………………………………………………….4-8
Land Use Issues and Conflicts……………………………………………………………………….. 4-9
Future Land Use……………………………………………………………………………………….. 4-9
Future Land Use Map………………………………………………………………………………... . 4-11
Policies and Programs…………………………………………………………………………......... . 4-14
Objectives and Actions………………………………………………………………………………. . 4-14
City of Oshkosh Comprehensive Plan Update 2040
Chapter 4: Land Use
East Central Wisconsin Regional Planning Commission 4-1
CHAPTER 4: LAND USE
INTRODUCTION
Land use directly influences, or is influenced by, all elements presented in the other chapters.
The choices for housing type, location, transportation alternatives, decisions on employment
locations, recreational opportunities, and the quality of the man-made and natural environments
are all intricately woven together into land use. Land use policy decisions can have far-reaching
repercussions. Policy decisions can influence housing growth, the protection of natural
resources, and a number of other factors. This chapter describes existing land use patterns and
analyzes development trends.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal LU1
Provide sufficient land area with adequate services to meet
projected land demand for various types of land uses.
Goal LU2 Encourage the efficient and compact utilization of land.
Goal LU3 Encourage compatible land use development.
Goal LU4
Encourage redevelopment to be oriented toward the
waterfront and increase public access where appropriate.
Goal LU5
Maintain, preserve and enhance the viability of existing
neighborhood development.
Goal LU6
Promote environmentally sensitive and responsible utilization
of land, incorporating permanent open space and natural
resources.
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Existing Land Use
a) The City encompasses 17,689.2 acres. About 74% (13,091.4 Acres) of the land within
the City is developed.
b) The unincorporated area within the 3 mile extraterritorial area contains 55,816 acres.
18% (10,237.4 acres) of the land within the unincorporated 3 mile buffer was considered
developed in 2015.
c) Between 2000 and 2015, the City grew by about 33%, from 13,343.7 to 17,689.2 acres.
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4-2 East Central Wisconsin Regional Planning Commission
Annexation and Boundary Agreements
a) To accommodate growth in residential and industrial development, the City annexed
around 2,149 acres between 2000 and 2016.
Market Trends
a) Overall, the City’s land value peaked in 2008 at $753,721,200 and then decreased to
$708,132,100 (-6.1%) in 2014 as a result of the economic downturn.
Land Use Density and Intensity
a) Between 2000 (1,075.6 units/sq. mi.) and 2010 (1,101.1 units/sq. mi.), residential
densities increased slightly in the City, about 25.5 units per square mile.
b) Between 2000 and 2015, residential single family land use intensities are estimated to
have decreased slightly from 5.4 units per acre to 5.0 units per acre. Multi-family land
use also decreased from 12.8 units per acre to 10.7 units per acre.
INVENTORY AND ANALYSIS
The following section provides a thorough analysis of land use trends and projections for the
City and its 3.0 mile extraterritorial area1.
EXISTING LAND USE
Existing land use was interpreted utilizing 2015 aerial photography. In order to analyze land use
trends, historic land use data was derived from 2000 aerials and updated to 2015 so as to be
used as a comparison. Land use information was compiled into general land use categories
(Table 4-1).
Land Use Categories
Agricultural. Agricultural land is broadly classified as land that is used for crop production.
Agricultural uses include farming, dairying, pastures, apiculture (bees), aquaculture (fish,
mussels), cropland, horticulture, floriculture, viticulture (grapes), silviculture (trees) and animal
and poultry husbandry. Agricultural land is divided into two sub-categories: irrigated and non-
irrigated cropland. Irrigated cropland is watered by artificial means, while non-irrigated cropland
is watered by natural means (precipitation).
Residential. Residential land is classified as land that is used primarily for human inhabitation.
Residential land uses are divided into single and two-family residential, farmstead, multi-family
and mobile home parks. Single and two-family residential includes single family dwellings,
duplexes, and garages for residential use. Within platted subdivisions, residential land use
encompasses the entire lot. In rural areas and where lots are typically larger, single family
includes the primary residence, outbuildings, and the mowed area surrounding the structures.
Single family also includes isolated garages and similar structures on otherwise undeveloped
rural lots. Farmsteads include the farm residence, the mowed area between the buildings and
1 For the purposes of this planning effort, the unincorporated extraterritorial area only, has been included in the
analysis.
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East Central Wisconsin Regional Planning Commission 4-3
the associated outbuildings (barn, sheds, manure storage, abandoned buildings). Multi-family
includes apartments of three or more units, condos, room and boarding houses, residence halls,
group quarters, retirement homes, nursing care facilities, religious quarters, and the associated
parking and yard areas. Mobile home parks are classified as land that is part of a mobile home
park. Single standing mobile homes are classified under single family and two-family
residential.
Commercial. Commercial land uses represent the sale of goods and services and other
general business practices. Commercial uses include retail and wholesale trade (car and boat
dealers; furniture, electronics and appliance stores; building equipment and garden equipment;
grocery and liquor stores; health and personal care stores; gasoline stations; clothing and
accessories, sporting goods, hobby, book and music stores; general merchandise;
miscellaneous store retailers; couriers; and massagers), services (publishing, motion picture
and sound recording, telecommunications, information systems, banks and financial institutions,
real estate offices, insurance agencies and carriers, waste management, accommodations,
restaurants and drinking places, repair and maintenance, personal and laundry, social
assistance, etc.) and other uses (warehousing and automobile salvage and junk yards).
Industrial. Industrial land uses represent a broad category of activities that involve the
production of goods. Mining and quarry sites are separated from other industrial uses.
Industrial uses include construction, manufacturing (includes warehousing with factory or mill
operation), mining operations and quarries, and other industrial facilities (truck facilities).
Transportation. Transportation includes land uses that directly focus on moving people,
goods, and services from one location to another. Transportation uses include highway and
street rights of way, support activities for transportation (waysides, freight weigh stations, bus
stations, taxi, limo services, park and ride lots), rail related facilities, and other related
categories. Airports are included under transportation and consist of paved areas that are
dedicated specifically to air traffic.
Utilities/Communications. Utilities and communications are classified as any land use that
aids in the generation, distribution, and storage of electric power (substations and transformers);
natural gas (substations, distribution brokers); and telecommunications (radio, telephone,
television stations and cell towers). It also includes facilities associated with water distribution
(water towers and tanks), water treatment plants, wastewater processing (plants and lift
stations), landfills (active and abandoned), and recycling facilities.
Institutional Facilities. Institutional uses are defined as land for public and private facilities
dedicated to public services. Institutional land uses include educational facilities (schools,
colleges, universities, professional schools), hospitals, assemblies (churches, religious
organizations), cemeteries and related facilities, all governmental facilities used for
administration (city, village, town halls, community centers, post office, municipal garages,
social security and employment offices, etc.), and safety services (police departments, jails, fire
stations, armories, military facilities, etc.). Public utilities and areas of outdoor recreation are not
considered institutional facilities.
Recreational Facilities. Recreational facilities are defined as land uses that provide leisure
activity opportunities for citizens. This category encompasses both active and passive activities.
Recreational activities include designated hunting and fishing areas; nature areas; general
recreational parks; sports facilities (playgrounds, ball diamonds, soccer fields, tennis courts,
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4-4 East Central Wisconsin Regional Planning Commission
etc.); city, county and state parks; fairgrounds; marinas; boat landings; spectator sport venues;
hiking trails; mini-golf; bowling; bicycling; skiing; golf courses; country clubs; performing arts
centers; museums; historical sites; zoos; amusement parks; gambling venues; and other related
activities.
Water Features. Water features consist of all surface water including lakes, streams, rivers,
ponds, and other similar features. Intermittent waterways are also incorporated into this
category.
Woodlands. Woodlands are forested areas that are characterized by a predominance of tree
cover. Woodlands are divided into two subcategories: general woodlands and planted
woodlands. General woodlands are naturally occurring; this category includes forests, woods,
and distinguishable hedgerows. Planted woodlands include forestry and timber track operations
where trees are typically planted in rows; this category includes tree plantations, orchards and
land dedicated to Christmas tree production (nurseries are not included).
Open Other Land. This category includes land that is currently vacant and not developed in a
manner similar to the other land use categories described within this section. Open land
includes areas that are wet, rocky, or outcrop; open lots in a subdivision; or rural parcels and
side or back lots on a residential property that are not developed.
Current Land Use Inventory
Developed land has been altered from its natural state to accommodate human activities.
Although agricultural areas are considered undeveloped by land classification systems, these
uses have different impacts on land use decisions than urbanized uses; thus, agricultural uses
have been separated to obtain an accurate total of all related activities. In addition, residential
land uses have been divided according to their specific category: single family residential,
farmsteads, multi-family residential and mobile home parks. Single family residential land use
includes single family dwellings and duplexes.
The City encompasses 17,689.2 acres. About 74% (13,091.4 Acres) of the land within the
City is developed (Table 4-1 and Map 4-1). Approximately 56% of the developed uses in the
City are single-family residential (3,921.50 acres, 30.0%) and transportation (3,343.9 acres,
25.5%). Other uses include farmstead residential (10.1 acres, 0.1%) multifamily (773.7 acres,
5.9%), mobile home park (31.7 acres, 0.2%) commercial (1,623.3 acres, 12.4%), industrial
(1,044.8 acres, 8.0%), quarries (122.5 acres, 0.9%), institutional (1,701.9 acres, 13.0%), and
utilities/communications (517.9 acres, 4.0%) make up the remaining developed land uses.
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Table 4-1: Existing Land Use, 2015
Land Use
Oshkosh Extraterritorial Area
Acres
Percent of
Developed
Land
Percent
of Total
Acres Acres
Percent of
Developed
Land
Percent
of Total
Acres
Single Family 3,921.5 30.0% 22.2% 4,731.7 46.2% 8.5%
Farmsteads 10.1 0.1% 0.1% 1,112.5 10.9% 2.0%
Multi-Family 773.7 5.9% 4.4% 24.9 0.2% 0.0%
Mobile Home Park 31.7 0.2% 0.2% - 0.0% 0.0%
Commercial 1,623.3 12.4% 9.2% 387.8 3.8% 0.7%
Industrial 1,044.8 8.0% 5.9% 183.9 1.8% 0.3%
Quarries 122.5 0.9% 0.7% 208.5 2.0% 0.4%
Institutional Facilities 1,701.9 13.0% 9.6% 89.0 0.9% 0.2%
Transportation 3,343.9 25.5% 18.9% 3,268.3 31.9% 5.9%
Utilities/Communication 517.9 4.0% 2.9% 230.7 2.3% 0.4%
Total Developed 13,091.4 100% 74% 10,237.4 100% 18%
Non-Irrigated Cropland 1,182.3 25.7% 6.7% 29,464.0 64.6% 52.8%
Recreational Facilities 1,209.0 26.3% 6.8% 1,076.5 2.4% 1.9%
Planted Woodlands 0.2 0.0% 0.0% 386.2 0.8% 0.7%
General Woodlands 157.4 3.4% 0.9% 3,175.3 7.0% 5.7%
Other Open Land 1,338.6 29.1% 7.6% 5,014.2 11.0% 9.0%
Water 710.2 15.4% 4.0% 6,462.5 14.2% 11.6%
Total Undeveloped 4,597.8 100% 26% 45,578.6 100% 82%
Total Acres 17,689.2
100% 55,816.0
100%
Source: East Central Wisconsin Regional Planning Commission, 2015
In comparison, the unincorporated area within the 3 mile extraterritorial area contains
55,816 acres. 18% (10,237.4 acres) of the land within the unincorporated 3 mile buffer was
considered developed in 2015. (Table 4-1, Figure 4-2 and Map 4-2). Single family residential
(4,731.7 acres, 46.2%) and transportation (3,268.3 acres, 31.9%) makes up 78.1% of the
developed land uses.
Land Use Trends
Land use distribution in the City and within the 3 mile extraterritorial area has changed over
time. For the purpose of this plan, land use between 2000 and 2015 was reviewed. Between
2000 and 2015, the City grew by about 33%, from 13,343.7 to 17,689.2 acres. A comparison
of the 2000 and 2015 existing land use maps show that this development predominately
occurred in the northwestern, western and southern portions of the City in the following areas.
The growth was a mix of land uses including residential, institutional, commercial, industrial,
cropland and other open lands.
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4-6 East Central Wisconsin Regional Planning Commission
LAND MARKET AND DEVELOPMENT
Development Trends
The amount of land available for development is finite. By analyzing the patterns in land use
and understanding what the current development trends are, the City is better able to plan for
future development in a sustainable manner.
Table 4-2 displays building permits for the years 2013 through 2017. The largest period of
growth was in 2015. During this year, 298 residential permits were added.
Table 4-2: Building Permits (Residential Construction), 2013–2017 City of Oshkosh
Type Measure 2013 2014 2015 2016 2017
2013-
2017
Totals
Average
Units
Per Year
Single Family UNITS 23 15 17 15 31 101 20
Two-Family UNITS 0 6 10 10 8 34 7
Multi-Family UNITS 30 136 248 71 269 754 151
Building Conversions
(units)
SFR 0 0 0 0 0 0 0
DUPLEX 0 0 1 0 0 1 0
MULTI 0 0 0 42 56 98 20
Mobile Homes
BLDG 27 3 11 11 8 60 12
UNITS 27 3 11 11 8 60 12
Community Based
Residential Facilities
BLDG 1 0 0 0 0 1 0
UNITS 34 0 0 0 0 34 7
Hotels/
Motels
BLDG 0 0 0 0 0 0 0
ROOMS 0 0 0 0 0 0 0
Totals - 142 163 298 160 380 1143 -
Source: City of Oshkosh, September, 2018
Annexation and Boundary Agreements
To accommodate growth in residential and industrial development, the City annexed
around 2,149 acres between 2000 and 2016 (Table 4-3). These annexations occurred mostly
in the northern, western and southern areas of the City.
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Table 4-3: Annexations, 2008 – 2017
Year
Number of
Annexations
Acres
Annexed
2017 0 0
2016 4 7.96
2015 7 113.73
2014 7 88.23
2013 12 352.57
2012 2 45.62
2011 2 3.00
2010 5 77.99
2009 3 85.27
2008 5 295.96
Source: City of Oshkosh, September 2018
Market Trends
The price of developable land value varies depending on the surrounding land uses, location,
access, services and other subjective factors. Natural features such as water frontage, forests
and open space may increase the overall value. Land prices are subject to market demand and
fluctuations. As such, land values show periodic variations. Housing affordability is dependent
on land prices. Equalized value is the best proxy for determining land market trends. Table 4-4
shows the equalized values of all classes of land in the City and Winnebago County between
2007 and 2014. Overall, the City’s land value peaked in 2008 at $753,721,200 and then
decreased to $708,132,100 (-6.1%) in 2014 as a result of the economic downturn. In
comparison, the equalized land value in Winnebago County peaked in 2008 and reached a low
in 2013.
Table 4-4: Equalized Values (Land Only), 2008-2017
Year City of
Oshkosh
Percent
Change
Winnebago
County
Percent
Change
2008 $753,721,200 - $2,669,561,500 -
2009 $731,858,600 -2.9% $2,659,389,100 -0.4%
2010 $726,926,100 -0.7% $2,617,627,700 -1.6%
2011 $721,399,800 -0.8% $2,651,947,000 1.3%
2012 $720,121,600 -0.2% $2,586,290,300 -2.5%
2013 $712,129,200 -1.1% $2,577,639,200 -0.3%
2014 $708,132,100 -0.6 $2,607,631,900 1.2%
2015 $709,038,600 0.1% $2,642,385,200 1.3%
2016 $711,705,600 0.4% $2,686,080,400 1.7%
2017 $737,746,300 3.7% $2,824,617,600 5.2% Source: Wisconsin Department of Revenue, 2008-2017, Statement of Equalized
Values
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LAND USE DENSITY AND INTENSITY
Density
Density is broadly defined as a “number of units in a given area2”. For the purposes of this
report, residential densities are defined as the number of housing units per square mile of total
land area (units/square mile), excluding water. Between 2000 (1,075.6 units/sq. mi.) and
2010 (1,101.1 units/sq. mi.), residential densities increased slightly in the City, to about
25.5 units per square mile (Table 4-5). Residential densities also increased in Winnebago
County (21.2 units/sq. mile), as a whole. In comparison, residential densities decreased in the
cities of Neenah (10.3 units/sq. mile) and Appleton (80.5 units/sq. mile).
Table 4-5: Residential Density, 2000 and 2010
MCD
2000 2010
Land
Area in
Sq.
Miles
Total
Units
Units/Sq.
Mile
Land
Area in
Sq.
Miles
Total
Units
Units/Sq.
Mile
C. Oshkosh 23.63 25,420 1,075.6 25.59 28,179 1,101.1
C. Neenah 8.25 10,198 1,236.6 9.23 11,313 1,226.3
C. Appleton 20.88 27,736 1,328.0 24.33 30,348 1,247.5
Winnebago County 438.58 64,721 147.6 434.49 73,329 168.8
Source: U.S. Census, 2000 and 2010 SF1, Table GCT-PH1
Intensity
Intensity is the degree of activity associated with a particular land use. Therefore intensity is
defined as the measure of the units per acre of residential development. Due to the limited
availability of information, this plan will compare the intensities of single-family versus multi-
family development in the City. To calculate land intensities, the categories (as defined by East
Central) of single and two-family residential, farmsteads, and mobile homes were all classified
as “single-family.” Buildings consisting of three or more units were classified as “multi-family.”
Table 4-6: Residential Intensity, 2000 and 2015
2000 2015
Units Acres Units/Acre Units Acres Units/Acre
Single-Family 19,039 3,558.3 5.4 19,914 3,963.3 5.0
Multi-Family 6,320 495.4 12.8 8,291 773.7 10.7
Source: U.S. Census 2000, DP-4, SF3, U.S. Census American Community Survey 2015, ECWRPC Land Use
2000 and 2015
Between 2000 and 2015, residential single family land use intensities are estimated to
have decreased slightly from 5.4 units per acre to 5.0 units per acre. Multi-family land
use also decreased from 12.8 units per acre to 10.7 units per acre (Table 4-6). Several
important factors create more intense development patterns in communities. Single-family
residential development is typically a less intense land use than multi-family. Another factor
influencing residential intensity is the size of parcels. Parcels in older more established portions
of a community are typically smaller than parcels developing today. This is because residential
2 Measuring Density: Working Definitions for Residential Density and Building Intensity, November 2003. Design
Center for American Urban Landscapes, University of Minnesota.
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development in older neighborhoods took place when society was less dependent on the
automobile. As a result, this necessitated smaller lot development that allowed for closer
proximity to neighbors and services.
LAND USE ISSUES AND CONFLICTS
The City is situated on the western shores of Lake Winnebago. It is a mixture of residential,
commercial, industrial, institutional, recreation and other land uses. Commercial and industrial
uses are primarily in the downtown and along major transportation corridors. As a result,
residential, commercial and industrial development can come in direct contact with one another.
In order for the City to grow, it must either increase its overall density on existing land or it must
annex new lands from bordering towns in the area. The City should continue to keep a method
of communication open between itself and its neighbors so that future land use proposals can
be discussed prior to approval. It should also ensure that a method of communication exists
between the City and others such as the Oshkosh School District, local economic development
corporations, Winnebago County, East Central Wisconsin Regional Planning Commission and
state and federal agencies.
Natural resource preservation and development could be in conflict with each other. Lake
Winnebago, the Fox River, as well as wetlands, floodplains and other features comprise the
natural resource base. Increased development near these resources could lead to
displacement of wildlife, degradation of surface and groundwater, open lands and other
resources.
Incompatibilities may arise between adjacent land uses as development continues. To lessen
these conflicts, land use controls such as setbacks, screening, and buffering should be utilized.
FUTURE LAND USE
Future Land Use Projections
Wisconsin statutes require comprehensive plans to include five year projections for residential,
commercial, industrial, and agricultural uses over the length of the plan.3 The projections for the
City can be seen in Tables 4-7 and 4-8. It is important to note that two scenarios have been
calculated. Table 4-7 is a modest estimate while Table 4-8 is a more aggressive projection.
While projections can provide extremely valuable information for community planning, by nature,
projections have limitations that must be recognized. First and foremost, projections are not
predictions. Projections are typically based on historical growth patterns and the composition of
the current land use base. Their reliability depends, to a large extent, on the continuation of
those past growth trends. Second, projections for small communities are especially difficult and
subject to more error, as even minor changes can significantly impact growth rates. Third,
growth is also difficult to predict in areas that are heavily dependent on migration, as migration
rates may vary considerably based on economic factors both within and outside of the area.
The actual rate and amount of future growth communities experience can be influenced by local
policies that can slow or increase the rate of growth. Regardless of whether communities prefer
3 Wisconsin State Statutes 66.1001.
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4-10 East Central Wisconsin Regional Planning Commission
a no growth, low growth, or high growth option, it is recommended they adequately prepare for
future growth and changes to provide the most cost-effective services possible. Furthermore,
individual communities can maximize the net benefits of their public infrastructure by
encouraging denser growth patterns that maximize the use of land resources while minimizing
the impact on the natural resource base.
Expected increases in residential and commercial acreage and resulting decreases in
agricultural acreage can be estimated by analyzing and projecting historical data into the future.
Population and housing growth and the amount of land that would be required to accommodate
that increase in growth were made using past housing and population trends, and future
population and household projections.
In 2015, the City of Oshkosh had a total of 26,796 housing units4. Using household projections
from the Wisconsin Department of Administration, it is estimated that by 2040 there will be
approximately 30,309 housing units5 or about 3,513 additional housing units in the City. Tables
4-7 and 4-8 indicate the projected distribution of the additional housing units expected.
Future commercial and industrial land use needs are based on the ratio between commercial
and industrial acreage and population. The WDOA estimates that in 2015, the population of the
City was 66,900 people. Therefore the ratio of acres of commercial land use to population in
2015 is 0.02 acres per person, while the ratio of acres of industrial land use to population was
also 0.02 acres per person. Tables 4-7 and 4-8 indicate projected land use needs for
commercial and industrial land use.
Growth within the City of Oshkosh is expected to occur over the planning period within and
adjacent to the City. Tables 4-7 and 4-8 provide five year land consumption estimates for
residential, commercial and industrial land uses. Since the growth areas encompass land within
and outside of the City, it is assumed that not all agricultural losses will occur within the existing
City limits.
Table 4-7: Future Land Use Consumption in Acres (Scenario #1, Low Estimate)
Land Use 2015 2020 2025 2030 2035 2040
Commercial 1,623 1,714 1,805 1,897 1,988 2,078
Industrial 1,045 1,103 1,162 1,221 1,279 1,337
Residential, Multiple
Family 774 804 834 864 894 923
Residential, Single Family 3,922 4,073 4,225 4,377 4,529 4,681
4 U.S. Census 2010. 5 A 10% increase was added to the difference between the WDOA estimated number of housing units in 2040 minus
the number of units in 2015.
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East Central Wisconsin Regional Planning Commission 4-11
Table 4-8: Future Land Use Consumption in Acres (Scenario #2 High Estimate)
Land Use 2015 2020 2025 2030 2035 2040
Commercial 1,623 1,732 1,842 1,951 2,060 2,169
Industrial 1,045 1,115 1,185 1,256 1326 1,396
Residential, Multiple
Family 738 812 850 888 926 964
Residential, Single Family 3,922 4,114 4,307 4,500 4692 4,885
FUTURE LAND USE MAP
Map 4-5 is a representation of future land uses within in the City and in the extraterritorial three
mile buffer. Table 4-9 provides a description of land uses displayed in the map.
Table 4-9: Future Land Use Map Classifications
Residential Land Uses
Land Use: Location Characteristics: Typical Zoning Districts:
Medium and High
Density Residential
Intent: Townhouses and all
forms of apartments are
included in this category
with densities of 12-36
units per acre typical.
Medium to higher
volume traffic areas
near high amenity and
activity areas.
Developments are on
large tracts of land
outside of City Center.
Center City
developments generally
multi-story.
Often a transition or
buffer land use to lower
density residential.
MR – 12
MR – 20
MR – 36
NMU
SMU
UMU
CMU
Low Density Residential
Intent: Includes single-
family, duplex, and two flat
structures in densities of 2-
10 dwelling units per acre.
Medium to low volume
traffic areas.
Developments are in
larger tracts of land.
SR-3
SR-5
SR-9
DR-6
TR-10
TND-O
NTD-O
Rural Residential
Intent: These land uses
primarily consist of
housing in adjacent towns.
Maximum Density is 1 DU
per 35 acres
Medium to low volume
traffic areas.
Typically located
outside of city limits.
Developments are in
larger tracts of land.
RH-35
Conservation Residential
Intent: Low density
residential subdivision with
Medium to low volume
traffic areas.
Typically located
Any low density
residential with a planned
development overlay.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 4: Land Use
________________________________________________________________________________________________________
4-12 East Central Wisconsin Regional Planning Commission
focus on open spaces and
conservation of
environmental features.
outside of city limits.
Developments are on
larger tracts of land.
Commercial and Industrial Land Uses
Land Use: Location Characteristics: Typical Zoning District
Interstate Commercial
Intent:
This land use category
consists primarily of higher
intensity commercial and
retail uses generally
located along primary
highway corridors and
intersections. Medium or
high density housing may
be incorporated as part of
larger Planned
Developments.
High volume traffic
areas.
Highways
Major corridors
SMU
BP
CBP
General Commercial
Intent: These land uses
primarily consist of retail
sales and services. It
encompasses areas
dominated by existing
commercial uses and
areas with access to major
traffic corridors.
Medium to higher
volume traffic areas.
Intersections of arterial
streets.
NMU
SMU
UMU
CMU
RMU
BP
CBP
Neighborhood
Commercial
Intent: Lots or parcels
containing small-scale
retail or offices,
professional services,
convenience retail, and
storefront retail that serves
a market at neighborhood
scale.
Low to medium traffic
areas.
Intersections of collector
streets.
Near residential
concentrations.
NMU
UMU
Mixed-Use
Intent:
This land use category
provides the opportunity to
incorporate a variety of
uses such as retail, office,
residential, and
institutional within a single
development or within
close proximity to one
another. Retail and office
Medium to higher
volume traffic areas.
Size of district varies
depending on type and
intensity of surrounding
development.
NMU
SMU
UMU
CMU
RMU
City of Oshkosh Comprehensive Plan Update 2040
Chapter 4: Land Use
East Central Wisconsin Regional Planning Commission 4-13
uses may be stand alone
or may be on the ground
floor with residential or
office uses on the upper
floors. Residential
densities should be
medium to high.
Center City
Intent; This land use
category allows high
intensity office, retail,
housing, hospitality,
conference and public land
uses.
Central Business
District including the
former industrialized
riverfront areas.
UMU
CMU
RMU
I
Industrial
Intent:
This land use category
provides for a variety of
manufacturing, assembly,
and warehousing activities
typically in large campus
like settings.
High volume traffic
areas near major
transportation corridors
including railroad lines.
HI
UI
Other Land Uses
Land Use: Location Characteristics: Typical Zoning Districts:
Community Facility
Intent: These land uses
typically provide
educational, governmental
and community services to
the City. Generally
publically oriented uses.
Mix of traffic areas.
Transit service available
I
C-O
Parks, Recreation and
Open Space
Intent: These land uses
provide open spaces,
green spaces and
recreational opportunities
for community residents.
Lower traffic areas.
Limited transit service.
I
Quarry
Intent: These land uses
provide non-metallic
mining operations for the
community.
Mix of traffic areas. HI
Environmental
Intent: These land uses
Lower traffic areas.
FP-O
SL-O
City of Oshkosh Comprehensive Plan Update 2040
Chapter 4: Land Use
________________________________________________________________________________________________________
4-14 East Central Wisconsin Regional Planning Commission
provide open spaces,
green spaces and other
undeveloped lands.
POLICIES AND PROGRAMS
Policies and programs related to the land use element can be found in Appendix D.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
Type Reference Content
Goal LU1
Provide sufficient land area with adequate services to meet
projected land demand for various types of land uses.
Objective LU1.1
Make land use decisions, which fulfill the City’s demand for
residential and non-residential land.
Action LU1.1.1
Work with East Central Wisconsin Regional Planning Commission
to ensure sufficient land areas are designated for sanitary sewer
extensions within Oshkosh’s Sewer Service Area to meet projected
demand for development of land.
Action LU1.1.2
Within the planning period, adopt cooperative boundary
agreements with surrounding towns describing agreed upon
jurisdictional boundaries, land uses and service levels within the
City’s extraterritorial jurisdiction area.
Action LU1.1.3
Annex land as needed to provide sufficient areas within the City
limits to accommodate projected growth in the Oshkosh area.
Action LU1.1.4
Maintain adequate capacity of public facilities and services to be
able to accommodate projected demand for new land development.
Type Reference Content
Goal LU2 Encourage the efficient and compact utilization of land.
Objective LU2.1
Make land use decisions that are compatible with urban-style
development where appropriate.
Action LU2.1.1
Review extraterritorial plans and officially map future streets,
highways, parks, and other infrastructure to ensure adequate future
facilities.
Action LU2.1.2
Work with Winnebago County and the adjoining towns to ensure
that land that is anticipated to be developed for urban uses in the
future is properly planned and zoned so that premature
development does not take place prior to the provision of
City of Oshkosh Comprehensive Plan Update 2040
Chapter 4: Land Use
East Central Wisconsin Regional Planning Commission 4-15
appropriate urban services.
Action LU2.1.3
Rezone undeveloped parcels within the city limits to encourage in-
fill development.
Action LU2.1.4
Discourage “leap frog” development patterns, which create
undeveloped land areas.
Type Reference Content
Goal LU3 Encourage compatible land use development.
Objective LU3.1
Promote land use decisions that do not conflict with adjoining
properties.
Action LU3.1.1
Develop project plans for special areas/targeted redevelopment
sites.
Action LU3.1.2 Develop design standards for infill and new development.
Action LU3.1.3 Develop plans for city corridors.
Type Reference Content
Goal LU4
Encourage redevelopment to be oriented toward the
waterfront and increase public access where appropriate.
Objective LU4.1 Redevelop the waterfront with increased public accessibility.
Action LU4.1.1
Encourage Downtown/Central City residential development through
rehabilitation or new construction.
Action LU4.1.2
Complete the Fox River Corridor looped trail system with an
environmentally sensitive design for the shoreline.
Action LU4.1.3
Maintain and increase public access to the riverfront (trails,
riverwalk, parks, right-of-way at street ends, boat docking, etc.).
Action LU4.1.4 Redevelop underutilized lakefront and waterfront sites.
Type Reference Content
Goal LU5
Maintain, preserve and enhance the viability of existing
neighborhood development.
Objective LU5.1
Implement tools and program to promote preservation of existing
neighborhoods.
Action LU5.1.1
Implement “Neighborhood Improvement Strategies” in specific
geographic areas for neighborhood and housing issues.
Action LU5.1.2
Monitor and incorporate the mobility needs of all citizens into the
planning of transportation projects and services.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 4: Land Use
________________________________________________________________________________________________________
4-16 East Central Wisconsin Regional Planning Commission
Type Reference Content
Goal LU6
Promote environmentally sensitive and responsible utilization
of land, incorporating permanent open space and natural
resources.
Objective LU6.1 Develop tools to protect and retain environmentally sensitive areas.
Action LU6.1.1 Monitor and modify a waterfront/riverfront overlay zoning district.
Action LU6.1.2
Pursue incentives to redevelop underutilized or environmentally
contaminated sites, both publicly and privately owned.
Action LU6.1.3
Revise Land Subdivision Ordinance to address cluster
development requirements for protecting environmentally sensitive
areas.
Action LU6.1.4
Maximize land use opportunities that enhance and integrate water-
related resources.
Action LU6.1.5
Work with Forestry Department to ensure adequate numbers of
trees in the City. Previous research recommends 40% tree canopy
is ideal.
ILE
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Map 4-1: City of Oshkosh Comprehensive Plan UpdateExisting Land Use - 2015
Source: Base data provided by Winnebago County 2016.Land Use provided by ECWRPC 2016.
PREPARED APRIL 2018 BY:
4
0 1 20.5
Scale in Miles
MZ O:\Tyler\2016\Oshkosh_Comp_Plan\LandUse\Map_4_1_LandUse2015.mxd
This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
Lake Winnebago
Lake
Butte
Des Morts
Town of Oshkosh
Town of Algoma
Town of Omro
Town of Utica
Town of Nekimi
Town of Black Wolf
City of Oshkosh
Single Family Residential
Farmsteads
Multi-Family
Mobile Home Parks
Commercial
Industrial
Quarries
Institutional Facilities
Transportation
Utilities/Communications
Non-Irrigated Cropland
Irrigated Cropland
Other Ag Land / Pasture
Recreational Facilities
Planted Woodlands
General Woodlands
Open Other Land
Water
East Central Wisconsin Regional Planning Commission 4-17
ILK
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ILE
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Map 4-2: City of Oshkosh Comprehensive Plan UpdateExisitng Land Use - 2015
Source: Base data provided by Winnebago County 2016.Land Use data provided by ECWRPC 2016.
PREPARED APRIL 2018 BY:
4
0 1.5 30.75
Scale in Miles
MZ O:\Tyler\2016\Oshkosh_Comp_Plan\LandUse\Map_4_2_LandUseEXT2015.mxd
This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
Lake
Butte
Des Morts
Town of Oshkosh
Town of AlgomaTown of Omro
Town of Utica
Town of Nekimi
Town of Black Wolf
City of Oshkosh
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Mobile Home Parks
Commercial
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Quarries
Institutional Facilities
Transportation
Utilities/Communications
Non-Irrigated Cropland
Irrigated Cropland
Other Ag Land / Pasture
Recreational Facilities
Planted Woodlands
General Woodlands
Open Other Land
Water
3-mile Extraterritorial Boundary
Lake Winnebago
East Central Wisconsin Regional Planning Commission 4-19
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CHAPTER 5
TRANSPORTATION
CHAPTER 5: TRANSPORTATION
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 5-1
Goals…………………………………………………………………………………………………… . 5-1
Key Summary Points………………………………………………………………………………….. 5-2
Inventory and Analysis………………………………………………………………………………… 5-3
Streets and Highways…………………………………………………………………………………. 5-3
Public Transportation………………………………………………………………….………………. 5-9
Non-Motorized Transportation…………………………………………………………………….... . 5-10
Trucking and Freight…………………………………………………………………………………. . 5-11
Air Transportation…………………………………………………………………………………….. . 5-11
Railroads………………………………………………………………………………....................... 5-12
Water Transportation…………………………………………………………………....................... 5-12
Future Plans and Studies……………………………………………………………....................... 5-12
Policies and Programs…………………………………………………………………………......... . 5-13
Objectives and Actions………………………………………………………………………………. . 5-13
City of Oshkosh Comprehensive Plan Update 2040
Chapter 5: Transportation
East Central Wisconsin Regional Planning Commission 5-1
CHAPTER 5: TRANSPORTATION
INTRODUCTION
A safe, efficient, and well-designed transportation system can provide convenient transportation
and economic benefits for the residents of the City and the surrounding area. The City’s
transportation system is much more than simply looking at the road system. An assessment of
the pedestrian, bicycle, transit, rail and air transportation systems all play an important part in
providing transportation for goods and people.
Wisconsin’s Smart Growth Legislation requires that the transportation element consist of
objectives, policies, goals, maps and programs that guide the development of various
transportation modes. These modes include highways, transit, and transportation for those with
various disabilities, bicycles, pedestrians, railroads, air transportation, trucking and water. This
chapter serves to assess the current status of these transportation modes, determine what the
City desires them to become in the future, and devise ways to implement them.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal T1
Provide efficient and well-designed collector and arterial
streets and highways.
Goal T2
Increase efficiency and "reduce friction" on principal arterial
streets, which form the primary circulation system.
Goal T3
Maintain efficiency of the regional highway system for high
speed intracity transportation.
Goal T4 Ensure adequate parking is available throughout the City.
Goal T5 Provide quality public transit and paratransit services.
Goal T6 Provide facilities for pedestrian and bicycle circulation.
Goal T7
Maintain adequate and efficient aviation facilities serving the
Oshkosh area.
Goal T8
Promote and maintain efficient freight rail serving the
Oshkosh area.
Goal T9
Encourage the establishment of passenger rail service in the
Oshkosh area.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 5: Transportation
5-2 East Central Wisconsin Regional Planning Commission
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Streets and Highways
a) In total, there are approximately 311 miles of urban functionally classified roads in the
City.
b) Within the City there are approximately 41 miles of urban principal arterial roads.
Currently there are 12 urban principal arterial roadways serving the City.
c) Within the City there are approximately 33 miles of urban minor arterials. Currently there
are 20 urban minor arterial roadways within the City.
d) Within the City there are approximately 40 miles of collector roads. There are 58 urban
collector roadways within the City.
e) There are approximately 197 miles of urban local roads.
f) There are approximately 492 miles of PASER rated roads in the City.
g) There are no rustic roads designated in the City.
Public Transportation
a) Fixed route transit service in or to the City is primarily provided by Oshkosh (GO
Transit). Oshkosh (GO Transit) also operates Route 10 connection to/from the Oshkosh
Transit Center to the Neenah Transit Center to connect with Valley Transit.
b) Disabled and senior citizens (60 years and older) can utilize services provided by public,
private and non-profit agencies in the City and in Winnebago County.
Non-Motorized Transportation
a) The City of Oshkosh has prepared a 20-year Bicycle and Pedestrian Master Plan to
develop sound strategies for improving pedestrian and bicycle transportation throughout
the Oshkosh area.
b) Consult the Appleton (Fox Cities) Transportation Management Area and Oshkosh
Metropolitan Planning Organization Bicycle and Pedestrian Plan (2014) for
recommendations regarding bicycle/pedestrian improvements within and beyond the
City boundaries.
Trucking and Freight
a) I-41, STH 45 (from I-41 interchange to the north), STH 21 (from I-41 interchange to the
west), STH 44 (from I-41 interchange to the southwest) and STH 26 (from the I-41
interchange to the southwest) are fully functioning truck route with no limits on semi-
trailer lengths. STH 76, STH 21 (between I-41 and STH 45), STH 44 (between I-41
interchange to STH 76) and STH 91 (from interchange with STH 44 to the west) are
designated truck routes, limiting trailer lengths to 75 feet. STH 45 within the City (from I-
41 interchange and south) is a designated truck route, limiting trailer lengths to 65 feet.
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Air Transportation
a) Appleton International Airport provides both commercial and cargo air services for the
region.
b) Wittman Regional Airport provides private and cargo air services for the region. It is also
home to the Experimental Aircraft Association and its annual EAA AirVenture Oshkosh.
Railroads
a) There are currently two active railroad lines running through the City both with 286,000
pound railcar limits.1 One rail line is operated and maintained by Canadian National (CN)
and the other rail line by Wisconsin and Southern. No direct rail passenger service is
offered near the City.
Water Transportation
a) There are no commercial ports in the City.
INVENTORY AND ANALYSIS
The inventory and analysis section provides the City with a general assessment of existing
transportation facilities. By determining what part of the system is deficient, over capacity,
underutilized, or meeting the current and future needs, the City is better prepared to develop
meaningful goals, strategies and recommendations that address current problems and
reinforces existing strengths.
STREETS AND HIGHWAYS2
The hierarchy of the road network calls for each roadway to be classified according to its
primary function, ranging from its ability to move vehicles (i.e. freeway) to its ability to provide
direct access to individual properties (i.e. local roads). Within Wisconsin, urbanized and rural
areas provide a framework for the placement of routes. Urban areas are defined as any place or
cluster of places within a designated urbanized boundary that has a population between 5,000
and 49,999; while urbanized areas are defined as a cluster of places within a designated
urbanized boundary, with a population of more than 50,000 people. Streets and highways within
urban and urbanized areas are classified under the urban functional classification. Rural areas
are places in the state located outside of urban and urbanized areas. Within the City, roads are
classified under the urban functional classification system. Map 5-1 illustrates the transportation
infrastructure and functional classification for the City3.
The Wisconsin Department of Transportation (WisDOT) conducts traffic counts at key locations
on a regular rotating basis. The traffic counts provide an indication of the roadway’s appropriate
classification. Displayed as Annual Average Daily Traffic (AADT), these counts are statistically
adjusted to reflect daily and seasonal fluctuations that occur on each roadway. The most recent
1 Wisconsin Rail Plan, 2030. 2 Functional Classification Criteria, Planning Section, Bureau of Planning & Economic Development, Division of
Transportation Investment Management, Wisconsin Department of Transportation, April 2013. 3 Functional classified roads approved by the by the Federal Highway Administration on 09/01/2011. Most recent
changes to the functional classified roads are in the process of being updated in 2016.
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5-4 East Central Wisconsin Regional Planning Commission
counts in the City were completed in 2010 and 2014 are also provided to view traffic trends
(Map 5-2).
Urban Functional Classification4
The urban functional classification process organizes routes according to the character of
service provided, ranging from travel mobility to land access. In total, there are approximately
311 miles of urban functionally classified roads in the City. Urban functional classification
includes:
Urban Principal Arterials
Principal arterials serve major economic activity centers of an urban or urbanized area, the
highest average daily traffic (ADT) corridors, and regional and intra-urban trip length desires.
Within the City there are approximately 41 miles of urban principal arterial roads.
Currently there twelve are urban principal arterials within the City:
Interstate 41 (I-41) / US Highway 41 (USH 41) is a major 4-lane north-south route connecting
Oshkosh to the surrounding Fox Valley; to Milwaukee (and southeastern WI) to the south; and
to Green Bay to the north. The route currently runs primarily through the central portions of the
City. I-41 runs concurrent with USH 41 and is designated from just south of the
Wisconsin/Illinois border; terminating in the north in Green Bay. AADT on I-41 in the Oshkosh
area is consistently in the 50,000 – 60,000 range since 2010.
Additional urban principal arterials designated throughout City limits include:
US Highway 45 (USH 45)
State Highway 21 (STH 21)
State Highway 44 (STH44)
State Highway 76 (STH 76)
Portions of the following roads are also designated as urban principal arterials within City limits:
State Highway 26 (portion from I-41 to Pickett Road)
W 9th Avenue (portion from I-41 to State Highway 44)
W 20th Avenue (portion from State Highway 44 to Oregon Street)
Oregon Street (portion from W 20th Avenue to W 24th Avenue)
W 24th Avenue (Oregon Street to USH 45)
High Avenue (portion from STH 21 to USH 45 / N. Main Street)
Algoma Boulevard (portion from STH 21 to USH 45 / N. Main Street)
Urban Minor Arterials
Urban minor arterials serve important economic activity centers, have moderate ADT, and serve
intercommunity trip length desires interconnecting and augmenting the principal arterial system.
Within the City there are approximately 33 miles of urban minor arterials.
4 Functional Classification Criteria, Planning Section, Bureau of Planning & Economic Development, Division of
Transportation Investment Management, Wisconsin Department of Transportation, April 2013.
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Currently there are twenty urban minor arterials within the City:
County Highway A / Bowen Street
Snell Road
Stearns Drive / Stearns Road
Murdock Avenue (portion from STH 76 to Bowen Street)
N. Main Street (portion from W Murdock to Washington Avenue)
Irving Avenue (portion from STH 76 to Bowen Street)
Pearl Avenue (portion from STH 44 to USH 45)
Ceape Avenue (portion from USH 45 / Main Street to Bowen Street)
Oregon Street / Jackson Street (portion from USH 45 to W 20th Avenue)
W. 9th Avenue (portion from STH 44 to USH 45)
W. South Park Avenue (portion from STH 44 to USH 45)
County Highway I (portion from W 24th Avenue to Fisk Avenue just beyond city limits)
Washburn Street / Planeview Drive (portion from STH 21 to STH 26)
Koeller Street (portion from STH 21 to STH 44)
County Highway K (portion from S. Oakwood Road to W 24th Avenue)
W 9th Avenue (portion from just west of I-41 to S. Oakwood Road)
Witzel Avenue (portion from STH 44 to County Highway E / city limits)
N. Sawyer Street (portion from Witzel Avenue to STH 21)
Oakwood Road (portion from STH 21 to STH 91
State Highway 91 (portion from STH 44 west to city limits)
It is important to note Winnebago County has plans to develop a west side arterial which will be
built to connect STH 21 to STH 44. Please consult Winnebago County for the most current
information regarding this proposed project, timeline and pending roadway connections
associated to this project.
Urban Collectors
Urban collectors provide direct access to residential neighborhoods, commercial, and industrial
areas. They serve moderate to low ADT and inter-neighborhood trips. Within the City there are
approximately 40 miles of urban collector roads.
Currently there are fifty-eight urban collectors within the City:
County Highway Y
Green Valley Road
Lake Butte Des Morts Drive
Water Street
W Fernau Avenue
Packer Avenue (portion from STH 76 to Harrison Street)
Main Street (portion from Snell Road to Murdock Avenue)
Vinland Road
W Smith Avenue (portion from Vinland Road to STH 76)
Harrison Street
E Murdock Avenue (portion from Bowen Street to Hickory Street)
Hickory Street (portion from E Murdock Avenue to Menominee Drive)
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Menominee Drive (portion from Hickory Street to Hazel Street)
New York Avenue (portion from High Avenue to Menominee Drive)
Wisconsin Street (portion from USH 45 to STH 44)
Congress Avenue (portion from Elmwood Avenue to Algoma Boulevard)
Elmwood Avenue (portion from W Murdock Avenue to Algoma Boulevard)
Vine Avenue (portion from Elmwood Avenue to High Avenue)
Woodland Avenue (portion from Algoma Boulevard to High Avenue)
Osceola Street (portion from Algoma Boulevard to High Avenue)
Church Avenue (portion from STH 44 to STH 76)
Division Street (portion from Jackson Street to Church Avenue)
Market Street (portion from Algoma Boulevard to High Avenue)
Commerce Street (portion from High Avenue to N Main Street)
Hazel Street (portion from E Murdock Avenue to Washington Avenue)
W Irving Avenue (portion from Elmwood Avenue to STH 44)
E Irving Avenue (portion from Bowen Street to Hazel Street)
Merritt Avenue (portion from N Main Street to Hazel Street)
Broad Street (portion from Merritt Avenue to Ceape Avenue)
Washington Avenue (portion from N Main Street to Rosalia Street)
Rosalia Street (portion from Washington Avenue to Ceape Avenue)
Ceape Avenue (portion from Rosalia Street to Bowen Street)
Waugoo Avenue (portion from N Main Street to Bowen Street)
Otter Avenue (portion from N Main Street to Bowen Street)
Court Street (portion from Washington Avenue to Ceape Avenue)
State Street (portion from Washington Avenue to Ceape Avenue)
W 6th Avenue (portion from Oregon Street to USH 45)
N Westfield Street
Taft Avenue
N Campbell Road
S Sawyer Street (portion from Witzel Avenue to W 9th Avenue)
Knapp Street (portion from Witzel Avenue to W 20th Avenue)
Osborn Avenue
Ohio Street (portion from W South Park Avenue to W 20th Avenue)
W 17th Avenue
W 18th Avenue (portion from Knapp Street to STH 44)
Knapp Street Road (portion from STH 44 to Poberezny Road)
Poberezny Road
W Waukau Avenue (portion from CTH I to USH 45)
W Waukau Avenue (portion from S Washburn Street to STH 44)
Universal Street (portion from STH 44 to CTH K (W 20th Avenue))
Lennox Street
Maricopa Drive (portion from Lennox Street to S Westhaven Drive)
Westhaven Drive / Westhaven Circle (portion from Maricopa Drive to STH 21)
Westowne Avenue
Emmers Lane
W 9th Avenue (portion from S Oakwood Road to Clairville Road)
County Highway K (portion from S Oakwood Road to Clairville Road)
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Urban Local Roads
Local roads, which include all of the remaining roads and streets in the City, are designed to
provide access to land adjacent to the collector and arterial network. They serve local travel
from general residential areas over very short distances. WisDOT does not generally conduct
official traffic counts on local function roads. Within the City there are approximately 197
miles of urban local roads.
Pavement Surface Evaluation and Rating (PASER)
Every two years, all jurisdictions in the State of Wisconsin are required to rate the condition of
their local roads and submit the information to WisDOT. This information is partially tied to the
amount of General Transportation Aids (GTA) funding that the City receives on a yearly basis.
The surface condition rating of each roadway is updated in the state’s computer database
known as the Wisconsin Information System for Local Roads (WISLR). This database is based
off of the PASER (Pavement Surface Evaluation and Rating) road rating method. The PASER
system was developed and improved in recent years by the Transportation Information Center
(TIC) at the University of Wisconsin - Madison in cooperation with WisDOT. Generally, PASER
uses visual assessments to rate paved roadway surfaces on a scale of 1 to 10, with 1 being a
road that needs to be reconstructed and 10 being a brand new roadway.5 This inventory
provides the basis for developing a planned maintenance and reconstruction program and helps
municipalities track necessary improvements. Prompt maintenance can significantly reduce long
term costs for road repair and improvement. Table 5-1 provides a breakdown of the PASER
ratings, conditions and maintenance needs.
Table 5-1: PASER Ratings and Maintenance Needs
Rating Condition Needs
9 & 10 Excellent None
8 Very Good Little Maintenance
7 Good Routine Maintenance, Crack Filling
6 Good Sealcoat
5 Fair Sealcoat or Nonstructural Overlay
4 Fair Structural Improvement – recycling or overlay
3 Poor Structural improvement – patching & overlay or recycling
2 Very Poor Reconstruction with extensive base repair
1 Failed Total reconstruction
Source: Transportation Information Center, UW-Madison
Table 5-2 provides a summary of the total miles of local roads in the City by PASER rating. A
map showing the PASER ratings by street is in Map 5-4. There are approximately 492 miles
of PASER rated roads in the City.6 According to PASER:
Approximately 245 miles (50%) of the roads are in excellent to very good condition
(Ratings 8-10) and require little maintenance.
5 Transportation Information Center. 2002. PASER Manuals Asphalt. 6 PASER road mileage is calculated and rated by road lane miles (i.e. north and south or east and west).
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Approximately 185 miles (38%) are in good to fair condition (Ratings 5-7), while they
are in good condition structurally, these roads will need slightly more maintenance work.
The work may involve seal coating, crack filling and possibly a non-structural overlay.
About 62 miles (12%) of local roads will require more attention (Ratings 1-4). Having a
PASER rating of 1 through 4, these roads could require structural improvements such as
pavement recycling, overlay and patching, or total reconstruction, depending on the road
base.
Table 5-2: Total Miles of Local Roads
within City by PASER Rating, 2015
Rating Mileage Percent
1 0.26 0.05
2 6.21 1.26
3 21.48 4.36
4 33.9 6.88
5 44.01 8.94
6 53.41 10.85
7 87.69 17.81
8 89.97 18.27
9 54.03 10.97
10 101.42 20.60
Total 492.38 100.00
Source: WISLR 2015, City of Oshkosh
Figure 5-1: PASER Ratings by Mileage and Percent, 2015
Source: WISLR 2015, City of Oshkosh
0.00
50.00
100.00
150.00
200.00
250.00
Bad (1-4)Fair (5-7)Good (8-10)
61.85
185.11
245.42
12.56
37.59 49.84
Mileage
Percent
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Rustic Roads
The Rustic Roads System was created by the State Legislature in 1973 to help citizens and
local units of government preserve scenic lightly traveled country roads for the leisurely
enjoyment of bicyclists, hikers, and motorists. They offer excellent opportunities to travel
through an attractive rustic area. The scenic qualities of these roads are protected by
agreement with bordering property owners and by implementing roadside maintenance
practices that allow wildflowers and other native flora to extend to the edge of the pavement.
There are no rustic roads designated in the City.
PUBLIC TRANSPORTATION
Fixed Route Transit Service
Fixed route transit service within the City is provided by GO Transit. GO Transit also provides a
connecting route with Valley Transit’s service at the Neenah Transit Center and the Oshkosh
Transit Center in downtown (provided by Route 10). It is free to transfer from Route 10 to any
Valley Transit route; however, the full cash fare must be paid to transfer from any Valley Transit
route to Route 10. Consult Valley Transit and GO Transit websites for the most current transit
information.7 A map of current routes can also be found in Map 5-5.
ADA and Senior Transportation
Additional ADA and Senior Transportation options provided in the City include:
City of Oshkosh:
o GO Transit Fixed Route Bus: Reduced fare for disabled individuals, and those
sixty and over; all buses/routes are equipped with wheelchair lifts
o Travel Training Program: GO Transit provides assistance to any rider that
would like to learn how to use the bus
o Dial-a-Ride: Reduced fare for those sixty and over
o Access to Jobs: Reduced fare for taxi service for low-income workers to and
from employment within the City
o Americans with Disabilities Act (ADA) Paratransit: Reduced far for paratransit
and taxi service for individuals with qualifying disabilities (contracted through
private provider)
Winnebago County:
o Winnebago County Volunteer Transportation Services: Local and long
distance transportation for clients of Winnebago County Department of Human
Services, or non-clients ages sixty and over
7 http://appleton.org/residents/valley-transit .
http://www.ci.oshkosh.wi.us/Transit/ .
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o Medical Assistance Transportation (MTM): Riders on Medical Assistance
should call this number to arrange for all non-emergency Medical Assistance
transportation
NON-MOTORIZED TRANSPORTATION
Pedestrian and Bicycle Facilities
Walking and bicycling have emerged and continue to be an important means of exercise as well
as modes of transportation in a well-rounded transportation system. Current safe pedestrian and
bicycle friendly opportunities are limited to those areas in the City with close access to multi-use
bicycle/pedestrian trails and sidewalks. A quality network of pedestrians and bicyclists does
exist within the City, however it should be reviewed frequently to find any gaps in service and
address safety concerns between vehicles, bicycles and pedestrians.
The City of Oshkosh has prepared a 20-year Bicycle and Pedestrian Master Plan to
develop sound strategies for improving pedestrian and bicycle transportation throughout
the Oshkosh area. The plan was originally developed in 2011 with the update of the plan
occurring in 2018. The planning area includes the City of Oshkosh with connection to
surrounding extra-territorial areas. During the 2011 plan development, oversight was provided
by the Pedestrian and Bicycle Plan Stakeholder/Steering Group, a working team formed of
interested citizens, representatives from various organizations and city departments. The group
was responsible for providing direction and review of plan components through an extensive
series of workshop meetings. The process also included multiple public information meetings
and public hearings. And in 2018, the Bicycle and Pedestrian Advisory Committee provided
oversight to the update of the 2011 plan.
In 2014, East Central Wisconsin Regional Planning Commission (ECWRPC) completed a
regional bicycle and pedestrian plan for the Appleton and Oshkosh Urbanized Areas.8 This plan
evaluates the existing networks for pedestrian and bicycle facilities, and with the help of local
stakeholders, documents planned and recommended improvements for these facilities. It should
be noted that this plan is strictly advisory and the implementation of these recommendations is
dependent on the City. Please reference Map 5-6.
Additionally, two statewide guidance documents affecting biking and pedestrian policy are the
Wisconsin Pedestrian Policy Plan 2020 and the Wisconsin State Bicycle Transportation Plan -
2020. The Wisconsin Pedestrian Policy Plan 2020 outlines statewide and local measures to
increase walking throughout the state as well as promote pedestrian safety and comfort.
Pedestrians, by definition, are anyone who travels by foot. In addition, this definition has been
extended to disabled persons who require the assistance of a mobility device. Pedestrian traffic
can be difficult along highways where sidewalks are not present, safety measures are absent, or
traffic volume is heavy.
As a statewide plan, the Wisconsin State Bicycle Transportation Plan - 2020 does not assess
local roads. Where traffic speeds and volumes are low, local streets can serve multiple uses.
Utilizing the local street network for walking and bicycling is a viable use of this infrastructure, as
long as safety precautions are taken and/or streets are designed to accommodate multiple
uses. Roadways with traffic volume less than 1,000 vehicles per day are considered generally
8 http://fcompo.org/wp-content/uploads/2012/06/Appleton-TMA-and-Oshkosh-MPO-BikePed-Plan-2014.pdf .
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East Central Wisconsin Regional Planning Commission 5-11
safe for bicycling. Roadways meeting this criterion that are located within a primary bicycle
corridor identified by WisDOT provide potential linkages between existing bicycle trails and are
considered to be part of an interconnected statewide bicycle route network.
TRUCKING AND FREIGHT
Several designated truck routes exist within the City. Please reference Maps 5-3 to see an
official designated truck routes map within the City as well as an inventory of truck terminals
within the region. At the regional level, I-41, STH 45 (from I-41 interchange to the north),
STH 21 (from I-41 interchange to the west), STH 44 (from I-41 interchange to the
southwest) and STH 26 (from the I-41 interchange to the southwest) are fully functioning
truck routes with no limits on semi-trailer lengths. STH 76, STH 21 (between I-41 and STH
45), STH 44 (between I-41 interchange to STH 76) and STH 91 (from interchange with STH
44 to the west) are designated truck routes, limiting trailer lengths to 75 feet. STH 45
within the City (from I-41 interchange and south) is a designated truck route, limiting
trailer lengths to 65 feet.
The majority of trucking terminals within or nearby the City are clustered in four main areas:
Near CTH I and USH 45 in the southeastern portion of the City
Near CTH K (W 20th Ave) and State Highways 44 and 91 just west of I-41
Near the I-41 and USH 45 interchange just north of Lake Butte Des Morts
Near State Highway 76 and CTH A (Bowen Street) between Murdock Ave and Snell
Road
AIR TRANSPORTATION
Appleton International Airport provides regional air transportation. Airport uses at Appleton
International Airport include: persona/recreational, business/corporate, commercial service,
cargo, flight training, charter, search and rescue and military.9 According to the Wisconsin State
Airport System Plan 2030, the airport is currently classified as a Commercial Service airport.10
Appleton International Airport is approximately 20 miles north of the City. Other major regional
airports that have scheduled passenger air service include: Austin Straubel International Airport
in Green Bay (approximately 50 miles northeast), Dane County Regional Airport in Madison
(approximately 85 miles southwest) and General Mitchell International Airport in Milwaukee
(approximately 95 miles southeast). All of these airports are also classified as Commercial
Service airports.
Wittman Regional Airport in Oshkosh is classified as a Large General Aviation (GA) airport and
does not provide commercial air service. It is, however, a vital tourism / economic development
entity for the City and Winnebago County with the yearly Experimental Aircraft Association
(EAA) weeklong fly-in event each summer.
9 http://wisconsindot.gov/Documents/projects/multimodal/air/sasp5-ch3.pdf . (Table 3-9) 10 http://wisconsindot.gov/Pages/projects/multimodal/sasp/default.aspx .
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RAILROADS
Rail Freight Service
There are currently two active railroad lines running through the City both with 286,000
pound railcar limits.11 One rail line is operated and maintained by Canadian National (CN)
and the other rail line by Wisconsin and Southern. The CN line runs north-south through the
City near Lake Winnebago. The Wisconsin and Southern line runs southwest out of the City to
Ripon, Waupun and Beaver Dam before heading south to Milwaukee.
Rail Passenger Service
Amtrak utilizes Canadian Pacific lines to provide rail passenger service. Although no direct
service is offered near the City, Wisconsin is served by passenger stations in Milwaukee,
Columbus, Portage, Wisconsin Dells, and Tomah. As the route passes through the state, it
connects Chicago to the Twin Cities, and heads westward to terminate in Washington State.
The Midwest Regional Rail System Report12, prepared as a cooperative effort between nine
Midwestern states, outlines a high speed (up to 110 mph) passenger rail system that utilizes
3,000 miles of existing rail right-of-way to connect rural, small urban and major metropolitan
areas. The plan calls for a rail corridor connecting Green Bay to Milwaukee and Chicago. The
regional passenger rail system remains a conceptual idea at this time.
WATER TRANSPORTATION
There are no commercial ports in the City. The closest ports are located in Green Bay,
approximately 50+ miles to the northeast and in Milwaukee, approximately 90 miles to the
southeast. Both ports provide shipping services to the Great Lakes and beyond. Passenger
ferries are located in Manitowoc and Milwaukee. Both services offer passage across Lake
Michigan to Lower Michigan. Within the City, there are recreational boating opportunities and
boat slips along the Fox River and nearby Lake Butte des Morts and Lake Winnebago.
FUTURE PLANS AND STUDIES
Wisconsin Department of Transportation (WisDOT) / Transportation Improvement
Program (ECWRPC)
Consult ECWRPC for the most current information regarding road projects associated
with Federal Highway Administration (FHWA), Federal Transit Administration (FTA) and
WisDOT (Wisconsin Department of Transportation) funding for the Oshkosh Urbanized
Area; this information/funding sources are documented in the Transportation
Improvement Program (TIP) and coordinated through ECWRPC
Other WisDOT Statewide Plans:
Connections 2030 Long Range Transportation Plan (multi-modal transportation plan)
Wisconsin State Airport System Plan 2030
11 Wisconsin Rail Plan, 2030. 12 Midwest Regional Rail System: Executive Report, 2004. Transportation Economics & Management Systems, Inc. &
HNTB.
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East Central Wisconsin Regional Planning Commission 5-13
Wisconsin Rail Plan 2030
Wisconsin State Freight Plan (to be published December 2016)
Other Municipalities and Planning Efforts
East Central Wisconsin Regional Planning Commission (ECWRPC):
o Oshkosh Metropolitan Planning Organization (MPO) which is coordinated by
ECWRPC staff is responsible for preparing and maintaining a long range
transportation plan (LRTP) and short range Transportation Improvement
Program (TIP) for the Oshkosh Urbanized Area; both plans help coordinate
federal, state and local funds for various transportation/road projects. ECWRPC
provides staff/guidance on behalf of the Oshkosh MPO. Please consult the MPO
website.13
o ECWRPC Regional Comprehensive Plan for ten counties within the designated
region (Winnebago County is a member of ECWRPC; adoption in 2018).
City of Oshkosh 5-Year Capital Improvement Program (current 2016-2020)14,15
POLICIES AND PROGRAMS
Policies and programs related to the Transportation Element can be found in Appendix D.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
Type Reference Content
Goal T1
Provide efficient and well-designed collector and arterial streets
and highways.
Objective T1.1
Revise the City’s Official Map to reflect essential linkages and future
roads and capacity expansions between economic activity centers,
residential neighborhoods, and regional highways.
Action T1.1.2
Participate in the implementation and revisions of the University of
Wisconsin-Oshkosh Campus Master Plan, (including revisions to
Elmwood Avenue, High Avenue, Algoma Boulevard, and Pearl
Avenue) when those recommendations are consistent with this
comprehensive plan.)
Action T1.1.3
Review extraterritorial plans and officially map future streets,
highways, parks, and other infrastructure to ensure adequate future
facilities.
13 http://fcompo.org/ . 14 http://www.ci.oshkosh.wi.us/public_works/assets/pdf/cip/2016-2020-cip/2016-2020_CIP_11-24-15.pdf . 15 http://www.ci.oshkosh.wi.us/public_works/assets/pdf/cip/2016-2020-cip/2016_2020_CIP_11x17.pdf .
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Action T1.1.4 Officially map a west side arterial between Highways 21 and 44.
Action T1.1.5 Officially map Fisk Avenue from US Hwy 41 to US Hwy 45.
Action T1.1.6
Officially map 20th Avenue/CTH K from Clairville west to the future
arterial.
Action T1.1.7
Officially map a collector street midway between South Washburn
Street and Clay Road from Ripple Avenue to West Waukau Avenue.
Action T1.1.8
Officially map a collector street midway between Ripple Avenue and
West Waukau Avenue from South Washburn Street to Clay Road.
Action T1.1.9
Officially map an arterial street from Pearl Avenue to Congress
Avenue north of the UW -Oshkosh campus.
Action T1.1.10 Evaluate and develop plans for City’s major corridors.
Type Reference Content
Goal T2
Increase efficiency and "reduce friction" on principal arterial
streets, which form the primary circulation system.
Objective T2.1
Continue to develop the street system to improve circulation and
through the city including the evaluation of one-way streets.
Action T2.1.1
Promote (and if possible provide incentives) the use of ride sharing
programs by employers.
Action T2.1.2 Upgrade and improve the city's way-finding signage system.
Action T2.1.3
Coordinate with the WDOT to identify future park and ride commuter
lots.
Action T2.1.4
Plan proper truck routes to avoid routing with student interaction
when possible.
Action T2.1.5 Include neighborhood representatives in transportation planning.
Type Reference Content
Goal T3
Maintain efficiency of the regional highway system for high
speed intracity transportation.
Objective T3.1
Improve the quality of the major highway corridors into and through
the City.
Action T3.1.1 Update the Highway 41 Corridor Improvement Plan.
Action T3.1.2
Participate in the planning process for the widening of the STH 21
corridor from Oshkosh to Tomah.
Action T3.1.3
Explore opportunities for corridor plans into the City. These plans
should include design guidelines.
Action T3.1.4 Coordinate with the WDOT a study of the STH 26 corridor.
Type Reference Content
Goal T4 Ensure adequate parking is available throughout the City.
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Action T4.1.1 Review and evaluate the function and viability of the Parking Utility.
Action T4.1.2
Promote (and if possible provide incentives) the use of underground
parking facilities in residential and non-residential developments.
Action T4.1.3
Review Chapter 27 of the Municipal Code regarding parking
restrictions (overnight, metered, 2-hour, etc.)
Action T4.1.4 Research use of shared and on-street parking solutions.
Action T4.1.5 Implement City of Oshkosh Downtown Parking Study, 2016 report.
Type Reference Content
Goal T5 Provide quality public transit and paratransit services.
Action T5.1.1
Maintain the City's public transit system to provide services cost-
efficiently and to as many citizens as possible.
Action T5.1.2
Pursue opportunities for utilization and funding of energy efficient
public transit.
Action T5.1.3
Continue to incorporate Transit Department into the site plan review
process for major development proposals.
Action T5.1.4
Expand and evaluate services to meet the needs of all community
members.
Action T5.1.5
Incorporate the mobility needs of older citizens into the planning or
transportation projects, services, and streets.
Action T5.1.6
Improve coordination among human services agencies and
transportation agencies.
Action T5.1.7
Planning staff should participate in GO Transit's Transit Development
Plan update process.
Type Reference Content
Goal T6 Provide facilities for pedestrian and bicycle circulation.
Objective T6.1
Continue to develop a bicycle and pedestrian circulation system that
improves the options and safety for non-motorized transportation.
Action T6.1.1
Complete the Fox River Corridor with a looped trail system with an
environmentally sensitive design for the shoreline.
Action T6.1.2
Revise Land Subdivision Ordinance to:
a. Require sidewalks during the Certified Survey Mapping process.
b. Include sidewalks on all residential cul-de-sacs.
Action T6.1.3
Continue to incorporate planning and review processes for
pedestrian and bicycle transportation-related issues into an existing
city board or commission.
Action T6.1.4
Establish minimum standards for bike routes on specific roadways
throughout the City (ex: bike lanes versus widened sidewalks.
Action T6.1.5
Assess the walkability of neighborhoods near schools by partnering
with the East Central Wisconsin Regional Planning Commission’s
Safe Routes to School program.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 5: Transportation
5-16 East Central Wisconsin Regional Planning Commission
Action T6.1.6
Maintain and improve clearly designated bicycle lanes on all current
routes.
Action T6.1.7
Establish Walk-to/Bike-to-Work programs with major employers in
the City. Pursue incentives, where feasible.
Action T6.1.8 Develop a Complete Streets policy for the City.
Action T6.1.9
Continuously review City corridors for bicycle and pedestrian safety
improvements.
Type Reference Content
Goal T7
Maintain adequate and efficient aviation facilities serving the
Oshkosh area.
Objective T7.1 Integrate the plans and activities of the airport with the City's plans.
Action T7.1.1
Coordinate with the Airport on future runway extensions and clear
areas.
Action T7.1.2
Coordinate special events staff and services between the City and
the Airport.
Action T7.1.3
Participate in the Update of the Wittman Regional Airport Master
Plan.
Type Reference Content
Goal T8
Promote and maintain efficient freight rail serving the Oshkosh
area.
Objective T8.1
Maintain a rail transportation system that protects the rail corridor
and reduces the number of conflict points.
Action T8.1.1
Monitor status and implement requirements of the Federal Rail
Administration's whistle ban policy.
Action T8.1.2 Coordinate spur lines with industrial park sites.
Action T8.1.3
Coordinate with Canadian National Railway and Wisconsin and
Southern Railroad on their right-of-way needs for future expansion
along existing rail lines.
Type Reference Content
Goal T9
Encourage the establishment of passenger rail service in the
Oshkosh area.
Action T9.1.1 Monitor implementation of the Midwest Regional Rail Initiative.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 5: Transportation
East Central Wisconsin Regional Planning Commission 5-17
Type Reference Content
Goal T10
Ensure ongoing communication regarding transportation issues
and activities.
Objective T10.1
Adopt policy to verify ongoing communication with transportation
stakeholders.
Action T10.1.1
Adopt policy to include Transportation stakeholders in Plan
Commission packet distribution.
Action T10.1.2 Continue City staff involvement with Transportation related activities.
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Map 5-1: City of Oshkosh Comprehensive Plan UpdateFunctional Classification
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This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
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Map 5-2: City of Oshkosh Comprehensive Plan UpdateAADT
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Map 5-3: City of Oshkosh Comprehensive Plan UpdateTruck Routes &Freight Terminals
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This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
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East Central Wisconsin Regional Planning Commission 5-23
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Map 5-4: City of Oshkosh Comprehensive Plan Update2017 PASER Ratings
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East Central Wisconsin Regional Planning Commission 5-25
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Map 5-5: City of Oshkosh Comprehensive Plan UpdateTransit Routes
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Map 5-6: City of Oshkosh Comprehensive Plan UpdateBicycle & Pedestrian Facilities
Source: Base data provided by Winnebago County 2016.Bicycle & Pedestrian data provided by ECWRPC & Winnebago County 2018.
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This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application of thisinformation is the responsibility of the user and such use/application is at theirown risk. East Central Wisconsin Regional Planning Commission disclaims allliability regarding fitness of the information for any use other than for EastCentral Wisconsin Regional Planning Commission business.
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CHAPTER 6
ECONOMIC DEVELOPMENT
CHAPTER 6: ECONOMIC DEVELOPMENT
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 6-1
Goals…………………………………………………………………………………………………… . 6-1
Key Summary Points………………………………………………………………………………….. 6-2
Inventory and Analysis………………………………………………………………………………… 6-3
Strengths…………………………………………………………………….... ................................. 6-12
Weaknesses…………………………………………………………………………………. ............. 6-13
Policies and Programs……………………………………………………………………………….. 6-15
Objectives and Actions………………………………………………………………....................... 6-15
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-1
CHAPTER 6: ECONOMIC DEVELOPMENT
INTRODUCTION
Planning for economic development is an on-going process in which a community organizes for
the creation and maintenance of an environment that will foster both the retention and
expansion of existing businesses and the attraction of new businesses and a talented
workforce. As such, it is important to understand the existing resources that serve as assets for
economic development efforts.
The state’s “Smart Growth” legislation requires that the Economic Development element of a
comprehensive plan contain objectives, policies, goals, maps and programs to promote the
stabilization, retention or expansion of the economic base and quality employment opportunities
in the jurisdiction including an analysis of the labor force and economic base of the community.
The element must also address strengths and weaknesses for economic development in the
City and identify key types of industry or business that the residents of the City would like to see
within it. This chapter, along with Chapter 2: Plan Framework addresses these requirements.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal ED1
Leverage the collective assets of the broader region for
increased economic prosperity within the City of Oshkosh.
Goal ED2
Promote and support diversification of the industrial and
manufacturing employment base in order to have a more
resilient local and regional economy.
Goal ED3
Have a strong core of stable employers within the City of
Oshkosh.
Goal ED4
Support the growth of entrepreneurship activities and new
companies within the City of Oshkosh.
Goal ED5
Promote Oshkosh as a regional economic center within the
larger Fox Valley / I-41 Corridor market.
Goal ED6
Develop physical facilities within designated Economic
Activity Zones and other parts of Oshkosh which support
economic development linking Oshkosh to the regional and
global network.
Goal ED7
Promote destination tourism for individuals, or group
activities such as conferences, recreational activities, and
special events.
Goal ED8
Support programs designed to enhance and develop
workforce skills and productivity.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-2 East Central Wisconsin Regional Planning Commission
Goal ED9
Increase the economic and social opportunities within the
downtown, central city and waterfront areas.
Goal ED10
Strengthen and improve major entryways into the City as well
as other commercial and retail corridors within the City.
Goal ED11 Maintain and improve the quality of the City’s neighborhoods.
Goal ED12
Celebrate the overall high quality of life and sense of place
that the City of Oshkosh and surrounding region have to offer.
Goal ED13 Continue to improve the City’s overall aesthetic quality.
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Labor Force Characteristics
a) 69.3% of the City of Oshkosh’s population 16 years old and older was in the civilian
labor force, (2010-2014 American Community Survey 5-Year Estimates).
b) 63.3% of the City of Oshkosh’s population 16 years old and older was in the labor force,
(2010-2014 American Community Survey 5-Year Estimates).
c) 50.2% of the City’s labor force was male compared to 49.8% female (2010-2014
American Community Survey 5-Year Estimates).
d) The civilian labor force grew by 3.7% in the City, staying on pace with that of the county
(5.5%) and the state (7.1%) between 2000 U.S. Census and 2010-2014 American
Community Survey 5-Year Estimates.
e) Although all jurisdictions experienced an increase in the total number of employed
persons from 2000 to the 2010-2014 American Community Survey (ACS) 5-Year
Estimates, all jurisdictions experienced a decline in the overall employment rate.
f) The unemployment rate reached a high of 8.7% in City in 2010 and 7.8% in Winnebago
County and 8.7% in Wisconsin in 2010, (Wisconsin Department of Workforce
Development).
Commuting Patterns
a) The City’s workforce traveled an average of 17.1 minutes to their workplace (2010-2014
American Community Survey 5-Year Estimates).
b) In 2000, the mean travel time for City residents was 16.0 minutes or 1.1 minutes shorter
than the 2010-2014 ACS 5-Year Estimates.
c) The top workplace destinations for City residents include the City of Oshkosh (33.2%),
the City of Appleton (4.2%) and the City of Neenah (3.4%), as depicted in Table 6-5.
Economic Base Analysis
a) The top three occupations for City residents were Management, Business, Science, and
Arts Occupations (26.4%); Sales and Office Occupations (25.7%); and Service
Occupations (22.7%)1.
1 U.S. Census 2010-2014 ACS 5-Year Estimates, DP03.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-3
b) The top two sectors for the City, was the Manufacturing sector2 and Educational, health
and social services.
c) Economic Modeling Specialists International’s (EMSI) Analyst projections indicate that
the largest industry in 2026 will continue to be Manufacturing, which is expected to grow
by two percent between 2016 and 2026.
Economic Development Strategy and Assessment
a) Four industrial parks, one business park and an aviation business park exist within the
City.
b) The Wisconsin Department of Natural Resources Bureau for Remediation and
Redevelopment maintains a listing of brownfields and contaminated sites. This website
lists 30 open entries for the City.
c) There were six Leaking Underground Storage Tanks (LUST) indicated for the City.
d) There were 20 Environmental Repair sites (ERP) indicated for the City.
e) There were four Liability Exemption (VPLE) indicated for the City.
INVENTORY AND ANALYSIS
Determining what the existing economic conditions are within the City provides a factual basis
upon which to build the City’s goals, strategies, and recommendations This section inventories
the City’s labor force characteristics, provides an economic base analysis, discusses brownfield
sites, presents economic projections, and provides an assessment of economic development
strengths and weaknesses.
Some data in the following chapter was obtained from the American Community Survey (ACS).
The ACS is an ongoing statistical survey by the U.S. Census Bureau representing a sample of
the population over a period of time, differing from the Decennial U.S. Census where figures are
based on actual counts during a point in time. ACS estimates are controlled to decennial
population estimates and become less accurate over the decade, meaning estimates are only
as accurate as the census count on which they are based.
ACS data can be used to draw conclusions, however, due to the limitations of these estimates,
patterns can only be inferred through the data and consequently there is a larger margin of error
(MOE). Small sample size increases the MOE, indicating inaccuracy and rendering the data
unreliable. As a result, annual fluctuations in the ACS estimates are not meant to be interpreted
as long-term trends and caution should be taken when drawing conclusions about small
differences between two estimates because they may not be statistically different. It should also
be noted when comparing ACS multi-year estimates with decennial census numbers that some
areas and subjects must be compared with caution, or not compared at all.
Labor Force Characteristics
Labor Force
Labor force is defined as individuals currently with a job (the employed); and those without a job
and actively looking for one (the unemployed). Labor force trends are one indicator of the
economy’s performance. Labor Force trends can demonstrate the rate of growth of the labor
2 U.S. Census 2010-2014 ACS 5-Year Estimates, DP03.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-4 East Central Wisconsin Regional Planning Commission
force as well as the extent potential workers are able to find jobs. 63.3% of the City of
Oshkosh’s population 16 years old and older was in the labor force, according to 2010-
2014 American Community Survey 5-Year Estimates (Table 6-1). This was lower than
Winnebago County’s participation rate of 66.3% and the State of Wisconsin’s participation rate
of 67.4%. In 2000, the City of Oshkosh’s participation rate was approximately 65.9%. Between
the two time periods, participation rates in the City decreased by 2.6%.
Table 6-1: Population 16 Years Old and Older In Labor Force,
2000 and 2010-2014 ACS 5-Year Estimates
Jurisdiction
2000 2010-2014 5-Year Estimate
Total
In Labor Force Total In Labor Force
Number % Estimate MOE +/- Estimate
MOE
+/- % MOE +/-
Oshkosh 51,387 33,844 65.9% 55,412 +/-449 35,100 +/-871 63.3% +/-1.5
Winnebago
County 123,806 85,874 69.4% 136,631 +/-232 90,647 +/-1143 66.3% +/0.8
Wisconsin 4,157,030 2,869,236 69.0% 4,561,244 +/-1,325 3,076,311 +/-
5,726 67.4% +/-0.1
Source: U.S. Census 2000, DP-3; 2010-2014 American Community Survey 5-Year Estimates, DP03
The proportion of men outnumbered women in the workforce, in 2000 and 2010-2014, in all
jurisdictions (Table 6-2). 50.2% of the City’s labor force was male compared to 49.8%
female per 2010-2014 American Community Survey 5-Year Estimates. These percentages
(men vs. female) were in line with the share of men versus women (in the civilian labor force) in
Winnebago County (51.8% male vs. 48.2% female) and the state (52.2% male vs 48.0%
female).
Table 6-2: Total Civilian Labor Force, 2000 and 2010-2014 ACS 5-Year Estimates
Total Civilian Labor Force (2000) Total Civilian Labor Force (2010-2014)
Total Men % Women % Total Male % Female %
Oshkosh 33,807 17,190 50.8 16,617 49.2% 35,041 17,593 50.2% 17,448 49.8%
Winnebago
County 85,820 45,073 52.5% 40,747 47.5% 90,537 46,875 51.8% 43,662 48.2%
Wisconsin 2,869,236 1,505,853 52.5%
1,363,3
83 47.5%
3,073,
680
1,604,
258 52.2% 1,476,111 48.0%
Source: U.S. Census 2000, DP-3; 2010-2014 ACS 5-Year Estimates, DP03
The civilian labor force grew by 3.7% in the City, staying on pace with that of the county
(5.5%) and the state (7.1%) between 2000 U.S. Census and 2010-2014 American
Community Survey (ACS) 5-Year Estimates (Table 6-3). In the City of Oshkosh, the number
of total men (50.2%) in the labor force grew at a similar pace than the number of total women
(49.8%). As a result the share of women in the labor force increased from 49.2% in 2000, to
49.8% in 2010-2014 ACS 5-Year Estimates (Table 6-2).
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-5
Table 6-3: Civilian Labor Force Percent
Change, 2000 and 2010-2014 ACS 5-Year
Estimates
Jurisdiction
Percent Change, 2000 to
2010-2014 5-Year Est.
Total Male Female
Oshkosh 3.7% 2.3% 5.0%
Winnebago
County 5.5% 3.1% 7.2%
Wisconsin 7.1% 6.5% 8.3%
Source: U.S. Census 2000, DP-3; 2010-2014 American
Community Survey 5-Year Estimates, DP03
Unemployment
The unemployment rate is calculated by dividing the number of unemployed persons by the total
civilian workforce. Although all jurisdictions experienced an increase in the total number
of employed persons from 2000 to the 2010-2014 ACS 5-Year Estimates, all jurisdictions
experienced a decline in the overall employment rate. In 2000, 95.0% of the civilian labor
force was employed in the City of Oshkosh. This was slightly less than Winnebago County
(96.3%) and the state (95.3%). By the 2010-2014 ACS 5-Year Estimates, 93.5% of the civilian
labor force was employed in the City. In comparison, 94.2% were employed in Winnebago
County and 92.8% were employed in the state.
According to the 2010-2014 ACS 5-Year Estimates, over 94 percent (94.1%) of men and 93
percent (92.8%) of women were employed. In comparison, about 95 percent of men (94.6%)
and women (94.0%) in the civilian labor force were employed in Winnebago County and the
state (92.0% of men and 93.6% of women).
According to the Wisconsin Department of Workforce Development (DWD), overall
unemployment rates have been declining in the City of Oshkosh, Winnebago County and
Wisconsin since reaching a high in 2009 (Table 6-4 and Figure 6-1). This is a result of the 2008
recession, coined “The Great Recession”.
Table 6-4: Annual Average Unemployment Rates, 2005-2015
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Oshkosh 5 4.9 5.1 4.9 8.6 8.7 8 7.5 7.3 5.5 4.6
Winnebago
County 4.4 4.5 4.6 4.4 7.7 7.8 7.1 6.6 6.4 5.3 4.3
Wisconsin 4.7 4.7 4.9 4.9 8.6 8.7 7.8 7 6.8 5.5 4.6
Source: WI Dept. of Workforce Development, Office of Economic Advisors, LAUS 2002 -2014, Benchmark 2014 for
years 2005-2009, Benchmark 2015 for years 2010-2015, not seasonally adjusted
The unemployment rate reached a high of 8.7% in City in 2010 and 7.8% in Winnebago
County and 8.7% in Wisconsin in 2010, according to the Wisconsin Department of
Workforce Development. The peak in unemployment rates was related to the economic
downturn that began in 2008. Since that time, unemployment rates have been steadily
declining as the economy has been improving.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-6 East Central Wisconsin Regional Planning Commission
Figure 6-1: Annual Average Unemployment Rates, 2005-2015
Source: WI Dept. of Workforce Development, Office of Economic Advisors, LAUS 2005-2015
Commuting Patterns
Commuting patterns provide some indication of the distance residents have to travel to find
employment. The City’s workforce traveled an average of 17.1 minutes to their workplace
according to 2010-2014 American Community Survey 5-Year Estimates (Figure 6-2). This
was less than both the county (18.6 minutes) and the state (21.8 minutes).
Average commute time increased in the City of Oshkosh, Oshkosh County and Wisconsin
between 2000 and the 2010-2014 ACS 5-Year. In 2000, the mean travel time for City
residents was 16.0 minutes or 1.1 minutes shorter than the 2010-2014 ACS 5-Year
Estimates. Similarly average commute times in Winnebago County increased by 0.8 minutes
and the state 1.0 minutes between 2000 and the 2010-2014 ACS 5-Year Estimates.
0
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Oshkosh
Winnebago County
Wisconsin
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-7
Figure 6-2: Percent of Travel Time to Work, 2010-2014 ACS 5-Year
Estimates
Source: U.S. Census 2010-2014 ACS 5-Year Estimates, B08303
Analyzing journey to work data illustrates the interconnectedness of the City’s economy with
communities throughout the Oshkosh region and beyond. The U.S. Census, Center for
Economic Studies “On the map” data3 provides an analysis of workplace destinations at the
census block level. Tables 6-5 and 6-6 illustrate where City residents work and where those
who work in the City live. The top workplace destinations for City residents include the
City (33.2%), the City of Appleton (4.2%) and the City of Neenah (3.4%), as depicted in
Table 6-5. This corresponds to the average commute time of 17.1 minutes as reported in the
2010-2014 ACS 5-Year Estimates.
3 http://onthemap.ces.census.gov/ .
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15.0%
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25.0%
30.0%
<5 5 to
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10 to
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15 to
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20 to
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25 to
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30 to
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35 to
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45 to
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60 to
89
90 <
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City of Oshkosh Winnebago County Wisconsin
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-8 East Central Wisconsin Regional Planning Commission
Table 6-5: Top 10 Places of Employment for City of
Oshkosh Residents, 2014
Rank MCD
No.
Workers Percent
1 City of Oshkosh 12,415 33.2%
2 City of Appleton 1,566 4.2%
3 City of Neenah 1,256 3.4%
4 City of Fond du Lac 1,078 2.9%
5 City of Omro 602 1.6%
6 City of Menasha 540 1.4%
7 City of Milwaukee 389 1.0%
8 City of Berlin 298 0.8%
9 City of Green Bay 296 0.8%
10 City of Madison 294 0.8%
Other 18,680 49.9%
Total 37,414 100.0%
Source: http://onthemap.ces.census.gov/
The top places of residence for persons working in the City include the City of Oshkosh
(45.0%), City of Neenah (5.4%) and the City of Fond du Lac (4.5%) (Table 6-6).
Table 6-6: Top 10 Places of Residence for City of
Oshkosh Employees, 2014
Rank MCD
No.
Workers Percent
1 City of Oshkosh 12,415 45.0%
2 City of Neenah 1,479 5.4%
3 City of Fond du Lac 1,235 4.5%
4 City of Appleton 1,232 4.5%
5 City of Milwaukee 566 2.1%
6 City of Madison 520 1.9%
7 City of Green Bay 450 1.6%
8 City of Menasha 350 1.3%
9 City of Ripon 350 1.3%
10 Village of Ashwaubenon 273 1.0%
Other 8,729 31.6%
Total 27,599 100.0%
Source: http://onthemap.ces.census.gov/
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-9
Economic Base Analysis
Employment
The composition and types of employment provide a snapshot of the City and area’s economic
base. The top three occupations for City residents were Management, Business,
Science, and Arts Occupations (26.4%); Sales and Office Occupations (25.7%); and
Service Occupations (22.7%)4. Almost a third of county (28.1%) and state (33.9%) workers
were employed in Management, Business, Science, and Arts occupations; as a result this
garnered the largest share of workers at these levels as well.
The top two sectors for the City of Oshkosh, was the Manufacturing sector5 and
Educational, health and social services which employed over 40% of workers. The
Manufacturing sector employed about a fifth (21.6%) of City of Oshkosh, Winnebago County
(24.6%) and state (18.2%) employees according to the 2010-2014 ACS 5-Year Estimates.
Another fifth was employed in the educational, health and social services sector (City of
Oshkosh – 21.3%, Winnebago County – 20.0%, Wisconsin – 23.2%).
Local Employers
Table 6-7 lists the top employers with facilities located in the City. The top employers in the City
cover a wide range of industries.
4 U.S. Census 2010-2014 ACS 5-Year Estimates, DP03. 5 U.S. Census 2010-2014 ACS 5-Year Estimates, DP03.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-10 East Central Wisconsin Regional Planning Commission
Table 6-7: Top Public and Private Employers in Winnebago County
Employer Name Industry Employees
Oshkosh Corporation Specialized trucks 2,800
Bemis (all Oshkosh Locations) Packaging tape/plastic film 2,300
University of Wisconsin Oshkosh Education 1,327
Oshkosh Area School District Education 1,290
US Bank (all Oshkosh locations) Financial institution 1,144
Winnebago County Government 1,018
Aurora Medical Center & Aurora Medical Group Health care 870
4imprint Advertising specialties 729
Winnebago Mental Health Institute Health care 702
Affinity - Mercy Medical Center Health care 688
Silver Star Brands Mail order distribution 650
City of Oshkosh Government 569
Clarity Care Health care 569
Oshkosh Correctional Institution Corrections 502
Hoffmaster Group Paper specialties 444
Wal-Mart Super Center Department stores 318
Lutheran Homes of Oshkosh Assisted living 279
Muza Metal Products Metal fabrication 265
Lapham-Hickey Steel Steel products 256
CESA 6 Education 200
Oshkosh Community YMCA Human service organization 200
UPS Transportation 200
Source: Oshkosh Chamber of Commerce, data accessed 7/19/18
Employment Forecast
Employment forecasts for Oshkosh County were developed utilizing Economic Modeling
Specialists International’s (EMSI) Analyst program. The projections indicate that the largest
industry in 2026 will continue to be Manufacturing, which is expected to grow by two
percent between 2016 and 2026 (Table 6-8). The largest industry growth areas will occur
within the Professional, Scientific, and Technical Services (23%), Construction (22%) and
Accommodation and Food Services (17%). Industries expected to see decreases include
Information (-26%), Crop and Animal Production (-8%) and Wholesale Trade (-3%).
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-11
Table 6-8: Oshkosh County Industry Employment Projections, 2014-2024
NAICS Description 2016
Jobs
2026
Jobs
2016 -
2026
Change
2016 -
2026 %
Change
2015
Total
Earnings
11 Crop and Animal
Production 432 398 (34) (8%) $32,818
21 Mining, Quarrying, and Oil
and Gas Extraction 0 0 0 0% $0
22 Utilities <10 <10 Insf.
Data Insf. Data Insf. Data
23 Construction 2,139 2,600 461 22% $65,681
31 Manufacturing 11,590 11,790 200 2% $80,750
42 Wholesale Trade 1,240 1,201 (39) (3%) $58,130
44 Retail Trade 5,919 6,444 525 9% $29,154
48 Transportation and
Warehousing 1,187 1,281 94 8% $50,960
51 Information 246 182 (64) (26%) $77,521
52 Finance and Insurance 1,420 1,398 (22) (2%) $60,909
53 Real Estate and Rental
and Leasing 512 542 30 6% $32,865
54 Professional, Scientific,
and Technical Services 1,728 2,124 396 23% $61,504
55
Management of
Companies and
Enterprises
737 755 18 2% $125,748
56
Administrative and Support
and Waste Management
and Remediation Services
1,404 1,462 58 4% $39,742
61 Educational Services 379 407 28 7% $17,455
62 Health Care and Social
Assistance 4,784 5,490 706 15% $53,919
71 Arts, Entertainment, and
Recreation 318 325 7 2% $16,884
72 Accommodation and Food
Services 3,913 4,597 684 17% $14,918
81 Other Services (except
Public Administration) 2,618 2,781 163 6% $22,046
90 Government 5,980 6,005 25 0% $66,319
99 Unclassified Industry 0 0 0 0% $0
Total 46,552 49,784 3,232 7% $54,536
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-12 East Central Wisconsin Regional Planning Commission
Industrial and Business Park Information
Four industrial parks, one business park and an aviation business park exist within the
City of Oshkosh.
Table 6-9: Industrial/Business Parks
Park Acres
Aviation Industrial Park 290
North Industrial Park 220
Northwest Industrial
Park 230
Southwest Industrial
Park 1050
Universal Business Park 61.19
Aviation Business Park 80
Total 1931.19
Source: City of Oshkosh GIS analysis
Economic Development Strategy and Assessment
A variety of factors influence the economic climate of the City of Oshkosh, learning what the
City’s strengths and weaknesses are will help the City build upon its assets and develop
strategies to overcome its challenges.
Strengths and Weaknesses
By developing a set of strengths and weaknesses, the City is better prepared to develop an
economic development strategy. These strengths and weaknesses are listed below.
STRENGTHS
Location
The City is well situated in the Fox River Valley and in the state. Milwaukee, Madison,
and Green Bay are each within 90 miles of the City and are connected by major state
and federal highways.
Assets
The City prides itself on its high quality work force, the availability of housing, being a
regional center for educational and medical facilities, and the availability of support
networks for business such as utilities, roads and highways, and land available for
development.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-13
Community
As vital as these characteristics are for the business climate, community strengths for
the employees and their families include year-round recreational activities, historic and
cultural features, a low crime rate, and a full range of educational options.
Business
Business-related strengths also include the availability of developable land in the four
industrial parks and one business park, a lower tax rate as compared to other
communities in the region, the ability to provide technical support through local
organizations and educational programs, and the ability to provide financial support
through various grant and loan programs.
Region
Oshkosh is part of a larger regional market and even though a certain business or
certain department store does not locate within the municipal boundaries of Oshkosh,
these new businesses and stores are still good for the citizens of Oshkosh, as they
provide new opportunities for jobs and new opportunities for shopping to the citizens of
Oshkosh.
WEAKNESSES
Manufacturing Perception
As a weakness, Oshkosh is still perceived as a predominantly manufacturing
community, when as Table 6-1 on page 106, shows a more a balanced distribution
between the “Manufacturing” Sector and the “Educational and Social Services” Sector,
with each having approximately 22 percent of the industry in the City. The predominant
manufacturing trend is diversifying to other sectors and given the trend from 1990 to
2000 the distribution of industry will continue to disperse among the sectors.
Taxes and Regulation
Also a weakness for attracting business and industry into the community is the influence
of taxes and regulations. The tax climate at the local level is considered to be strength,
but on the state level, the State of Wisconsin is very high when comparing tax rates and
levels of personal income of states across the nation. Regulations and policies at the
local, state, and national level are often written to protect resources such as water, air,
and people; but as they are written they should avoid prohibiting the improvement and
expansion of business and industry.
Accessibility
Another misperception that could be a weakness is accessibility. Traveling between the
north side and the south side of the City is dependent upon five bridges crossing the
lake and river system. Traveling from the south side to the west side is dependent upon
five intersections with Highway 41. These bridges should be accessible by all modes of
transportation, including automobiles, commercial truck traffic, pedestrians and bicycles
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-14 East Central Wisconsin Regional Planning Commission
to continue to address the perception that the City is not accessible or that traffic flow is
not an efficient movement throughout the City.
Economic Development Focus
While the City welcomes certain types of business and industrial development, it acknowledges
that not all types of business and industrial development are compatible with its future vision.
The goals, strategies and recommendations for economic development are provided in Chapter
2, “Plan Framework”. The Economic Development Framework Plan presents the economic
development focus for the City of Oshkosh.
Future Sites for Business and Industry
Locations for future business and industrial development are shown on Exhibit 2-1, “Year 2040
Land Use Framework”.
Brownfield Redevelopment. Brownfields are sites where development or redevelopment is
complicated by real or perceived hazardous substances, pollutants, or contamination. Knowing
the location of brownfields and the extent of pollution greatly improves the likelihood that these
sites will be redeveloped. The Wisconsin Department of Natural Resources Remediation and
Redevelopment (RR) Program oversees the investigation and cleanup of environmental
contamination and the redevelopment of contaminated properties. The RR Sites Map includes,
but is not limited to the following environmental data:
Completed and ongoing investigations and cleanups of contaminated soil and/or
groundwater;
Public registry of sites with residual soil or groundwater contamination, or where
continuing obligations have been put in place;
Cleanup of sites under the federal Superfund (CERCLA) statute;
Liability exemptions and clarifications at contaminated properties (i.e. brownfields); and
DNR funding assistance.
The status of cleanup actions for sites in the RR Sites Map is tracked via the Bureau of
Remediation and Redevelopment Tracking System (BRRTS).
The Wisconsin Department of Natural Resources Bureau for Remediation and
Redevelopment maintains a listing of brownfields and contaminated sites. This website
lists 30 open entries for the City of Oshkosh. They are classified in the following three
categories: Leaking Underground Storage Tank (LUST) and Environmental Repair (ERP). The
City’s entries and corresponding categories are described in further detail below:
There were six Leaking Underground Storage Tanks (LUST) indicated for the City
of Oshkosh. The WDNR defines LUST sites as having “contaminated soil and/or
groundwater with petroleum, which includes toxic and cancer causing substances.”
There were 20 Environmental Repair sites (ERP) indicated for the City of Oshkosh.
The WDNR defines ERPs as “sites other than LUSTs that have contaminated soil and/or
groundwater. Examples include industrial spills (or dumping) that need long term
investigation, buried containers of hazardous substances, and closed landfills that have
cause contamination.”
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-15
There were four Liability Exemption (VPLE) indicated for the City of Oshkosh. The
WDNR defines VPLEs as an elective process in which a property owner conducts an
environmental investigation and cleanup of an entire property and then receives limits on
future liability for that contamination under s. 292.15, Wisconsin Statutes. An individual,
business or unit of government can receive the liability exemption after a completed
cleanup is approved.
The City could complete and maintain an inventory of existing vacant buildings and land
identified as “Brownfields”. This information could be used to encourage infill development and
redevelopment opportunities that take advantage of existing infrastructure and services and
removes blight created by vacant and dilapidated buildings and parcels. Once identified, the
City could utilize state and federal programs to further study, clean, and redevelop these
Brownfields.
POLICIES AND PROGRAMS
Policies and programs related to the Economic Development element can be found in Appendix
D.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
Type Reference Content
Goal ED1
Leverage the collective assets of the broader region for
increased economic prosperity within the City of Oshkosh.
Objective ED1.1
Coordinate the economic planning efforts of Oshkosh with other
community organizations in Oshkosh as well as other Fox Valley
communities.
Action ED1.1.1
Support and engage in regional economic development efforts
being conducted by organizations such as: Greater Oshkosh
Economic Development Corporation (GOEDC), Oshkosh Area
Chamber of Commerce, Fox Valley Workforce Development Board,
UW-Oshkosh, and the Fox Valley Technical College, NE Wis.
Chambers Coalition (NEWCC), NE Wis Regional Economic
Partnership (NEWREP), East Central Wisconsin Regional Planning
Commission (ECWRPC) and the New North.
Action ED1.1.2
Actively engage in East Central Wisconsin Regional Planning
Commission’s (ECWRPC’s) Comprehensive Economic
Development Strategy (CEDS) process and seek EDA grant funding
for projects as applicable.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-16 East Central Wisconsin Regional Planning Commission
Action ED1.1.3
Actively support the I-41 Corridor Partners effort which seeks to
collaboratively market the corridor to site selectors and other
business interests.
Action ED1.1.4
Actively engage in ECWRPC’s “Initiative 41” project funded by the
Department of Defense-Office of Economic Adjustment.
Action ED1.1.5
Meet annually with Appleton, Neenah, Menasha, Fond du Lac and
Green Bay to discuss best practices and common issues.
Action ED 1.1.6
Partner with community organizations to provide economic
development training opportunities to elected officials each year.
Type Reference Content
Goal ED2
Promote and support diversification of the industrial and
manufacturing employment base in order to have a more
resilient local and regional economy.
Objective ED2.1
Promote economic development that increases the types of jobs
available in all sectors.
Action ED2.1.1
Engage with appropriate partners to support expansion of focused
industry clusters which have high growth potential based on the
Oshkosh region's assets, such as:
· Aerospace & Aviation
· Information Technology
· Healthcare/Medical
· Advanced Manufacturing
Action ED2.1.2
Work with partners to continually assess the City's/region's
employment base including an analysis of private sector benefits
and commuting patterns.
Action ED2.1.3
Promote use of the Wisconsin Supply Chain Marketplace to existing
and future manufacturing firms within the City.
Action ED2.1.4
Coordinate with existing area employers on any future expansion
needs.
Action ED2.1.5
Understand linkages between affordable housing and business
development and work collaboratively to support strategic solutions.
Type Reference Content
Goal ED3
Retain and attract a strong core of stable employers within the
City of Oshkosh.
Objective ED3.1
Provide ongoing support to existing businesses in order to retain
them and assist in their expansion needs.
Action ED3.1.1
Continue business recruitment and retention programs for business
and industry in the Oshkosh area.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-17
Action ED3.1.2 Promote and encourage utilization of existing City (and partner)
programs which can enhance and/or stabilize existing businesses
such as:
· City’s Revolving Loan Fund
· Tax Increment Financing
· PACE Program (Wisconsin Counties Assn.)
· Oshkosh Chamber of Commerce
· Greater Oshkosh Economic Development Corporation
· New North (Global Trade Program)
· UW -Oshkosh Small Business Development Center
(SBDC)
· Fox Valley Technical College
· Fox Valley Workforce Development Board
· Wisconsin Manufacturing Extension Partnership (WMEP)
· Wisconsin Economic Development Corporation (WEDC)
· Winnebago Literacy Council
Action ED3.1.3
Review potential for expanding existing Business Improvement
District (BID) or creating new ones.
Action ED3.1.4
Continue to review the effectiveness of the Revolving Loan Fund
program to ensure the program meets the needs of businesses.
Action ED3.1.5
Promote the use of sustainable practices by existing and new
businesses (LEED buildings, stormwater practices, green roofs,
alternative energy, etc.).
Action ED3.1.6 Identify areas for new executive and workforce housing in the City.
Action ED3.1.7
Market and use the Greater Oshkosh Capital Catalyst Fund to
promote economic growth activity that contributes positive economic
impact for Oshkosh.
Action ED3.1.8
Continue to review the City’s policies and regulations to identify any
which may put the community at a disadvantage for attracting and
retaining businesses.
Action ED 3.1.9
Continue to research alternative incentive options used elsewhere
for businesses within the City.
Action ED 3.1.10
Market city-owned land in the industrial and business parks and the
redevelopment sites.
Action ED 3.1.11
Maintain a website with information for developers including
incentives, permitting, the approval process, available properties,
and other beneficial information for the private development
community.
Action ED 3.1.12
Continue to identify solutions to streamline the planning and
permitting approval process for developers.
Action ED 3.1.13
Continue the City’s Account Management Strategy to meet with
businesses in the City and assist them.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-18 East Central Wisconsin Regional Planning Commission
Action ED 3.1.14
Continue to update municipal-related data for a prompt response
during business attraction or retention efforts.
Type Reference Content
Goal ED4
Support the growth of entrepreneurship activities and new
companies within the City of Oshkosh.
Objective ED4.1
Support programs and services that increase entrepreneurial
success.
Action ED4.1.1
Support the creation of unique and flexible business workspace,
training facilities and social networking spaces (Maker Spaces, Co-
Working Spaces, Business Incubator/Accelerator Facilities, etc.)
within the City.
Action ED4.1.2
Support UW -Oshkosh entrepreneurship programs offered through
the Small Business Development Center (SBDC) (AeroInnovate,
InventureXcel, Growth Management Program, etc.).
Action ED4.1.3
Promote the use of the Winnebago County Seed Fund, Angels on
the Water, and other seed capital program.
Action ED4.1.4
Target market to specific entrepreneurial groups and industries
touting the benefits of starting/growing their business in the City of
Oshkosh.
Action ED 4.1.5 Assist with grant applications for entrepreneurs when applicable.
Type Reference Content
Goal ED5
Promote Oshkosh as a regional economic center within the
larger Fox Valley / I-41 Corridor market.
Objective ED5.1
Create a positive image/identity for the City, in the context of the
Fox Valley Region / I-41 Corridor, in order to attract high-quality
talent and high paying jobs.
Action ED5.1.1
Work with partners as appropriate to promote the City and its
statewide and national image.
Action ED5.1.2
Actively promote the City/County Aviation Business Park and other
available lands.
Action ED5.1.3
Promote and utilize the Foreign Trade Zone designated areas of the
City to generate new employment and business growth.
Action ED5.1.4
Promote available child care facilities as an amenity for businesses
and employees and seek to ensure its availability for additional
shifts.
Action ED5.1.5
Maintain services for and address needs for local urgent care within
core areas of the City.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-19
Action ED5.1.6
Incorporate recommendations of the University of Wisconsin-
Oshkosh Campus Master Plan and promote its merits in order to
attract and retain talented workers.
Type Reference Content
Goal ED6
Develop physical facilities within designated Economic Activity
Zones and other parts of Oshkosh which support economic
development linking Oshkosh to the regional and global
network.
Objective ED6.1
Develop tools to assess and evaluate facilities in concentrated
economic zones.
Action ED6.1.1
Work with agencies to ensure adequate facilities are in place near
the industrial and business parks to allow sufficient access to the
regional transportation system.
Action ED6.1.2
Promote new development near/along public transit centers and
routes.
Action ED6.1.3
Support the Oshkosh Transload Terminal and continue to work with
the railroad operator and businesses to identify growth opportunities
to enhance intermodal transportation in the City and region.
Type Reference Content
Goal ED7
Promote destination tourism for individuals, or group activities
such as conferences, recreational activities, and special
events.
Objective ED7.1
Work closely with the Oshkosh Convention & Visitors Bureau to
ensure a city-wide strategy exists to draw special events to the City.
Action ED7.1.1
Develop and implement plans to create an entertainment and
tourism oriented district around the Menominee Nation Arena and
waterfront.
Action ED7.1.2
Promote the Oshkosh waterfront, Fox River and accessibility to the
Winnebago Pool Lakes system.
Action ED7.1.3
Promote the state and regional trail system and seek to improve its
connectivity with local destinations.
Type Reference Content
Goal ED8
Support programs designed to enhance and develop workforce
skills and attract workers to the City.
Objective ED8.1
Support educational and training programs that increase workforce
skills and productivity, including literacy.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
6-20 East Central Wisconsin Regional Planning Commission
Action ED8.1.1
Support the efforts of the Oshkosh School District and private
schools to develop and integrate hands-on learning and training for
advanced manufacturing career paths.
Action ED8.1.2 Support the promotion of internships with local businesses.
Action ED8.1.3
Support the exploration of skills and opportunities for workforce
integration of new refugees, including literacy.
Action ED8.1.4 Support and build upon strengths of UW -Oshkosh programs.
Action ED8.1.5
Support the coordinated efforts of the Fox Valley Technical College
and Fox Valley Workforce Development Board to provide retraining
opportunities for underemployed persons.
Action 8.1.6
Identify programs or opportunities to increase housing options in the
City.
Action ED 8.1.7
Support efforts to attract workers to the City which includes
improving public infrastructure, strengthening neighborhoods, and
improving the overall quality of life.
Type Reference Content
Goal ED9
Increase the economic and social opportunities within the
downtown, central city and waterfront areas.
Objective ED9.1
Develop tools and support programs that foster the redevelopment
and revitalization of older residential and employment areas
within/near the central city.
Objective ED9.2
Develop programs and incentives that decrease consumption of
new land and new materials and reutilizes existing buildings to the
extent practicable.
Action ED9.1.1
Implement the recommendations of the “Imagine Oshkosh" Central
City Investment Strategy.
Action ED9.1.2
Utilize TIF and other tools to incentivize companies and landowners
as appropriate to voluntarily relocate from older outdated facilities
near the central city, to newer industrial sites in the industrial parks
so as to free up key properties for redevelopment.
Action ED9.1.3
Target and prioritize downtown and suitable near-downtown areas
for new office and service industry development. Work with private
and public sector entities to provide one or more sites for planned
business parks oriented toward corporate facilities and other office-
type industries.
Action ED9.1.4
Ensure that available properties and buildings are actively and
aggressively marketed.
Action ED9.1.5
Pursue incentives and grants to redevelop underutilized or
environmentally contaminated sites, both publicly and privately
owned.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 6: Economic Development
East Central Wisconsin Regional Planning Commission 6-21
Action ED9.1.6
Continue to utilize Tax Increment Financing as appropriate for
revitalization projects.
Action ED9.1.7 Support the concept of mixed-use development as appropriate
Action ED9.2.1
Apply for funding from various programs through the WEDC,
WDNR, EPA, and EDA as needed.
Action ED9.2.2
The City should actively pursue acquisition of potential
redevelopment properties as applicable.
Action ED 9.2.3
Work with other City Departments and community organizations to
implement recommendations in corridor plans to improve corridors
to the central city.
Type Reference Content
Goal ED10
Strengthen and improve major gateways into the City as well
as other commercial and retail corridors within the City.
Objective ED10.1
Explore opportunities for improving direct routes into and through
the City.
Action ED10.1.1
Enhance and formally identify current and future Gateway
Commercial Districts and develop detailed corridor plans, studies
and standards as needed. These plans should consider their direct
connections to the downtown, both physically and economically.
Action ED10.1.2
Increase waterfront corridor connectivity and appropriate business
opportunities and amenities.
Action ED10.1.3
Coordinate with utility providers and property owners to place
overhead lines underground during street reconstruction projects
within key corridor segments. Examine additional cost-reduction
strategies for achieving this.
Action ED10.1.4
Coordinate with Winnebago County, WisDOT and others to examine
and propose implementation of a billboard reduction program for the
City, including highway corridors leading into the City.
Type Reference Content
Goal ED11 Maintain and improve the quality of the City’s neighborhoods
Objective ED11.1
Develop tools and programs that increase viability of
neighborhoods, including residences and business owners.
Action ED11.1.1
Continue to lead and support the ONE Oshkosh and Greater
Oshkosh Healthy Neighborhoods (GO-HNI) programs as effective
‘bottom-up’ approaches to revitalization.
Action ED11.1.2
Continue to participate in Goodwill NCW’s “Neighborhood Partners
Network” and "Gappers Network".
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Action ED11.2
Work with Neighborhood Associations to preserve and promote
neighborhood business districts.
Action ED11.2.1
Proactively work with neighborhoods to address stormwater needs
and identify properties which may be impacted.
Action ED11.2.2
Pursue incentives for façade improvements and streetscape
improvements, including the installation of building signs/plaques.
Action ED11.2.3
Develop programs to assist neighborhood businesses to remain
viable in neighborhood business districts.
Action ED11.2.4
Partner with Habitat for Humanity and GO-HNI to identify
neighborhoods that would benefit from the “Rock the Block”
program.
Type Reference Content
Goal ED12
Celebrate the overall high quality of life and sense of place that
the City of Oshkosh and surrounding region have to offer.
Objective ED12.1
Promote the diversity of recreation and lifestyle opportunities that
Oshkosh has to offer.
Action ED12.1.1
Promote and leverage regional assets related to sports, sports
history, and outdoor recreation activities such as boating, fishing,
biking and hiking.
Action ED12.1.2
Actively engage with, integrate and promote the Fox-Wisconsin
Heritage Parkway as Oshkosh occupies a unique market/geography
for the boating community and land-based river development
opportunities.
Action ED12.1.3
Pursue funding sources for implementation of cultural tourism
programming which includes history, heritage and the arts.
Action ED12.1.4
Collaborate with the Oshkosh Area Community Foundation to
implement and update the 2011 LIFE Study Regional Report.
Action ED12.1.5 Continue to develop the Riverwalk along the waterfront.
Action ED 12.1.6
Work with community partners and businesses on a quality of life
campaign to attract and retain workers to the City.
Type Reference Content
Goal ED13 Continue to improve the City’s overall aesthetic quality.
Objective ED13.1 Utilize tools and programs that enhance the City’s attractiveness.
Action ED13.1.1
Strengthen historic preservation efforts and promote the state tax
credit programs to encourage revitalization of old buildings.
Action ED13.1.2
Enforce design guidelines for the Main Street Historic District, the
downtown and riverfront overlay districts.
Action ED13.1.3 Increase identity for the City with corridor gateway signage.
Action ED13.1.4 Emphasize aesthetic components of any gateway corridor planning
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efforts.
Action ED13.1.5
Research and implement the concept of “Placemaking” into public
and private development projects throughout the City.
Action ED13.1.6
Continue to develop façade grant and loan programs to improve the
exterior facades of businesses and homes.
CHAPTER 7
UTILITIES AND COMMUNITY FACILITIES
CHAPTER 7: UTILITIES AND COMMUNITY FACILITIES
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 7-1
Goals…………………………………………………………………………………………………… . 7-1
Key Summary Points………………………………………………………………………………….. 7-1
Inventory and Analysis………………………………………………………………………………… 7-3
Wastewater Collection and Treatment………………………………………………………………. 7-4
Stormwater Management…………………………………………………………….……………….. 7-5
Water Supply……………………………………………………………………................................ 7-6
Solid Waste and Recycling………………………………………………………………………….... 7-7
Energy Supply and Transmission……………………………………………………………………. 7-7
Telecommunication Facilities………………………………………………………….................... . 7-8
Parks and Recreation Facilities………………………………………………................................. 7-8
Cemeteries……………………………………………………………............................................. 7-11
Healthcare Facilities……………………………………………………………............................... 7-12
Childcare Facilities……………………………………………………………................................. 7-12
Public Safety and Emergency Services……………………………………................................ .. 7-13
Library……………………………………………………………................................................... .. 7-16
Schools…………………………………………………………….................................................. . 7-17
Other Municipal Buildings………………………………………………......................................... 7-19
Policies and Programs…………………………………………………………………………......... . 7-19
Objectives and Actions………………………………………………………………………………. . 7-19
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CHAPTER 7: UTILITIES AND COMMUNITY FACILITIES
INTRODUCTION
One responsibility of a community is to maintain a certain level of community services. To
achieve it, the City must continuously maintain, upgrade, and expand existing facilities in a cost
effective manner based on future growth projections and the desires of the community.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal UCF1
Expand and maintain utility and community facilities and
services provided by both public and private entities that
support economic and residential development.
Goal UCF2
Design facilities and services for an adequate level of service,
based on standards for population and demand for those
facilities and services.
Goal UCF3
Promote neighborhoods designed to include pedestrian- and
bicycle friendly facilities and public gathering places.
Goal UCF4
Promote growth and redevelopment of property included
within the service areas of the existing infrastructure and
service system.
Goal UCF5 Utilize environmentally sensitive methods and systems.
Goal UCF6
Ensure ongoing communication regarding Utilities and
Community Facilities issues and activities.
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Wastewater Collection and Treatment
a) The City is part of the Oshkosh Sewer Service Area.
b) The existing sewage collection system consists of 263 miles of sanitary sewer with a
total of 17 liftstations.
c) Private on-site wastewater treatment systems, or POWTs, serve areas (not identified
above) within 3.0 miles of the City in the unincorporated areas.
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Stormwater Management
a) The City maintains a stormwater system and inventory map.
b) The City has developed a stormwater management plan and created a Stormwater
Utility to fund the structural and operational best management practices (BMPs) required
to comply with the City’s MS4 permit and TMDL limits.
c) There are currently no drainage districts within a 3-mile radius of the City.
Water Supply
a) The City has a municipal water system that relies on surface water as the source of its
water supply.
b) The City’s raw water (untreated) and finished water pumping capacity is rated at 16
million gallons per day (MGD) with an average daily pumping rate of 6.5 MGD.1
c) The City has four elevated storage tanks to develop pressure for water distribution.
d) According to the City, the water system is operating less than 50 percent of its capacity.
e) Private wells serve properties in the Extraterritorial Boundary 3-mile radius of the City.
Solid Waste and Recycling
a) The City collects residential solid waste and recyclable material on a weekly basis.
Energy Supply and Transmission
a) There are major electrical transmission lines traversing the City.
b) Wisconsin Public Service (WPS) provides power to the City.
c) One natural gas transmission line is located in the City or within the City’s extraterritorial
area.
Telecommunication Facilities
a) There are 24 registered towers/antennas in the City.
Parks and Recreation Facilities
a) The City maintains a park system and the Oshkosh School District provides recreation
programs.
b) 415.34 acres of parks is currently available.
c) The City has a deficit of local community recreational space for its population base with
a current deficiency of 245.66 acres.
d) There is one Winnebago County park and recreational facility in the City.
Cemeteries
a) The City operates one cemetery in the City.
1 Oshkosh Water Utility webpage, accessed 9/15/16.
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Healthcare Facilities
a) Oshkosh has two major medical centers; Mercy Medical Center and Aurora Health
Center.
b) Currently, there are five licensed nursing homes within the City with 546 beds.
Childcare Facilities
a) A total of 51 licensed camp, family and group childcare facilities are located within the
City. These facilities have a combined capacity of 2,571 children.
Public Safety and Emergency Services
a) The Oshkosh Police Department is located at 420 Jackson Street and is a full service
department that operates 7 days a week, 24 hours a day.
b) The Winnebago County Sheriff’s Department is located at 4311 Jackson Street in
Oshkosh. In 2015 the department employed 133 fulltime officers.
c) The City does not have an adequate facility to detain prisoners for long periods of time;
therefore it depends on the Winnebago County Sheriff’s Department and jail for support.
d) The Oshkosh Fire Department provides fire and emergency services for the City.
e) The Oshkosh Fire Department has a PPC classification of 2.
f) Oshkosh Emergency Medical Services responds to all emergency and non-emergency
medical calls within the city limits and to the City of Omro, Village of Winneconne, and
Towns of Winneconne, Nekimi, Van Dyne, Black Wolf, Algoma, Poygan, Omro and
Rushford.
Library
a) The City’s Public Library is located at 106 Washington Avenue and is part of the
Winnefox Library System.
Schools
a) The Oshkosh Area School District (OASD) provides education to the City.
b) Nine private schools serve residents of the Oshkosh.
c) The City is home to the University of Wisconsin Oshkosh.
d) The City is a part of the Fox Valley Technical College district.
INVENTORY AND ANALYSIS
The following section provides an inventory of utilities and community facilities that serve the
City. The analysis of facilities is based on generalizations and predictions and is no substitute
for detailed engineering or architectural studies, which should be completed before municipal
funds are expended on specific projects. The size of community facilities along with the cost of
providing services is directly related to land use, development patterns, and the existing and
future densities of development.
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WASTEWATER COLLECTION AND TREATMENT
Provision of sanitary sewer plays a key role in many aspects of community development and
growth. Not only does it affect where development tends to occur, but also allows higher land
use densities than can be achieved by using private onsite wastewater treatment systems.
Public Wastewater Collection and Treatment
The City is part of the Oshkosh Sewer Service Area. The Oshkosh SSA Planning Area
covers approximately 60 square miles and is located on the west shore of Lake Winnebago at
the mouth of the Upper Fox River in eastern Winnebago. The following inventory was provided
by the Oshkosh 2030 Sewer Service Area, 2007 plan prepared by the East Central Wisconsin
Regional Planning Commission.
The original Oshkosh wastewater treatment plant was constructed in the late 1930s.
Construction of a new regional facility on the same site was completed in 1975. The treatment
plant presently serves the City, Town of Algoma Sanitary District No. 1, Black Wolf Sanitary
District No.1, Town of Oshkosh Sunset Point Sanitary District, Town of Oshkosh
Edgewood/Shangri-La Sanitary District and the Town of Oshkosh Island View Sanitary District.
The plant also serves the Winnebago Mental Health Institute and Winnebago County Parkview
Facilities which are all within the City.
The existing facility consistently meets permit limits for all parameters. Based upon a 2004
observation period the facility has removal efficiencies of 96.8 percent biochemical oxygen
demand (BOD), with an average monthly effluent of 5.75 mg/l. Total suspended solids (TSS)
effluent averaged 4.42 mg/l per month and Phosphorus effluents averaged .049 mg/l per month.
Periodic high clearwater flows into the plant do not appear to have a significant effect on
treatment performance. An industrial pretreatment program has been in existence since 1981.
The existing facility should be adequate through the year 2030.
The existing sewage collection system consists of 263 miles of sanitary sewer with a
total of 17 lift stations. Two interceptors serve the northern portion of the service area. A 36
inch interceptor enters the plant from the north and east, and a 60 inch interceptor serves area
north, northeast and northwest. A 42 inch interceptor sewer serves the southwest portion of the
service area. A 72 inch interceptor conveys wastewater from the east and southeast area.
These major interceptors should have design capacity for growth in the Oshkosh planning area
out to the year 2030.
The City sewerage system has had a history of infiltration and inflow and sewage bypassing
problems. These clearwater problems are especially significant during wet weather; however,
the treatment plant has been able to continually meet the WPDES permit requirements. The
City has undertaken an I&I removal program and has reconstructed a number of gravity mains
and interceptors.
The City maintains an extensive system of sewage lift stations and forcemains. A network of
large pump stations and long forcemains transport flows on the north side in a westerly direction
to the large northwest interceptor sewer. A new interceptor sewer, lift station and forcemain
have been placed in service to the northwest along STH 110 north of USH 41. A 24 inch gravity
sewer extends from the Winnebago Mental Health Institute and Winnebago County
governmental facilities into the Oshkosh system. This system also provides capacity to the
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Island View Sanitary District and additional development to the north along Lake Winnebago. In
addition, a number of smaller lift stations and pump station forcemains are located throughout
the City.
The Algoma Sanitary District sewer system connects with the City system at two points. One
15 inch connection point is located at the USH 41 crossing of Sawyer Creek. The other 18 inch
connection is located on Witzel Avenue approximately one-half mile west of USH 41. The
district operates four pump station forcemains.
The Black Wolf Sanitary District has eight sanitary lift stations. Sanitary sewer connects to the
City system on USH 45 and Old Orchard Lane.
The Sunset Point Sanitary District and the Edgewood/Shangri-La Sanitary District are
located on the north shore of Lake Butte des Morts, which are serviced through the Town of
Oshkosh.
The Island View sanitary District located on the west shore of Lake Winnebago began service
in 1997. The district operates three sanitary lift stations.
Private Wastewater Collection and Treatment
Private on-site wastewater treatment systems, or POWTs, serve areas (not identified
above) within 3.0 miles of the City in the unincorporated areas. Typically, individual
systems are designed for each household based on the site’s soil characteristics and
capabilities. However, in some cases (such as with conservation subdivisions) a community, or
‘cluster’ system, may be used which services more than one household.
Winnebago County maintains records for private, on-site sanitary permits in rural areas of the
county. Information that the county maintains includes where on-site systems are located, when
the permits were issued, and the type of system installed.
STORMWATER MANAGEMENT
The City maintains a stormwater system and inventory Map. Under Wisconsin
Administrative Code NR216, it is required to have an MS4 general permit. The permit requires
the City to perform the following activities: (1) Public Education & Outreach, (2) Public
Involvement & Participation, (3) Illicit Discharge Detection & Elimination, (4) Construction Site
Pollution Control, (5) Post Construction Management, (6) Pollution Prevention, and (7)
Stormwater Quality. The City also has to comply with the standards set by the Upper Fox/Wolf
TMDL (Total Maximum Daily Load).
The City has developed a stormwater management plan and created a Stormwater Utility
to fund the structural and operational best management practices (BMPs) required to
comply with the City’s MS4 permit and TMDL limits. The TMDLs establish the maximum
amount of total suspended solids (TSS) and total phosphorous (TP) that the City’s storm system
may release to the waterways.
Per Chapter 14 of Oshkosh Municipal code, properties in Oshkosh pay for the stormwater utility
through a base charge, equivalent runoff unit charge and a special charge if applicable. Non-
residential properties also are charged a stormwater utility charge. Residential and non-
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residential properties, based on City approval, are eligible to receive credits for developing on-
site storage facilities such as rain gardens, detention basins, etc.
The City experiences flooding in isolated areas during major storm events. Public Works is
inventorying and addressing these issues.
Drainage Districts
There are currently no drainage districts within a 3-mile radius of the City.
WATER SUPPLY
Although water may seem to be plentiful in Wisconsin, it is not an infinite resource. Providing
safe, clean, and reliable water can and has become a challenge for many communities
throughout the state. Residents of the City obtain drinking water from the Oshkosh Water Utility.
All residents rely on surface water as the source of drinking water.
Public Water Supply
The City has a municipal water system that relies on surface water as the source of its
water supply. Intake pipes draw water from Lake Winnebago which is supplied by a 5,700
square mile watershed.
Water systems consist of four main components; supply, treatment, storage and distribution.
Water supplies should be of adequate quantity to meet the most severe public demands and be
of good quality. Treatment of raw water is necessary to remove objectionable constituents such
as bacteria, suspended solids and high concentrations of dissolved solids. Treatment capacity
should be adequate to meet service requirements. Since water pumpage capacity is fixed, often
at a level below peak demand, storage capacity is needed to assure adequate flow. This is
particularly important during periods of high demand (fires) and as a short-term buffer during
equipment failure or processing problems.
The City’s raw water (untreated) and finished water pumping capacity is rated at 16
million gallons per day (MGD) with an average daily pumping rate of 6.5 MGD.2 The Water
Filtration Plant is located at 425 Lakeshore Drive (Map 7-1). The City has four elevated
storage tanks to develop pressure for water distribution (Map 7-1). According to the City,
the water system is operating less than 50 percent of its capacity. The water filtration plant
and distribution system meets all current US EPA and State of Wisconsin requirements. The city
monitors for a variety of containments and publishes an annual report summarizing water quality
which can be located on the city’s water utility website.
Private Water Supply
Private wells serve properties in the Extraterritorial Boundary 3-mile radius of the City.
Wells lying within the 3-mile extraterritorial area in the Towns of Algoma, Black Wolf, Nekimi,
2 Oshkosh Water Utility webpage, accessed 9/15/16.
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Omro, Oshkosh and Utica are located within the Arsenic “Special Well Casing Pipe Depth Area”
and therefore all new wells in these areas must follow more stringent regulations.
SOLID WASTE AND RECYCLING
The City collects residential3 solid waste and recyclable material on a weekly basis.
Commercial and industrial users contract separately with a private hauler. Currently municipal
solid waste and recyclables are hauled to a transfer facility located at the Winnebago County
landfill. Since Winnebago County is part of the Tri-County4 solid waste and recycling agreement
that was signed in 2001, waste from Winnebago County is currently being transferred to the
Outagamie Landfill on the north side of the Fox Cities.
The City is considered a “Responsible Unit” (RU). That means that the City is responsible for
implementing and enforcing municipal recycling programs to ensure that residents, businesses
and special event managers comply with state and local recycling requirements. In addition to
ensuring provision of recycling services to residents, the law delegates to RUs the responsibility
of ensuring that non-residential locations including businesses, institutions, special events and
construction sites recycle materials banned from landfills. The law does not require RUs to
provide these services themselves.
During April through December, the City collects brush and leaves curbside. From October
through November loose leaves are collected curbside. Christmas Trees are collected curbside
during two weeks in January. The City operates a Yard Waste Site on the north side of 3rd
Avenue between Idaho Street and Ohio Street. Mulch is available at the site on a self-service
basis.
ENERGY SUPPLY AND TRANSMISSION
Electricity
There are major electrical transmission lines traversing the City. These include 69kV, 138
kV and 345 kV transmission lines. Six substations are located in the city.
Wisconsin Public Service (WPS) provides power to the City. WPS is owned by WEC
Energy Group. It serves more than 450,000 electric customers and more than 326,000 natural
gas customers in northeast and central Wisconsin and an adjacent portion of Upper Michigan.
There are no power generating sites in the City with the exception of the Central Plant at the
University of Wisconsin-Oshkosh which provides steam and chilled water for campus needs.
Natural Gas
One natural gas transmission line is located in the City or within the City’s extraterritorial
area. Natural gas is distributed using the ANR Pipeline Company.
3 Residential include multi-family buildings with up to 4 units per building. 4 Includes the counties of Winnebago, Brown and Outagamie.
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TELECOMMUNICATION FACILITIES
Telephone
Residents in the City have a number of choices for local phone service according to the
Wisconsin Public Service Commission. Providers include Charter Fiberlink, MCI Metro Access
Transmission Services Corp., McLeod USA Telco Services, Metropolitan Telecommunications
of WI, Northern Telephone & Data Corp, Sage Telecom Communications, TDS Metrocom, US
Xchange of Wisconsin and Wisconsin Bell.
The advancement of telecommunications technologies, such as cell phones, has greatly
increased the need for towers to provide receiving and sending capabilities. The federal
government recognized this need with the passage of the Telecommunications Act of 1996.
There are 24 registered towers/antennas in the City5 (Map 7-2). All towers are registered
with the Federal Communications Commission (FCC).
Internet
Due to the proliferation of internet service providers (ISP), area residents can choose from
several national and local ISP’s. Broadband or high-speed internet is available in the City. Fixed
broadband includes all wireless and fixed wireless technologies.
PARKS AND RECREATION FACILITIES
The City maintains a park system and the Oshkosh School District provides recreation
programs. Residents in the City are proud of and value the City’s park system. However, it is
important to recognize the existence of other facilities in the public and private sector that help
meet the needs of the citizens of Oshkosh. This report looks at public, outdoor based park and
recreational facilities. Publicly owned facilities within the City are owned and maintained by both
the City and the Oshkosh Area School District.
Park Site Standards
Standards have been developed to help gauge how well various levels of government as well as
the private sector are doing in meeting their responsibility of providing outdoor recreational
facilities. These guidelines suggest that a total 10 acres of local community recreational lands
be available for each 1,000 residents in a community. The standard is just that, a useful
measuring tool to see how much land should be available for a resident for recreational use now
and in the future. Definitions and minimum standards based on the State of Wisconsin’s
Comprehensive Outdoor and Recreation Plan (SCORP 2011-2016) is below. However, the
SCORP minimum standards are merely guidelines. As an alternative, communities are starting
to determine Level of Service (LOS) needs from residents as every community has different
situations and demands that should be considered.
According to the 2015 U.S. Census, there are 66,083 residents within the City. Oshkosh
therefore needs to provide 661 acres of recreational space for its current residents. 415.34
5 The 24 towers are registered with the Federal Communications Commission. Towers that not registered are not
discussed in this chapter.
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acres of parks are currently available with Menominee Park constituting most of this acreage
at 103.39 acres6. Based on the 10 acre /1,000 capita standards, the City has a deficit of local
community recreational space for its population base with a current deficiency of 245.66
acres. Future population projections indicate Oshkosh’s 2040 population to be 73,800
residents7 which will necessitate 738 acres of local community recreational space. While
maintaining, developing, and improving the parks the City currently owns should be its number
one priority in accommodating its residents, a resident should also have the ability to walk and /
or bike to a park within a half mile radius of their house without any major road or intersection
barriers (see Land Needs below) and have adequate Levels of Service for recreational lands.
Park Classifications
The following classifications are derived from the 2011-2016 Wisconsin Statewide
Comprehensive Outdoor Recreation Plan– Appendix E, and the Park, Recreation, Open Space
and Greenways Guidelines – A project of the National Recreation and Parks Association and
the American Academy for Park and Recreation Administration. They have been modified to fit
local conditions8.
Mini-Park. A play lot or playground provides space for parental supervised recreation of
toddlers and young children within a neighborhood, or as part of a larger neighborhood
or community park and urban center, including retail shopping areas.
Congress Avenue Tot Lot
Garden Club Park
Middle Village Greenspace
Mount Vernon Tot Lot
Neighborhood Park. A Neighborhood Park is the basic unit in the park system. By size,
program and location, it provides space and recreations activities for the immediate
neighborhood in which it is located. The park serves a neighborhood within a ¼ to ½ mile
radius, uninterrupted by non-residential roads and other physical barriers. However the distance
from this neighborhood will vary depending on urban development patterns, zoning, and
densities in the respective neighborhoods being served. Since parks serve the local
neighborhood, efforts should be made to allow easy pedestrian access. Neighborhood parks
range in size from 1 to 20 acres. The following parks are classified as Neighborhood Parks:
44th Parallel Park Abbey Park
Abe Rochlin Park Bauman Park
Fugleberg Park Mary Jewel Park
Quarry Park Roe Park
Stevens Park Stoegbauer Park
Teichmiller Park West Algoma Park
Westhaven Circle Park
6 City of Oshkosh Comprehensive Outdoor Recreation Plan, 2018. 7 WDOA, Wisconsin Demographic Services Center, Vintage 2013 Population Projections. 8 City of Oshkosh Outdoor Recreation Plan 2015-2019.
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Community Park. Community Parks serve a broader purpose than neighborhood parks. The
focus for a community park is on meeting community-based recreation needs, as well as
preserving unique landscapes and open spaces. This type of park serves multiple
neighborhoods within a 2 to 3 mile radius, or when offering unique features, serves the entire
City. They are usually located adjacent to collector streets for easy vehicle access. Community
parks are usually 20 or more acres in size. The following parks are classified as Community
Parks:
Menominee Park Rainbow Park
Red Arrow Park South Park
Natural Resource Areas. Natural resource areas are lands set aside for preservation of
significant natural resources, remnant landscapes, open spaces and visual aesthetics. Service
areas vary, and these areas may serve both City residents and residents from nearby
communities. Natural Resource Areas vary in size. The following areas are classified as natural
areas:
Campbell Creek Marsh Glatz Nature Park
North High Conservancy Park Sawyer Creek Park
Special Use Parks. Special Use Parks cover a broad range of parks and recreation facilities
oriented toward a single-purpose use. The service area and size varies and is dependent on the
specific use. The park may serve both City residents and residents from other nearby
communities. The following parks are classified as Special Use Parks:
Camp Bragg Memorial Grand Opera House Square
Hikers Monument William G. Spanbauer Field
Leach Amphitheater
Additional Recreational Facilities
Boating Facilities
There are six boating launch sites within the City:
24th Avenue Fugleberg
Menominee Park Mill Street
Rainbow Park William Steiger park
School Parks
The Oshkosh Area School District own and maintain a number of park and recreation facilities.
It should be noted that these facilities may not be as accessible to residents as they may be
unavailable during the school day and special events.
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Table 7-2: Oshkosh Area School District Recreational Facilities
School Address Acres
Carl Traeger Elementary/Middle 3000 West 20th Avenue 43
Emmeline Cook Elementary 1600 Hazel Street 10
Franklin Key to Learning Center 1401 West 5th Street 10
Green Meadow Elementary 325 South Eagle Street 14.80
Jacob Shapiro Brain Based
Instruction Laboratory School
1050 West 18th Avenue 11.31
Jefferson Elementary 244 West 11th Avenue 2.25
Merrill Elementary/Middle 108 West New York Avenue 5.30
Oaklawn Elementary 112 Viola Street 3.60
Read Elementary 1120 Algoma Boulevard 3.60
Roosevelt Elementary 910 North Sawyer Street 3.14
Smith Elementary 1745 Oregon Street 2.16
Washington Elementary 929 Winnebago Avenue 2.80
Webster Stanley Elementary/Middle 915 Hazel Street 5.60
Perry Tipler Middle 325 South Eagle Street 6.29
South Park Middle 1551 Delaware Street 5.60
Lourdes High 110 North Sawyer Street 13.52
Oshkosh North High 1100 West Smith Avenue 41.65
Oshkosh West High 375 North Eagle Street 40
Jackson Athletic Field Jackson Street and West Nevada Avenue 5.62
Fox Valley Technical College 150 North Campbell Road 4.79
Waterfront Recreation
24th Avenue Boat Launch Al Broullire Memorial Garden
Bowen Fishing Dock Carl E. Steiger Park
Fugleberg Boat Launch Michigan Street Boat Launch
Riverside Park William A. Steiger Park
Winnebago County Park and Recreational Facilities
There is one Winnebago County park and recreational facility in the City. Community
Park’s 270 acre site is the in the northern portion of the City. It provides a variety of fields,
pavilions, playground equipment, three fishing lakes and a dog park.
CEMETERIES
One city-operated cemetery is located in the City. Riverside cemetery is located on Algoma
Boulevard overlooking the Fox River. It has been owned and maintained by the City since 1855
and is the second oldest municipal cemetery in the United States. It is located on Oakridge
Road and I-41. (Map 7-3). There are additional cemeteries in the City that are not operated by
the City.
City of Oshkosh Comprehensive Plan Update 2040
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7-12 East Central Wisconsin Regional Planning Commission
HEALTHCARE FACILITIES
Hospitals and Clinics
Oshkosh has two major medical centers; Mercy Medical Center and Aurora Health
Center. In addition, there are six general medical hospitals within about 30 miles.9 The seven
General Medical-Surgical hospitals are ThedaCare Regional Medical Center (Neenah) St.
Elizabeth Hospital (Appleton), ThedaCare Regional Medical Center - Appleton (Appleton),
ThedaCare Medical Center – New London (New London), Berlin Memorial Hospital (Berlin) and
Agnesium HealthCare / St. Agnes Hospital (Fond du Lac). The hospitals provide varying levels
of service, depending on their location and function.
Nursing Homes
Currently, there are five licensed nursing home within the City with 546 beds.10 They
include:
Bethel Home, 225 N Eagle Street Eden Rehabilitation Suites and Green
House Homes, 3151 Eden Court
Evergreen Health Center, 1130 N
Westfield Street
Northpoint Medical and Rehabilitation
Center, 1850 Bowen Street
Park View Health Center, 725 Butler
Ave
CHILDCARE FACILITIES
With the increased prevalence of dual-income households, the importance of reliable and
affordable childcare plays a critical role in maintaining the present economy. Under Wisconsin
law, no person may provide care and supervision for 4 or more children under the age of 7 (not
related) for less than 24 hours a day, unless that person obtains a license to operate a childcare
center from the Wisconsin Department of Children and Families. The Department of Children
and Families manages the child care licensing program. The program is accountable for the
statewide licensure of Wisconsin's child care facilities. There are three different categories for
state license child care: Licensed Day Camps (seasonal programs usually outdoors), Licensed
Family Care (up to 8 children usually in a person home) and Licensed Group Centers (9 or more
children, located somewhere other than a residence). Certified Child Care is a voluntary form of
regulation for those that are not required to be licensed. Provisional and regular certified family
child care providers may care for up to 6 children. The purpose of the program is to promote the
health, safety and welfare of children in licensed child care. The Department ensures that
licensing requirements are met through on-going inspections of child care facilities.11
9 Guide to Wisconsin Hospitals, FY2015. Publication Revised: September 14, 2016. 10 Directory of Licensed Wisconsin Nursing Homes, State of Wisconsin Department of Health Services, Updated on
September 1, 2016. 11 http://dcf.wisconsin.gov/childcare/licensed/Index.htm .
City of Oshkosh Comprehensive Plan Update 2040
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East Central Wisconsin Regional Planning Commission 7-13
Table 7-3: Childcare Facilities
Facility Number Capacity
Licensed Camp 1 89
Licensed Family 19 150
Licensed Group 31 2,332
Total 51 2,571
Source: Wisconsin Department of Children and Families, Licensed and Certified Childcare Directories, July 2018
A total of 51 licensed camps, family and group childcare facilities are located within the
City. These facilities have a combined capacity of 2,571 children (Table 7-3). According to
the 2010 US Census, 6,980 children age 9 years or younger live in the City. Approximately
3,616 or about half are under the age of 5.
PUBLIC SAFETY AND EMERGENCY SERVICES
Police Service
Oshkosh Police Department
The Oshkosh Police Department is located at 420 Jackson Street and is a full service
department that operates 7 days a week, 24 hours a day (Map 7-3). Besides responding to
complaints and investigating criminal activities, representatives from the police department also
serve on community boards, youth councils, service clubs and more. Community interaction
initiatives include neighborhood involvement, Winnebago County Crimestoppers, police school
liaison initiatives, bike patrol and various other community policing efforts.
100 fulltime officers are authorized to be employed by the department. In 2015, the department
provided 1.48 sworn officers per 1,000 population.12 In comparison, the City of Appleton
provided 1.49 sworn officers per 1,000 population in the same time period.
The department has embraced a philosophy and implementation of “Team Policing” where
every officer belongs to a team and teams are responsible for various areas of the City. The
department has operated a K9 Program since 2011. The three K9 units are available with one
unit working on each shift. They assist in deterring criminal activity, in the apprehension of
dangerous subjects, and with detection of illegal drugs. K9's generally support all the various
law enforcement functions and public relations of the Oshkosh Police Department. In 1990, the
department initiated a bike patrol as a way for patrol officers to better interact with Oshkosh
residents. The department also operates special teams including the Oshkosh Police Honor
Guard, Crisis Reaction Team (CRT) and the Tactical Team. The Honor Guard is a special
ceremonial team who volunteer to represent the department at parades, official ceremonies,
and funerals for law enforcement officers. The CRT team is trained to respond to unusual, high
risk and emergency situations. These officers come from various parts of the police department
and must maintain a high level of work productivity, physical fitness, shooting ability and tactical
knowledge. Finally, the TAC team is used for planned and spontaneous events.
12 The FBI Criminal Justice Information Services Division, Uniform Crime Reports, 2015, Table 78.
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7-14 East Central Wisconsin Regional Planning Commission
Five School Liaison Officers work closely with the Oshkosh Area School district. Two officers
work in two high schools and the other three officers work with middle schools. The School
Liaison Officers assist when needed at the grade schools.
Wisconsin Emergency Police Services (EPS) Program provides law enforcement support and
coordination of mutual aid in times of crisis.13 Under the EPS program, the state is divided up
into 7 EPS regions. Each region has a volunteer police services director. Winnebago County is
part of the East Central Region. In the event of an emergency, the area director works with the
State EPS Deputy Director to set up a mutual aid response with local, state and federal law
enforcement agencies. The initiating county sheriff maintains authority over the situation and the
response is to augment their forces with law enforcement officers from surrounding areas. In
addition, the City has a mutual aid agreement with most other Fox Cities communities. Officers
are dispatched by the Winnebago County Communications Center (operated by the Winnebago
County Sheriff’s Office) to provide service to City emergency calls and to other communities, if
needed.
Oshkosh Police Department works with other local and county departments in drug enforcement
efforts and is part of the Lake Winnebago Area Metropolitan Police Enforcement (LWAM)
Group. LWAM is made up of Law Enforcement officers from 20 Police and Sheriff Departments
within Outagamie, Winnebago, Fond du Lac, and Calumet Counties. This multi-agency drug
team is supervised by the State Department of Justice, Division of Criminal Investigation.
Winnebago County Sheriff’s Department14
The Winnebago County Sheriff’s Department is located at 4311 Jackson Street in
Oshkosh. In 2015 the department employed 133 fulltime officers.15 Winnebago County is
divided into five geographic regions and deputies are assigned to the same area on a daily
basis. The department operates 5 divisions: patrol, K9 Unit, detective, Winnebago Drug
Enforcement Unit and corrections. It also operates 9 special teams: Honor Guard, S.W.A.T.
Team, Tactical Response Unit, Motorcycle Patrol, Dive / Rescue Team, Snowmobile Patrol,
Accident Reconstruction Team, Boat Patrol and Chaplains.
Correctional Facilities
The City does not have an adequate facility to detain prisoners for long periods of time;
therefore it depends on the Winnebago County Sheriff’s Department and jail for support.
The Winnebago County Jail, located in Oshkosh, has an operational capacity of 320 inmates.16
The average daily population (ADP) or average number of inmates held each day during one
year is based upon a combination of admissions and the average length of stay. According to
the Wisconsin Adult Jail Report, generally, when the ADP reaches 80 percent of maximum
capacity, the facility is considered to be overcrowded. In 2015, the average daily population was
approximately 275.19 per day (77.5 percent of capacity).17
13 http://emergencymanagement.wi.gov/EPS/history.asp . 14 Winnebago County Sheriff Office, 2015 Annual Report. 15 The FBI, Criminal Justice Information Services Division, Uniform Crime Report, 2105, Table 80. 16 Winnebago County Sheriff’s Annual Report 2015. 17 According to the Winnebago County Sheriff’s Annual Report, the county jail is a 355 direct bed supervision facility
with an operational capacity of 320 inmates. 355 inmates were used to calculate the percent of capacity.
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East Central Wisconsin Regional Planning Commission 7-15
Fire Services
The Oshkosh Fire Department provides fire and emergency services for the City. The
Oshkosh Fire Department employs 96 line officers, equipment operators and
firefighter/paramedics. One assistant chief and six battalion chiefs comprise the command staff.
The department is divided into five divisions including training, operations, maintenance, fire
prevention and emergency medical services.
Table 7-4: Fire Stations
Stations Address Units
Station 14 (Aircraft
Rescue and Fire
Fighting Station)
2050 Knapp Street 1) Pierce Quantum Quint 105’ aerial unit
1) Med Tech
1) Foam/dry chemical unit
1) Oshkosh T-1500
1) Oshkosh Striker
Station 15
(Headquarters)
101 Court Street 1) Chevrolet Suburban
1) Ford Explorer
1) Pierce Quantum Engine
1) Pierce Saber Heavy Rescue
1) Med Tech
1) Huskey Air Boat
1) 15ft Zodiac Boat
1) Ford F-350 / Utility Box
1) Ford F-350 / Wheeled Coach
Station 16 711 S Washburn Street 1) Pierce Quantum Engine
1) Med Tech
1) Ford F-450 / Road Rescue
1) GMC 4500 Tractor / Trailer
Station 17 1813 Algoma Blvd 1) Perce Quantum Quint
1) Med Tech
1) GMC Brigadier
Station 18 811 E Murdock Ave 1) Darley Spartan
1) Ford / Road Rescue
Station 19 1000 W Snell Road 1) Perce Quantum Engine
1) Ford / Road Rescue
Source: City of Oshkosh, July 2018
The Insurance Service Office (ISO) Incorporated collects information on municipal fire protection
efforts throughout the United States.18 Using the Fire Suppression Rating Schedule (FSRS),
ISO assigns a Public Protection Classification (PPC) from 1 to 10. Class 1 generally represents
superior property fire protection, and Class 10 indicates that the area's fire-suppression program
doesn't meet ISO’s minimum criteria. Virtually all United States insurers of homes and business
property use ISO’s Public Protection Classifications in calculating premiums. Therefore the price
of insurance in a community with a good PPC is substantially lower than a community with a
poor PPC. A community’s PPC depends on (1) fire alarm and communication systems,
including telephone systems, telephone lines, staffing, and dispatching systems; (2) the fire
18 http://www.isomitigation.com/ppc/0000/ppc0001.html .
City of Oshkosh Comprehensive Plan Update 2040
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7-16 East Central Wisconsin Regional Planning Commission
department, including equipment, staffing, training, and geographic distribution of fire
companies; and (3) the water-supply system, including the condition and maintenance of
hydrants, and a careful evaluation of the amount of available water compared with the amount
needed to suppress fires. The Oshkosh Fire Department has a PPC classification of 2.
Emergency Management
Oshkosh Emergency Medical Services responds to all emergency and non-emergency
medical calls within the city limits and to the City of Omro, Village of Winneconne, and
Towns of Winneconne, Nekimi, Van Dyne, Black Wolf, Algoma, Poygan, Omro and
Rushford. The Oshkosh Fire Department provides medical care with paramedics and
ambulances respond with fire trucks to provide timely care. Ambulances are staffed with two
firefighter/paramedics and if primary ambulances are busy, fire trucks in Oshkosh are staffed
with paramedics.
The Oshkosh Fire Department participates in the Fox Valley Regional Trauma Advisory
Committee which provides recommendations on treatment and transport for critically injured
trauma patients. If needed, the Theda Star and Flight for Life helicopters are used to assist in
transport of critically injured trauma patients to Theda Clark Regional Trauma Center.
Winnebago County Communications Center
The Winnebago County Communications Center is operated by the Winnebago County Sheriff’s
Office. The Winnebago County Communications Center handles all 911 calls for law
enforcement, fire and emergency medical service providers.
Fox Comm
Fox Comm is a regional partnership for public safety communications within Winnebago,
Calumet and Outagamie counties. Over 25 law enforcement agencies, 57 fire, 29 EMS districts
and three 9-1-1 communications centers are represented through the three-county consortium.
Winnebago County Emergency Management
The Winnebago County Emergency Management Office (WCEMO) is charged with coordinating
response and recovery in the event of natural or technological disasters, county-wide. The
Winnebago County Natural Hazards Mitigation Plan: 2015-2019 5-Year Update provides a
unified plan of action to mitigate the effects of hazards on property, people, and assets.
LIBRARY
The City’s Public Library is located at 106 Washington Avenue and is part of the
Winnefox Library System (Map 7-3). The Winnefox Library System is one of 17 public library
systems in the state.19 Library systems are designed to provide expanded library service to
more people without making additional large expenditures. Libraries receive the majority of their
revenue from the local municipalities and the county.
19 http://dpi.wi.gov/pld/directories/systems .
City of Oshkosh Comprehensive Plan Update 2040
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East Central Wisconsin Regional Planning Commission 7-17
Over the years, the library facility and services have evolved to meet the changing needs of City
residents and for those in surrounding areas. The library provides a multitude of services to the
community including borrowing of books, music and movies, use of internet, fax, copy scanner,
home delivery, meeting rooms and notary service.
A ten-member board of trustees provides policy assistance. The Friends of the Oshkosh Public
Library is a non-profit volunteer organization committed to meeting the needs of the library.
SCHOOLS
The quality of schools within the Oshkosh Area School District plays a critical role in its ability to
attract and retain families, and help build a stronger economy through an educated workforce.
Oshkosh Area School District
The Oshkosh Area School District (OASD) provides education to the City. The District’s
over 10,000 students attend one of fifteen elementary schools, five middle schools, two high
schools and four charter schools.
In 2016, the Oshkosh Area School District had a student to staff ratio of 8.3. In comparison, all
K-12 school districts in Wisconsin averaged 8.7 students per staff.
Oshkosh Public Schools serving Oshkosh residents are described below:
Table 7-5: Schools
School Address Grades Enrollment
Carl Traeger 300 West 20th Ave Elementary 500
Emmeline Cook 1600 Hazel Street Elementary 271
Franklin 1401 W. 5th Avenue Elementary 378
Jacob Shapiro 1050 West 18th Avenue Elementary 261
Jefferson 244 West 11th Avenue Elementary 193
Lakeside 4991 South U.S. Hwy 45 Elementary 275
Merrill 108 W New York Street Elementary 265
Oaklawn 112 Viola Street Elementary 430
Oakwood 1225 North Oakwood Road Elementary 504
Read 1120 Algoma Boulevard Elementary 325
Roosevelt 910 North Sawyer Street Elementary 265
Smith 1745 Oregon Street Elementary 185
Washington 929 Winnebago Avenue Elementary 235
Webster Stanley 915 Hazel Street Elementary 359
ALP Charter School 325 S. Eagle Street Elementary 60
Traeger 3000 West 20th Avenue Middle 475
Merrill 108 W New York Avenue Middle 436
South Park 1551 Delaware Street Middle 411
Perry Tipler 325 South Eagle Street Middle 355
Webster Stanley 915 Hazel Street Middle 378
Academy for Global
Studies
375 N. Eagle Street High School 75
North 1100 West Smith Avenue High School 1,293
West 375 N. Eagle Street High School 1,650
Source: Oshkosh School District, 2017
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Private Schools
Private schools provide choice to Oshkosh residents and play an important role in the City. Nine
private schools serve residents of the Oshkosh.20 Private schools in the district include pre-
kindergarten to 12th grade instruction.
Table 7-6: Private Schools
School Address Grades
Grace Lutheran 917 Nebraska Street PK-8
Lourdes Academy High 110 N Sawyer Street 9-12
Lourdes Academy Middle 110 N Sawyer Street 6-8
Lourdes Academy -Cabrini Site 619 Merritt Ave K4-5
Lourdes Academy-Seton Site 1207 Oregon Street K4-5
Martin Luther 1526 Algoma Blvd PK-8
Trinity Lutheran 819 School Ave KG-8
Valley Christian 3450 Vinland Road PK-12
Wyldewood Christian 3030 Witzel Avenue KG-12
Source: Wisconsin Department of Public Instruction, July 2018
Post-Secondary Education
The City is home to the University of Wisconsin-Oshkosh. UW -Oshkosh offers academic
and professionally oriented bachelors and master degrees in a wide range of fields. Additionally,
the University of Wisconsin system operates three campuses within a 50 minutes’ drive of the
City. These campuses include: UW-Fox Valley, UW-Green Bay and UW-Fond du Lac. UW-
Green Bay offer academic and professionally oriented bachelors and master degrees in a wide
range of fields. UW-Fox Valley and UW-Fond du Lac primarily offer two-year associates
degrees, and is designed to act as a transition between high school and one of the UW four
year campuses.
Private Colleges such as Lawrence University in Appleton, Marion College in Fond du Lac,
Ripon College in Ripon, and Saint Norbert College in De Pere offer bachelor’s degrees in a
variety of disciplines.
The state is covered by 16 multi-county vocational technical and adult education districts which
are organized on a regional basis and financed primarily by local property taxes. These districts
tend to follow school district boundaries rather than county lines. The City is a part of the Fox
Valley Technical College district. Curricula in the technical schools are usually geared toward
an area’s particular needs. Typically a student may choose from among a two-year highly
technical associate degree program, a two-year vocational program, a one-year vocational
program, and a short-term program.
20 While other schools may exist in the City of Oshkosh, these are the schools listed on the DPI website for the
Oshkosh Area School District.
City of Oshkosh Comprehensive Plan Update 2040
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East Central Wisconsin Regional Planning Commission 7-19
Other Municipal Buildings
Government Facilities
City Hall. The Oshkosh City Hall is located at 215 Church Avenue (Map 7-3). It houses the
following departments: Assessors Office, City Clerk, Finance, Information Systems, City
Attorney, City Manager, Community Development, Human Resources, Mayor and Oshkosh
Media. Council Chamber and meeting rooms are also located in the building.
City Garage. The City broke ground on a new city garage in 2013. The 150,000 square foot
facility houses more than 100 public works vehicles and cost approximately $19 million.
POLICIES AND PROGRAMS
Policies and programs related to utilities and community facilities are found in Appendix D.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
Type Reference Content
Goal UCF1
Expand and maintain utility and community facilities and services
provided by both public and private entities that support economic
and residential development.
Objective UCF1.1 Develop and implement plans for future facilities.
Action UCF1.1.1
Monitor American Transmission Company’s plan implementation and
the ANR’s natural gas line expansion needs for Winnebago County.
Action UCF1.1.2 Implement the Southwest Area Sanitary Sewer Study.
Action UCF1.1.3
Review extraterritorial plans and officially map future arterials, collectors,
parks, and other infrastructure to preserve adequate future facilities.
Action UCF1.1.4
Assess Economic Activity Zones for utility and facility needs and
evaluate options for facility expansions and extensions.
Action UCF1.1.5 Prepare a master plan for water distribution.
Action UCF1.1.6 Research regional/shared storm water pond options.
Action UCF1.1.7 Research fiber optic options for the City.
Type Reference Content
Goal UCF2
Design facilities and services for an adequate level of service,
based on standards for population and demand for those facilities
and services.
City of Oshkosh Comprehensive Plan Update 2040
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7-20 East Central Wisconsin Regional Planning Commission
Objective UCF2.1
Develop facilities and services that accommodate future population and
business needs.
Action UCF2.1.1 Coordinate expansion and future location of educational facilities.
Action UCF2.1.2
Where appropriate, assist with implementation of Oshkosh Fire
Department strategic plan.
Action UCF2.1.3
Revise the Land Subdivision Ordinance to revise the impact fees and
land dedication requirements.
Action UCF2.1.4
Work with the Oshkosh Area School District to implement their strategic
plan for the district.
Action UCF2.1.5 Coordinate future location of facilities for service providers.
Action UCF2.1.6
Due to their residential locations, convert vacated Oshkosh School
District sites to parks as appropriate.
Action UCF2.1.7
Work with ECWRPC on regular updates, and amendments as needed,
to the Oshkosh Sewer Service Area Plan which best reflect the vision of
the comprehensive land use plan.
Type Reference Content
Goal UCF3
Promote neighborhoods designed to include pedestrian and
bicycle friendly facilities and public gathering places.
Objective UCF3.1
Develop neighborhoods that foster social and recreational opportunities
for citizens.
Action UCF3.1.1
Update and implement the “Pedestrian and Bicycle Circulation Plan”,
including:
a. Continue to identify and develop a linked network of parks and trails
around and within the City.
b. Complete the Fox River Corridor with a looped trail system with an
environmentally sensitive design for the shoreline.
Action UCF3.1.2
When appropriate, participate in the Vulcan Quarry reclamation planning
process, including pursuing opportunities for conversion of Vulcan
Quarry to public open space.
Action UCF3.1.3
Implement recommendations of the “Comprehensive Outdoor
Recreation Plan” for parkland dedication, acquisition, and officially
mapping parks and trails.
Action UCF3.1.4
Revise Land Subdivision Ordinance to address:
a. Require sidewalks during the Certified Survey Mapping process.
b. Include sidewalks on all residential cul-de-sacs.
Action UCF3.1.5
Create and maintain high-quality transient and long-term boat docking
and launching opportunities, including fish-cleaning stations.
Action UCF3.1.6 Continue progress on Riverwalk development.
Action UCF3.1.7
Include current "Pedestrian and Bicycle Circulation Plan" as appendix
item in adopted comprehensive plan.
City of Oshkosh Comprehensive Plan Update 2040
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East Central Wisconsin Regional Planning Commission 7-21
Type Reference Content
Goal UCF4
Promote growth and redevelopment of property included within the
service areas of the existing infrastructure and service system.
Objective UCF4.1
Develop property in a manner that lessens the need for facility and
service extensions.
Action UCF4.1.1
Pursue incentives to redevelop underutilized or environmentally
contaminated sites, both publicly and privately owned.
Type Reference Content
Goal UCF5 Utilize environmentally sensitive methods and systems.
Objective UCF5.1
Develop facilities and systems that protect the environment and
complement the existing aesthetics of the community.
Action UCF5.1.1
Revise relevant development ordinances to address:
a. Alternative methods to stormwater management.
b. Improved erosion control methods.
c. Cluster development requirements to protect natural areas.
d. Tree retention during development.
Action UCF5.1.2
Coordinate with utility providers and property owners to place overhead
lines underground during street reconstruction projects. Require for
gateway corridors.
Action UCF5.1.3
Pursue incentives to redevelop underutilized or environmentally
contaminated sites, both publicly and privately owned.
Action UCF5.1.4
Educate and involve public regarding:
a. Water conservation practices.
b. Impervious surfaces and lot coverage.
c. Non-point source pollution.
d. Stormwater management techniques that address improving
quality and lessening the quantity of runoff.
Action UCF5.1.5
Permit other plantings for property owners when trees cannot be placed
in the terrace.
Type Reference Content
Goal UCF6
Ensure ongoing communication regarding Utilities and Community
Facilities issues and activities.
Objective UCF6.1
Adopt policy to verify ongoing communication with Utility and Community
Facilities stakeholders.
Action UCF6.1.1
Adopt policy to include county Health, Fire, Police and Public Works
Departments in Plan Commission packet distribution.
Action UCF6.1.2
Continue city staff involvement with Utilities and Community Facilities
activities as needed.
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Map 7-1: City of Oshkosh Comprehensive Plan UpdateSewer & Water Services
Source: Base data provided by Winnebago County 2016.Sewer Service data provided by ECWRPC 2016.Water Service data provided by ECWRPC 2016.
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This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
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City of Oshkosh
Water Filtration Plant
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Sewer Service Planning Boundary
East Central Wisconsin Regional Planning Commission 7-23
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Map 7-2: City of Oshkosh Comprehensive Plan UpdateUtility - Infrastructure
Source: Base data provided by Winnebago County 2016.Electric data provided by ATC 2016.FCC tower data provided by FCC 2016. Waste Facility data provided by WIS DNR 2016. Gas data provided by NPMS 2016.
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This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
Lake Winnebago
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Des Morts
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FCC Registered Tower
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!?Operating Waste Facility
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NPMS Registered Natural Gas Pipeline
East Central Wisconsin Regional Planning Commission 7-25
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Map 7-3: City of Oshkosh Comprehensive Plan UpdateCommunity Facilities
Source: Base data provided by Winnebago County 2016.Community data provided by ECWRPC 2016.
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This data was created for use by the East Central Wisconsin Regional PlanningCommission Geographic Information System. Any other use/application ofthis information is the responsibility of the user and such use/application is attheir own risk. East Central Wisconsin Regional Planning Commissiondisclaims all liability regarding fitness of the information for any use other thanfor East Central Wisconsin Regional Planning Commission business.
Lake Winnebago
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Des Morts
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5 Schools
Town/City Hall
!y Boat Launch
Cemetery
Fire Station
s Golf Course
Hospital
Æc Library
!®Post Office
Recreational Parks
East Central Wisconsin Regional Planning Commission 7-27
CHAPTER 8
AGRICULTURAL, NATURAL AND
CULTURAL RESOURCES
CHAPTER 8: AGRICULTURAL, NATURAL AND CULTURAL RESOURCES
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 8-1
Goals…………………………………………………………………………………………………… . 8-1
Key Summary Points………………………………………………………………………………….. 8-2
Inventory and Analysis………………………………………………………………………………… 8-3
Agricultural Resources Inventory……………………………………………………………............. 8-3
Natural Resources Inventory……………………………………………………………................... 8-5
Wildlife Resources…………………………………………………………….................................. 8-15
Parks, Open Space and Recreational Resources…………………………….………………….. . 8-19
Waste and Pollution………………………………………………………...................................... . 8-19
Cultural Resources………………………………………………………………………….............. . 8-20
Policies and Programs…………………………………………………………………………......... . 8-25
Objectives and Actions………………………………………………………………………………. . 8-25
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-1
CHAPTER 8: AGRICULTURAL, NATURAL AND CULTURAL RESOURCES
INTRODUCTION
Agricultural, natural, and cultural resources give definition to a community and strongly affect
quality of life. Outside the urban areas of Winnebago County, a tapestry of working farms
interwoven with stands of woodlands dot the landscape and shape the area’s identity and
culture. While agricultural acreage and the number of farms have been on the decline in
Winnebago County, it is still an important component of the area economy. Natural features
such as topographic relief, lakes, streams, wetlands and soils also have significant bearing on
historic and contemporary land use and development patterns. Understanding the relationship
between environmental characteristics and their physical suitability to accommodate specific
types of activities or development is a key ingredient in planning a community’s future land use.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal ANC1
Promote the development of urban agricultural programs and
activities.
Goal ANC2
Protect and preserve wetlands, shorelands, and other
environmentally sensitive areas.
Goal ANC3
Protect aquatic and wildlife habitat when managing
development in proximity to environmental corridors, riparian
areas, and woodlands.
Goal ANC4
Protect and develop passive and active recreation resources
(e.g. parks, trails, hunting and fishing opportunities).
Goal ANC5
Promote an aesthetically pleasing natural environment
throughout the City.
Goal ANC6
Promote the on-going viability of publicly and privately owned
cultural resources.
Goal ANC7 Create a strong and vibrant cultural tourism program.
Goal ANC8
Promote and publicize cultural events and sites within the
City.
Goal ANC9
Encourage preservation and protection of the historic built
environment.
Goal ANC10
Maintain, improve, and increase public access to the
waterfront.
Goal ANC11 Continue to improve the City’s overall aesthetic quality.
Goal ANC12
Ensure ongoing communication regarding agricultural, natural
and cultural resource issues and activities.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
8-2 East Central Wisconsin Regional Planning Commission
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Agricultural Resource Inventory
a) Overall, about half (9,460 acres, 54%) of the land within the City is considered prime
farmland with the majority classified as “All Areas Prime Farmland”
b) The City has two community gardens, Community Gardens of Oshkosh and the
University of Wisconsin Oshkosh Community Gardens.
Natural Resources Inventory
a) There are no areas of steep slopes (greater than 12%) in the City.
b) The bedrock geology of the City and the extraterritorial area is made up of two distinct
formations that divide the area1.
c) Less than one percent (70.6 acres) of the City’s extraterritorial area has areas of high
bedrock.
d) There is about 107 acres of active limestone quarry sites in the City.
Water Resources
a) Oshkosh is bordered by Lake Winnebago and Lake Butte des Morts.
b) There are four named waterways within in close proximity to the City2.
c) The City and its extraterritorial area are located within the Upper Fox, Lower Fox, and Wolf
River Basins.
d) Only three percent (158 acres) of the City’s total acreage are classified as wetlands.
e) According to the City’s 2015 Water Quality Report (Customer Confidence Report)3, the
City treats surface water from Lake Winnebago for potable water and did not have any
violations reported.
f) Most areas (90.5%) within the City fall within the high water recharge potential.
g) The City lies to the east of the main band of highest concern, but smaller areas of the St.
Peter Sandstone bedrock may fall within the City’s extraterritorial planning area.
h) Approximately 40 percent (28,740 acres) of the City and the surrounding area has
groundwater present within two feet or less.
Wildlife Resources
a) Wildlife is threatened by the negative effects of development and storm water runoff
(both from urban and rural runoff sources).
b) There are no planted woodlands and approximately 161 acres of general woodlands in
the City.
c) A review of the NHI Township Search Tool (for the Towns of Oshkosh, Vinland,
Winneconne, Algoma, Utica, Nekimi, and Black Wolf) database revealed a number of
species (fish, bird, turtle, butterfly, and plant) for the City and surrounding towns.
1 Bedrock Geology of Wisconsin, 2005; University of Wisconsin-Extension Geological and natural History Survey. 2 WDNR, http://dnr.wi.gov/water/waterDetail.aspx?key=10848 . 3 Source: City of Oshkosh 2015 Water Quality Report: http://www.ci.oshkosh.wi.us/public_works/assets/pdf/CCR-
2015.pdf .
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-3
Parks, Open Space and Recreational Resources
a) The WDNR owns and manages approximately 113 acres of land within the City and
approximately 627 acres within the extraterritorial area.
b) Important environmental corridors within the City and surrounding area are associated
with lake shorelines and the named and unnamed streams with natural vegetation
scattered throughout the area.
Waste and Pollution
a) According to SHWIMS, there are 328 operating sites listed for Oshkosh.
b) A search of the database for solid waste landfills / disposal facilities indicates that there
are 16 sites in the City.
c) The closest ozone air quality monitoring site is located at the Thrivent facility at 4432
Meade Street in Appleton (Outagamie County).
d) The 8-hour design values (ppb) were not exceeded at the Outagamie County site
between 1997 and 2012.4
e) Outagamie County did not exceed the primary and secondary National Ambient Air
Quality Standard for particulate matter between 2001 and 2013.
Cultural Resources
a) At the present, 36 properties / districts within the City are listed on the National Register.
b) A search of the DHP’s online Architecture and History Inventory (AHI) reveals a total of
1,777 sites listed for Oshkosh.5
c) There are two museums in the City.
d) The City is a Certified Local Government (CLG).
e) The City has established the Oshkosh Landmarks Commission.
f) More than 100 people lived in the area by 1840, and soon, the Villages of Brooklyn, on
the south side of the Fox River, and Athens, on the north, merged and officially adopted
the name Oshkosh after the Menominee Chief (1795-1858).
INVENTORY AND ANALYSIS
Creating an inventory of existing agricultural, natural, and cultural resources is critical in
providing the City with information to base future decisions on. The goals, strategies and
recommendations for this element were shaped with these resources, and the constraints and
opportunities they provide, in mind. The following provides and inventory of these resources.
AGRICULTURAL RESOURCES INVENTORY
Farming and the processing of farm products is still an important source of income and
employment in Winnebago County. Since agriculture is a necessary component of the county’s
economy, the protection of farmland is critical. However, as is occurring elsewhere in rural
Wisconsin, new developments are encroaching on productive farmland. This section will access
agricultural lands in Winnebago County which has an impact on the City.
4 Wisconsin Department of Natural Resources, Wisconsin Air Quality Trends, April 2015. 5 Accessed 11/21/2016.
City of Oshkosh Comprehensive Plan Update 2040
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8-4 East Central Wisconsin Regional Planning Commission
Farm and Farmland Loss
Farm and farmland losses are the result of economic pressures within agriculture as well as
competition for agricultural lands from residential, commercial, industrial, and other
development.
In 2007, there were about 1,001 farms (defined as any place producing at least $1,000 or more
of agricultural products were produced and sold, or normally would have been sold, during the
census year) in Winnebago County (Table 8-1). There was a net increase of 116 farms or 11.6
percent countywide between 2007 and 2012.
While the number of farms increased from 2007 to 2012, the amount of land in farms and
average size of farms decreased when measured in acres. Land in farms decreased 5.2% and
average size of farms decreased 15.2%.
Table 8-1: Trends in Farm Numbers, 1990 and 1997
Item 2007 2012 Percent Change
Number of farms 1,001 1,117 11.6%
Land in farms (acres) 164,014 155,520 -5.2%
Average size of farm (acres) 164 139 -15.2%
Source: USDA Census of Agriculture. Data accessed 11/21/16
Farmland Soils
Prime farmland are generally defined as “land that has the best combination of physical and
chemical characteristics for producing food, feed, forage, fiber, and oilseed crops and that is
available for these uses. It has the combination of soil properties, growing season, and moisture
supply needed to produce sustained high yields of crops in an economic manner if it is treated
and managed according to acceptable farming methods”. This includes the following
classifications (1) All areas are prime farmland; (2) Prime Farmland, if drained; (3) Farmland of
Statewide Importance; and (4) Not Prime Farmland if drained. Soil data from the NRCS-USDA
Web Soil Survey (WSS), accessed in 2015, was used to determine prime farmland.
Overall, about half (9,460 acres, 54%) of the land within the City is considered prime
farmland with the majority classified as “All Areas Prime Farmland” (Map 8-1, Table 8-4).
“All Areas Prime Farmland” soils are spread throughout the City. “Prime farmland, if drained”
comprises much of the remainder of the City. Areas not considered prime farmland are found
near the Fox River, Little Lake Butte des Morts and Lake Winnebago.
Table 8-2: Important Farmland Classes
Soil Classification Acres Percent
All Areas Prime Farmland 9,460.22 54%
Farmland of Statewide Importance 513.78 3%
Prime Farmland if Drained 4,844.72 27%
Not Prime or Statewide Importance 2,830.78 16%
Total 17,649.50 100%
Source: NRCS-USDA Soil Data, Accessed in 2015
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-5
Community Gardens
Community gardens provide access to local food. They allow people without access to land to
grow their own food, and to share knowledge and skills. Some people find that gardening
relieves stress, encourages social interaction, increases physical activity and encourages
people to eat more vegetables and healthy foods. The City has two community gardens,
Community Gardens of Oshkosh and the University of Wisconsin Oshkosh Community
Gardens. Community Gardens is located off of County Highway A and Sherman Road and is
operated by Winnebago County University of Wisconsin-Extension. University of Wisconsin
Community Gardens is located at 663 W. 3rd Avenue and is operated by a student organization.
Bees and Poultry
Beekeeping and the raising of chickens in urban settings has become popular in recent years.
Bees’ aide in pollination of garden plants and backyard orchards and provide a source of locally
produced honey. The City’s Sustainability Advisory Board passed urban beekeeping ordinance
in 2017. In 2011, the City amended their municipal code to allow City residents to keep chickens
in single and two family residential districts in the City.6
NATURAL RESOURCES INVENTORY
Natural Resources act as the foundation upon which communities are formed. Identifying key
natural resources in and within a close proximity of the City, and learning how to utilize,
conserve, and/or preserve them may determine the future environmental health of the City. This
section addresses land, water, wildlife, mineral, and recreational resources in the City, and aims
to provide a baseline upon which the City can use to make future decisions that may impact
these resources.
Land Resources
Soils
Soils support the physical base for development and agriculture within the City. Knowledge of
their limitations and potential difficulties is helpful in evaluating crop productions capabilities and
other land use alternatives such as residential development, utility installation and other various
projects. Two general soil associations, or groupings of individual soil types based on
geographic proximity and other characteristics, are present within the City7.
Kewaunee-Manawa-Hortonville association. These soils are located in the City and
within the City’s extraterritorial area. These soils consist of nearly level to sloping soils
that have loamy or clayey subsoil underlain by loamy or clayey glacial till. Most of this
association is used for cultivated crops. The main concerns of management are areas of
seasonal high ground water. Minor soils of this association are the Korobago, Lorenzo
Variant, Menasha, Neenah, Omro, Poygan, Udorthents, Whalan, and Winneconne soils.
LeRoy-Ossian-Lomira association. These soils are located within a small area of the
southwest portion of the City’s extraterritorial area. These soils are well drained and
poorly drained soils. These soils consist on nearly level to sloping soils that have silty or
6 City of Oshkosh Ordinance 11-109 & 11-139. 7 Soil Survey of Winnebago County, Wisconsin, 1980; United States Department of Agriculture Soil Conservation
Service.
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8-6 East Central Wisconsin Regional Planning Commission
loamy subsoil underlain by loamy glacial till or silt loam alluvium. The majority of this
association is used for cultivated crops and pasture or woodlots along the steeper or
wetter edges of drumlins, knolls, and morainic ridges. Minor soils of this association are
the Atterberry, Keowns, Lamartine, and St. Charles soils.
Steep Slopes
In general, the City and the surrounding area are relatively flat. There are no areas of steep
slopes (greater than 12%) in the City.
Geology, Topography and Scenic Resources
The structure of the City’s bedrock and historic glacial events is largely responsible for the
City’s landscape. After the recession of glaciers about 11,000 years ago, Winnebago County
was left with its current topography shaped by mounds of glacial till with flatter areas where
limestone and sandstone bedrock often lie not far from the surface.
Elevations rise away from the shores of Lake Winnebago, which is situated along the eastern
border of the City.
The bedrock geology of the City and the extraterritorial area is made up of two distinct
formations that divide the area8. These bedrock formations are:
The Sinnippee Group is comprised of dolomite with some limestone and shale
formations. This group stretches west from the Lake Winnebago Shoreline.
The St. Peter Formation is a thin layer that runs north and south through the area
comprised of sandstone, some limestone shale and conglomerate.
Very small areas of high bedrock are located with the City’s extraterritorial (Map 8-2). Less than
one percent (70.6 acres) of the City’s extraterritorial area has areas of high bedrock.
Areas of high bedrock are defined as being within 70 inches of the surface.
Table 8-3: High Bedrock
MCD High Bedrock Total acres Percent
C. Oshkosh - 17,649.50 0.0%
T. Oshkosh 29.57 8,894.92 0.3%
T. Vinland 4.27 6,9818.12 0.1%
T. Winneconne - 1,477.78 0.0%
T. Algoma 36.70 6,746.87 0.5%
T. Omro - 7,179.18 0.0%
T. Utica - 4,472.84 0.0%
T. Nekimi - 15,556.60 0.0%
T. Black Wolf - 4,578.85 0.0%
Total Extraterritorial 70.54 55,825.16 0.1%
Total 70.54 73,474.66 0.1%
Source: Winnebago County Soils Data, 1980, ECWRPC 2016
8 Bedrock Geology of Wisconsin, 2005; University of Wisconsin-Extension Geological and natural History Survey.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-7
Metallic and Non-Metallic Mining Resources
Non-metallic mineral resources include other than those mined as a source of metal.
Economically important non-metallic minerals include stone, sand, gravel and clay. There is
about 107 acres of active limestone quarry sites in the City (Map 8-2). Within the
extraterritorial area, there are approximately 549 acres of active limestone quarries. Non-
metallic mineral resources within the City and extraterritorial areas are limestone.
Table 8-4: Non-Metallic Mining Resources
MCD Exempt Limestone Reclaimed
Sand &
Gravel
Total
Acres
C. Oshkosh 0 106.8 0 0 17,649.50
T. Oshkosh 0 30.47 28.05 0 8.894.92
T. Vinland 0 291.74 24.84 0 6,918.12
T. Winneconne 0 0 0 0 1,477.78
T. Algoma 0 44.2 18.48 0 6,746.87
T. Omro 0 0 0 0 7,179.18
T. Utica 0 0 0 0 4,472.84
T. Nekimi 0 182.8 0 0 15,556.60
T. Black Wolf 0 0 0 0 4,578.85
Total Extraterritorial 0 549.21 71.37 0 46,930.24
Total 0 656.01 71.37 0 64,579.74
Source: ECWRPC, 2016
Soil Suitability for Sand and Gravel
Soil suitability for sand and gravel is shown on Map 8-2. This information can be used as
guidance to where to look for probable sources based on the probability that soils in a given
area contain sizeable quantities of sand or gravel. These materials can be used as a source for
roadfill and embankments. Water Resources
Lakes and Ponds
Surface water resources are extremely valuable
features because of their potential environmental
and economic benefits. Water based recreational
activities and appropriately designed residential
development that capitalizes on surface water
amenities can have lasting impact on the local
economy. Appropriate location and management
of residential activity near surface water features
is extremely important because of potential threats
to water quality. Residential development’s
threats to surface water resources include lawn-
applied chemicals, siltation and petroleum-based
substances and salts from local road runoff. Lake Winnebago
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
8-8 East Central Wisconsin Regional Planning Commission
The Wisconsin DNR maintains the Wisconsin Lakes Directory. The directory provides a list of
named and unnamed lakes, springs, and ponds. Oshkosh is bordered by Lake Winnebago
and Lake Butte des Morts (Map 8-3).
Lake Winnebago is the largest inland lake in Wisconsin at 131,939 acres. Lake Winnebago is
at the bottom of the Fox-Wolf Drainage Basin with an area of 6,430 square miles. The basin
includes the Wolf River, Upper Fox River, and the Winnebago Pool Lakes (Poygan,
Winneconne, Butte des Morts). Lake water levels are controlled by the Army Corps of
Engineers by a federal dam in Menasha and a private dam in Neenah. It has a maximum depth
of 21 feet. Visitors have access to the lake from public boat landings and public beaches. Fish
include Panfish, Largemouth Bass, Smallmouth Bass, Northern Pike, Walleye, Sturgeon and
Catfish. The lake's water clarity is low.
Lake Butte des Morts is connected to Lake Winnebago by the Upper Fox River that flows
through the City. Lake Butte des Morts, an 8,581 acre lake, is currently considered impaired
due to agricultural runoff.
Rivers and Streams
There are four named waterways within in close proximity to the City9. In addition, a series
of unnamed streams, ditches, and drainage ways primarily drain agricultural areas or
undeveloped areas within the City’s buffer area and beyond (Map 8-4).
Upper Fox River. The Upper Fox River empties into Lake Butte des Morts and again
flows through the City connecting Lake Butte des Morts to Lake Winnebago. The Lower
Fox River orginantes to the north of the City at two outlets on Lake Winnebago.
Sawyer Creek. Sawyer Creek is a clear, hard water stream tributary to the Fox River.
All but the lower one mile of stream is intermittent. The lower mile contains water but
has no measurable flow at low water stages. This portion lies within the City and is a
catch-all for trash and litter. The fishery is minimal but bullheads and panfish are known
to exist. Wildlife values are minimal. Even though much of the stream is intermittent,
Sawyer Creek carries tremendous volumes of water during peak runoff periods. Minor
flood damage often occurs along the stream.
Campbell Creek. Campbell Creek is a turbid, hard water stream that is intermittent
except for the extreme lower end. Nearly the entire natural channel of this stream has
been buried and incorporated into the City's storm sewer system. The system is
inadequate for peak floodflows and as a result flooded streets and basements are
commonplace during high runoff periods. Sludge and silt are common bottom materials.
Campbell Creek does not have a fishery.
Daggets Creek. Daggets Creek is located within the City’s northwest portion of the
exterritorial area. Daggets Creek is a dredged channel entering Lake Butte des Morts.
Soil loss is a major issue and there are three barnyard/feedlot operations ranked critical
and two ranked high for their NPS pollution hazard. The lower half mile is a
dredged channel approximately 50 feet wide and three feet deep. Lands adjacent to this
channel have been subdivided.
9 WDNR, http://dnr.wi.gov/water/waterDetail.aspx?key=10848 .
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-9
Watersheds and Drainage
The City and its extraterritorial area is located within the Upper Fox, Lower Fox, and Wolf
River Basins (Map 8-3) The Upper Fox Basin encompasses most of the City, the Lower Fox River
Basin encompasses areas north of the City and a small part of the Wolf River Basin covers areas to
the northwest. Within these basins there are six sub-watersheds.
Lower Fox Basin10:
Little Lake Butte des Morts Watershed (LF06). A portion of the of the City (6,065.24
Acres) and the City’s extraterritorial area fall within the Little Lake Butte des Morts sub-
watershed, part of the Lower Fox River Basin. This watershed drains to the Lower Fox
River beginning at the outlet of Lake Winnebago (at the Neenah and Menasha dams) to
where the Appleton dam is located. There are many unnamed tributaries within the
watershed including the Neenah Slough. The watershed is ranked high for stormwater
runoff.
Upper Fox River Basin11 :
Lake Butte des Morts Watershed (UF04). Most of the City falls within this watershed.
The Lake Butte Des Morts Watershed is located entirely within Winnebago County. The
watershed is 50,973 acres in size and contains 128 miles of streams and rivers, 85
acres of lakes and 1498 acres of wetlands. The watershed is dominated by agriculture
(59%) and open water (16%) and is ranked high for nonpoint source issues affecting
streams and groundwater.
The Lake Winnebago North and West Watershed (UF01). The Lake Winnebago
North and West watershed is a small watershed stretching along the west shore of Lake
Winnebago from the City to the Village of Harrison. The watershed is predominately
developed along the lakeshore and areas adjacent to the lakeshore are either suburban
areas or are currently being used for agriculture. The watershed is ranked high for
nonpoint source pollution.
Fox River (UF05). A small portion of the Fox River watershed stretches into the south
western portion of the City’s extraterritorial area.
Fond du Lac River (UF03). A small portion of the Fond du Lac River watershed
extends into the southeast corner of extraterritorial area. The watershed is 156,632
acres in size and is ranked high for nonpoint source pollution.
Wolf River Basin12
The Arrowhead River and Daggets Creek Watershed (WR01). A very small portion
of this watershed stretches into the western portions of the City’s extraterritorial area
encompassing the Daggets Creek corridor (Note: this is such a small amount area, that
acreage totals were added to the Lake Butte des Morts watershed acreage totals in
Table 8-7 below.) This watershed is part of the Wolf River Basin. Major problems in this
watershed include excessive vegetation, dissolved oxygen standard violations and
critical levels of soil loss.
10 WDNR, http://dnr.wi.gov/water/basin/Lowerfox . 11 WDNR, http://dnr.wi.gov/water/basin/upfox . 12 WDNR, http://dnr.wi.gov/water/basin/wolf .
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8-10 East Central Wisconsin Regional Planning Commission
Table 8-5: Watersheds
MCD
Lake Butte
des Morts
Little Lake
Butte des
Morts Fox River
Lake
Winnebago
North &
West
Fond du
Lac River
C. Oshkosh 10,708 0 0 4,354 2,502
T. Oshkosh 7,129 136 0 1,600 0
T. Vinland 4,848 1,275 0 802 0
T. Winneconne 1,478 0 0 0 0
T. Algoma 6,747 0 0 0 0
T. Omro 7,179 0 0 0 0
T. Utica 2,004 0 2,469 0 0
T. Nekimi 3,050 0 3,852 0 8,655
T. Black Wolf 0 0 0 0 4,568
Total Extraterritorial 32,435 1,411 6,321 2,402 13,223
Total 43,143 1,411 6,321 6,756 15,725
Source: ECWRPC, 2017
Floodplains
Areas susceptible to flooding are considered unsuitable for development due to potential health
risks and property damage. Floodplains shown on Map 8-3 were obtained from the Wisconsin
Department of Natural Resources database in 2015. The City ordinance is based on the FIRM,
dated March 17, 2003 and corresponding profiles that are based on the Flood Insurance Study
(FIS) dated March 17, 2003.
Overall, 5 percent (853 acres) of the City is within a floodplain. These areas can be seen in
Map 8-3, and Table 8-8. In general the mapped floodplains are associated with Lake Butte des
Morts named and unnamed tributaries and areas along the Lake Winnebago Shoreline.
The City enforces floodplain and shoreland – wetland zoning ordinances (Chapter 22, Article XV
and Article III). In addition, Winnebago County enforces a floodplain-wetland zoning ordinance
for unincorporated areas of the county. Both ordinances require certain land use controls in
designated flood hazard areas, thus making residents eligible to participate in the Federal Flood
Insurance Administration’s Flood Insurance Program. This program requires all structures
located in the designated flood hazard area be insured by a flood insurance policy if they are
mortgaged by a federally insured bank. The City further enforces a floodway and flood fringe
ordinance (Ch.22-55 & 22-56) to limit development in flood risk areas.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-11
Table 8-6: Floodplains
MCD Floodplains Total acres Percent
C. Oshkosh 853.07 17,649.50 5%
T. Oshkosh 512.64 8,894.92 6%
T. Vinland 102.28 6,918.12 1%
T. Winneconne 38.39 1,477.78 3%
T. Algoma 281.95 6,746.87 4%
T. Omro 18.37 7,179.18 0%
T. Utica 267.41 4,472.84 6%
T. Nekimi - 15,556.60 0%
T. Black Wolf 97.79 4,578.85 2%
Total Extraterritorial 1,318.83 55,825.16 2%
Total 2,171.90 73,474.66 3%
Source: ECWRPC, 2016
Wetlands
Wetlands act as a natural filtering system for nutrients such as phosphorus and nitrates and
serve as a natural buffer protecting shorelines and stream banks. Wetlands are also essential in
providing wildlife habitat, control, and groundwater recharge. Consequently, local, state, and
federal regulations have been enacted that place limitations on the development and use of
wetlands and shorelands .
The City enforces a shoreland and wetland Zoning District. Chapter 22-217 regulates
wetlands within 1,000 feet of the ordinary high water mark of navigable lakes, ponds or
flowages and within 300 feet of the ordinary high watermark of navigable rivers or
streams. The Army Corps of Engineers has authority over the placement of fill materials in
virtually all wetlands two acres or larger adjacent to navigable waterways. The U.S. Department
of Agriculture incorporates wetland preservation criteria into its crop price support programs.
Prior to placing fill or altering wetland resources, the appropriate agencies must be contacted for
authorization.
The wetlands shown on Map 8-3 are based on the Wisconsin DNR Wetlands Inventory Map.
They were identified using aerial photographs to interpret vegetation, visible hydrology, and
geography based on the U.S. Fish and Wildlife Service’s “Classification of Wetland and
Deepwater Habitats of the United States.” Only 3 percent (158 acres) of the City’s total
acreage are classified as wetlands. The majority of this acreage lies in low-lying areas that
have high groundwater. Generally wetlands are found named and unnamed lake tributaries,
and Lake Winnebago and Little Lake Butte des Morts shoreline.
Groundwater
Safe, clean, and reliable groundwater plays a crucial role in maintaining the current quality of life
and economic growth of the City and surrounding areas. Precipitation in the form of rain and
snow is the source of nearly all the City’s groundwater. Recharge is generally greatest in the
spring, when water from melting snow and heavy rains saturate the ground and percolate
downward to the water table. If discharge (the drawing out and use of groundwater) is greater
than recharge, then the elevation where the groundwater is found will fall, causing a depression
to occur. Lower water levels cause the pumping lifts to increase and may reduce the yields of
some of the wells. According to the City’s 2015 Water Quality Report (Customer
City of Oshkosh Comprehensive Plan Update 2040
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8-12 East Central Wisconsin Regional Planning Commission
Confidence Report)13, the City treats surface water from Lake Winnebago for potable
water and did not have any violations reported (For more information, please refer to the
Community Facilities Chapter).
Groundwater Recharge Potential. According to a report prepared by the Wisconsin
Geological and Natural History Survey14, areas surrounding the City have high (4-8
inches/year) infiltration rates which are estimated to become stream base flows or continue
down and eventually become groundwater recharge. Most areas (90.5%) within the City fall
within the high water recharge potential (Table 8-7). Protecting infiltration areas from
impermeable development will help to safeguard the surrounding area’s drinking water supply
and will help safeguard the quality and quantity of Lake Winnebago surface water in the long-
term.
Table 8-7: Water Recharge Potential
Acres Percent
Low Water Recharge Potential (0” - 2”/year 0 0.0%
Medium Water Recharge Potential (2” - 4”/year) 358 5.8%
High Water Recharge Potential (4” - 8”/year) 5,535 90.5%
Very High Water Recharge Potential (> 8”/year) 1 0.0%
No Rating 223 3.6%
Total Acres 6,116 100.0%
It is important to recognize that, in addition to any efforts made within the City and throughout
the City’s extraterritorial area to protect groundwater supply; this issue is more regional in
scope. A groundwater divide, located in the central part of Wisconsin, determines the flow of
groundwater. East of the divide, groundwater moves southeasterly toward the Wolf and Fox
Rivers. Thus, efforts to preserve groundwater resources should be coordinated on a regional
basis as a way to ensure that the region’s groundwater supply is protected.
Groundwater Contamination Susceptibility. The ease that pollutants can be transported from
the land surface to the top of the groundwater or “water table” defines a groundwater’s
susceptibility to pollutants. Materials that lie above the groundwater offer protection from
contaminants. However, the amount of protection offered by the overlying materials varies,
depending on the materials.
The WDNR, in cooperation with UW-Extension, the Wisconsin Geological and Natural History
Survey and USGS, evaluated the physical resource characteristics that influence sensitivity in
order to identify areas sensitive to contamination. Five resource characteristics were identified:
depth to bedrock, type of bedrock, soil characteristics, depth to water table and characteristics
and characteristics of surficial deposits. Each of the five resource characteristics was mapped,
and a composite map was created. A numeric rating scale was developed and map scores were
added together.
An index method was used to determine susceptibility; however this method of analysis is
subjective and includes quantifiable or statistical information on uncertainty. This limits the use
13 Source: City of Oshkosh 2015 Water Quality Report: http://www.ci.oshkosh.wi.us/public_works/assets/pdf/CCR-
2015.pdf . 14 Groundwater Recharge in Calumet, Outagamie, and Winnebago Counties, Wisconsin, Estimated by a GIS-based
Water-balance Model, 2011; University of Wisconsin-Extension Wisconsin Geological and Natural History Survey
(Open-File Report 2001-05).
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East Central Wisconsin Regional Planning Commission 8-13
of the information for defensible decision making. Therefore, while groundwater contamination
susceptibility maps can be useful, this level of uncertainty must be kept in mind.
Table 8-8: Groundwater Susceptibility
MCD
Very High
Somewhat
High Moderate
Somewhat
Low Very Low
Total
Acres Acres % Acres % Acres % Acres % Acres %
C. Oshkosh 757 4% 0 0% 10,111 57% 77 0.4% 6,641 38% 17,650
T. Oshkosh 2,706 30% 0 0% 2,616 29% 0 0.0% 3,221 36% 8,895
T. Vinland 3 0% 0 0% 4,809 70% 0 0.0% 1,971 28% 6,918
T. Winneconne 1,168 79% 0 0% 114 8% 0 0.0% 55 4% 1,478
T. Algoma 1,317 20% 0 0% 4,936 73% 0 0.0% 494 7% 6,747
T. Omro 607 8% 0 0% 2,965 41% 0 0.0% 3,373 47% 7,179
T. Utica 0 0% 784 18% 1,603 36% 0 0.0% 2,040 46% 4,473
T. Nekimi 0 0% 1,886 12% 6,206 40% 428 2.8% 7,038 45% 15,557
T. Black Wolf 144 3% 0 0% 3,899 85% 0 0.0% 536 12% 4,579
Total
Extraterritorial 5,945 11% 2,669 5% 27,147 49% 428 0.8% 18,728 34% 55,825
Total 6,703 9% 2,669 4% 64,406 88% 933 1.3% 44,098 60% 73,475
Source: ECWRPC, 2016
Arsenic Contamination. Arsenic contamination of the groundwater supply has been an issue
in northeastern Wisconsin since the 1980’s. The main area of arsenic contamination runs
diagonally (southwest to northeast) across Winnebago and Outagamie Counties, and is closely
associated with the St. Peter Sandstone bedrock. The City lies to the east of the main band
of highest concern, but smaller areas of the St. Peter Sandstone bedrock may fall within
the City’s extraterritorial planning area.
In 2001, the US EPA lowered the arsenic drinking water standard from 50 to 10 parts per billion
(PPB), due to convincing data that found a relationship between consumption and deterioration
in health.
The DNR replaced its Arsenic Advisory Area Map in 2004 with a more stringent set of
regulations that apply to the Special Well Casing Depth Area (SWCDA). The regulations
require new wells in Outagamie and Winnebago County to meet construction, grouting, and
disinfection standards that have proven to lower arsenic levels to safe levels for human
consumption. Required well construction specifications are determined by town quarter section
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Depth to Groundwater. Groundwater depth can impact building foundations, utility and street
construction and other factors. Areas of high groundwater are generally found throughout the
extraterritorial area (Map 8-2). Approximately 40 percent (28,740 acres) of the City and the
surrounding area has groundwater present within two feet or less.
City of Oshkosh Comprehensive Plan Update 2040
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East Central Wisconsin Regional Planning Commission 8-15
Table 8-9: High Groundwater
MCD High Groundwater* Total acres
C. Oshkosh 4,998.75 17,6479.50
T. Oshkosh 3,022.65 8,894.92
T. Vinland 3,271.84 6,918.12
T. Winneconne 83.55 1,477.78
T. Algoma 2,884.02 6,746.87
T. Omro 3,046.27 7,179.18
T. Utica 2,036.58 4,472.84
T. Nekimi 7,393.94 15,556.60
T. Black Wolf 2,002.61 4,578.85
Total Extraterritorial 23,741.46 55,825.16
Total 28,740.21 73,474.66
*Groundwater less than 2 feet.
Source: ECWRPC, 2016
WILDLIFE RESOURCES
Wildlife Habitat
Numerous habitat types surrounding the City have the potential to support varied and abundant
wildlife and fish communities. These habitats consist of the Winnebago Pool Lakes and their
tributaries, woods, open wet meadows, and farmland.
Wildlife is threatened by the negative effects of development and storm water runoff
(both from urban and rural runoff sources). This has affected water quality and habitat health
throughout the Winnebago Pool Lakes and Lower Fox River.
Woodlands
Woodlands covered much of Winnebago and Outagamie Counties before settlement. At one
time, the area was primarily covered with deciduous hardwood forest. The Fox Valley’s reliance
on the paper industry attests to the regions’ forested history.
The tension zone is a wide corridor running from northwestern to southeastern Wisconsin that
marks the pre-settlement dividing line between northern and southern native plant species. The
tension zone has characteristics of both northern and southern Wisconsin climates, and
therefore, species from both areas. Oshkosh lies within this tension zone. The United
States Department of Agriculture has also divided the country into plant hardiness zones.
Those zones contain characteristic plant species that are hardy in that region. Generally
speaking, plants from any particular zone are hardy in that zone and those to the south, but not
to the north unless they are protected from the severe climate of that zone.
Oshkosh and the surrounding area are at the juncture of two different plant communities. They
are generally described as the boreal element and the prairie element. Characteristics typical of
both the Conifer-Hardwood Forest and the Southern-Hardwood Forest can be seen locally.
Woodlands are fragmented and limited in the City and the surrounding areas. Care must be
taken in the selection of trees for use in the City, including those used for landscaping, in
preserved parks and open spaces, and along the street. Street trees in particular have the
City of Oshkosh Comprehensive Plan Update 2040
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8-16 East Central Wisconsin Regional Planning Commission
hardest time adapting to their particular microclimates. Normally they are subject to stress from
soil compaction, heat, drought conditions, lack of root space, salt, road pollutants, and impacts
from all sorts of vehicles. The typical street tree usually lives only a fraction of its potential life
span. Street trees should be selected from a pallet of trees that adapt well to street conditions
and are suitable for the local area. There should also be diversity in the species selected to
reduce the spread of tree and shrub diseases.
Forests and woodlands can be classified into one of two categories: general (unplanted)
woodlands and planted woodlands. General woodlands are naturally occurring forests and
hedgerows. Planted woodlands are tree plantations in which trees are found in rows. These
areas include orchards, timber tracts, Christmas tree plantations and other general uses.
There are no planted woodlands and approximately 161 acres of general woodlands in
the City (Table 8-9, Map 8-5). In total this makes up only one percent of the land cover in the
City.
Table 8-10: Woodlands
MCD Planted
Woodlands
General
Woodlands
Total
Woodlands
Total acres Percent
C. Oshkosh 0 161.59 161.59 17,649.50 1%
T. Oshkosh 1.3 352.7 354.1 8,894.9 4%
T. Vinland 26.3 333.7 360.0 6,918.1 5%
T. Winneconne 0.0 10.8 10.8 1,477.8 1%
T. Algoma 552.2 264.4 319.6 6,746.9 5%
T. Omro 59.2 603.5 662.7 7,179.2 9%
T. Utica 31.2 287.5 318.7 4,4728 7%
T. Nekimi 16.9 840.9 857.8 15,556.6 6%
T. Black Wolf 201.4 503.5 704.9 4,578.9 15%
Total Extraterritorial 391.5 3,197.0 3,588.5 55,825.2 6%
Total 391.5 3,358.6 3,750.1 73,474.7 5%
Source: ECWRPC, 2016
Rare, Threatened and Endangered Species
The Wisconsin Department of Natural Resources maintains a database of rare, threatened and
endangered species and natural communities in Winnebago County. In order to protect these
species and communities, the exact location is not available to the public; however, Winnebago
County does have a copy of this database. Whenever a request comes into the county for
development, this database is consulted prior to granting approval.
The Wisconsin DNR Natural Heritage Inventory (NHI) maintains an online database which
provides statewide inventory of known locations and conditions of rare and endangered species,
by town. A review of the NHI Township Search Tool (for the Towns of Oshkosh, Vinland,
Winneconne, Algoma, Utica, Nekimi, and Black Wolf) database revealed a number of
species (fish, bird, turtle, butterfly, and plant) for the City and towns surrounding the City
(Table 8-13). This database is incomplete since not all areas within the state have been
inventoried. Thus, the absence of a species within this database does not mean that a particular
species or community is not present. Nor does the presence of one element imply that other
elements were surveyed for but not found. Despite these limitations, the NHI is the state’s most
comprehensive database on biodiversity and is widely used. Generalized versions of the data
base are included on Map 8-5.
City of Oshkosh Comprehensive Plan Update 2040
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Exotic and Invasive Species
Non-native aquatic and terrestrial plants and animals, commonly referred to as exotic species,
have been recognized in recent years as a major threat to the integrity of native habitats and
the species that utilize those habitats. Some of these exotic species include purple loosestrife,
buckthorn, garlic mustard, multi-colored Asian lady beetles, Eurasian water milfoil, emerald ash
borer, and gypsy moths. They displace native species, disrupt ecosystems, and affect citizens’
livelihoods and quality of life. The invasive species rule (Wis. Adm. Code Ch. NR40) makes it
illegal to possess, transport, transfer, or introduce certain invasive species in Wisconsin without
a permit.
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Table 8-11: WDNR Natural Heritage Inventory
T.
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Acipenser fulvescens Lake Sturgeon SC/H Fish X X
Ardea alba Great Egret THR Bird X
Armoracia lacustris Lake Cress END Plant X
Asclepias ovalifolia Dwarf Milkweed THR Plant X
Asclepias purpurascens Purple Milkweed END Plant X
Bird Rookery Bird Rookery SC Other X X
Botaurus lentiginousus American Bittern SC/M Bird X
Chlosyne gorgone Gorgone Checker Sport SC/N Butterfly X
Cuscuta polygonorum Knotweed Dodder SC Plant X
Cypripedium candidum White Lady's-slipper THR Plant X
Emergent marsh Emergent Marsh NA Community X
Emydoidea blandingii Blanding's Turtle SC/P Turtle X
Erimyzon sucetta Lake Chubsucker SC/N Fish X X
Eurybia furcata Forked Aster THR Plant X
Falco peregrinus Peregrine Falcon END Bird X
Glyptemys insculpta Wood Turtle THR Turtle X
Gymnocladus dioicus Kentucky Cofee-tree SC Plant X
Luxilus chrysocephalus Striped Shinner END Fish X X
Mesic prairie Mesic Prairie NA Community X
Migratory Bird Concentration Migratory Bird
Concentration SC Other X X X
Notropis anogenus Pugnose Shiner THR Fish X X
Platanthera leucophaea Eastern Prairie White
Fringed Orchid END LT Plant X X
Ruellia humilis Hairy Wild Petunia END Plant X
Southern sedge Meadow Southern Sedge Meadow NA Community X
Sterna forsteri Forster's Tern END Bird X X
Sterna hirundo Common Tern END Bird X
Thalictrum revolutum Waxleaf Meadowrue SC Plant X X
Verbena simplex Narrow-leaved Vervain SC Plant X
Wet-mesic prairie Wet-mesic Prairie NA Community X X
Xanthocephalus xanthocephalus yellow-headed Blackbird SC/M Bird X
Source: WDNR Natural Heritage Inventory 2016 search, http://dnr.wi.gov/topic/NHI/data.asp?tool=township
Township Search
Scientific Name Common Name WI
Status
Federal
Status Group
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-19
PARKS, OPEN SPACE AND RECREATIONAL RESOURCES
WDNR and Public Lands
The WDNR owns and manages approximately 113 acres of land within the City and
approximately 627 acres within the extraterritorial area. The WDNR’s on-line Public Lands
mapping application (at http://dnr.wi.gov/topic/SurfaceWater/swdv) highlight the following
Knowles-Nelson Stewardship Grant properties and state owned properties:
Butte des Morts Wetlands;
Asylum Bay Statewide Habitat and Rough Fish Station;
Wiouwash State Trail;
City of Oshkosh Sawer Creek Parkway;
City of Oshkosh Steiger Park (WCL);
Town of Omro, Omro Town Park; and
Winnebago County Shangri La Point Preserve.
Environmental Corridors
Environmental corridors are continuous systems of open space created by the natural linkages
of environmentally sensitive lands such as woodlands, wetlands, and habitat areas. They
provide important routes of travel for a variety of wildlife and bird species. Protecting these
corridors from development protects habitat and keeps nonpoint source pollution to a minimum,
thus ensuring that high quality groundwater and surface water is maintained and habitat is not
impaired.
Important environmental corridors within the City and surrounding area are associated
with lake shorelines and the named and unnamed streams with natural vegetation
scattered throughout the area. These areas should be protected from development by
implementing buffer strips where land disturbing activities are limited within the established
buffer area.
WASTE AND POLLUTION
Solid and Hazardous Waste Sites
The Solid and Hazardous Waste Information Management System (SHWIMS) provides access
to information on sites, and facilities operating at sites, that are regulated by the Wisconsin
Department of Natural Resources’ (WDNR) Waste and Materials Management (WMM)
program. The SHWIS on-line database activity information, including:
Engineered and licensed solid waste disposal facilities;
Older unlicensed waste disposal sites (e.g. town dumps);
Licensed waste transporters;
Hazardous waste generators; and
Composting sites, wood-burning sites, waste processing facilities and more.
According to SHWIMS, there are 328 operating sites listed for Oshkosh. The directory was
also checked for operating sites with the City’s extraterritorial areas.
City of Oshkosh Comprehensive Plan Update 2040
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8-20 East Central Wisconsin Regional Planning Commission
A search of the database for solid waste landfills / disposal facilities indicates that there
are 16 sites in the City. Of the 16 sites 3 are currently operating.
Air Quality
Air quality, especially good air quality, is often taken for granted. Clean air is vital to maintain
public health. Sound local and regional planning can minimize negative impacts to the air.
Development patterns can impact automobile use, which in turn impacts air quality. Emissions
from certain industries can also impact air quality. A development patterns become more
spread out, the location of jobs and housing become more segregated and distant from one
another.
Since alternative modes of transportation are, at present day, less viable or unavailable in some
instances, people rely more on the automobile to get around. Changing lifestyles are also a
major factor. Two income families are causing people to find housing that splits the difference
between the two employment locations. Since vehicle travel generates air pollutant emissions,
greenhouse gas emissions, and noise, local decisions about what types, where and how new
development occurs can have an impact on air quality.
The closest ozone air quality monitoring site is located at the Thrivent facility at 4432
Meade Street in Appleton (Outagamie County). The primary and secondary National Ambient
Air Quality standard for ozone is 0.075 ppm.15 Monitored values of ozone represent ground
level ozone, which is not directly emitted into the air. Ozone concentrations typically reach
higher levels on hot sunny days in urban environments; it can be transported long distances by
wind. The 8-hour design values (ppb) were not exceeded at the Outagamie County site
between 1997 and 2012.16 Particulate matter (PM) is a mixture of solid particles and liquid
droplets. It includes acids, organic chemicals, metals, soil or dust, and allergens. According to
the Wisconsin Air Quality Trends, 2014, Outagamie County did not exceed the primary and
secondary National Ambient Air Quality Standard for particulate matter between 2001
and 2013.
CULTURAL RESOURCES
Cultural resources, like natural resources are valuable assets which should be preserved.
These resources define a community’s unique character and heritage. Included in this section
is an inventory of historic buildings, sites, structures, objects, archeological sites and districts.
State and National Register of Historic Places
The Wisconsin Historical Society’s Division of Historical Preservation (DHP) is a clearing house
for information related to the state’s cultural resources including buildings and archaeological
sites. A primary responsibility of the DHP is to administer the State and National Register of
Historic Places programs. The National Register is the official national list of historic properties
in the United States that are worthy of preservation. The program is maintained by the National
Park Service in the U.S. Department of the Interior. The State Register is Wisconsin’s official
listing of state properties determined to be significant to Wisconsin’s heritage. The inventory is
maintained by the DHP. Both listings include sites, buildings, structures, objects, and districts
15 Primary standard limits are set to protect public health, while secondary standards are set to protect public welfare. 16 Wisconsin Department of Natural Resources, Wisconsin Air Quality Trends, April 2015.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-21
that are significant in national, state, or local history. Sites are based on the architectural,
archaeological, cultural, or engineering significance. (For ease of discussion, “National
Register” is used to refer to both programs. In Wisconsin, if a property is listed on one then it is
typically listed on the other.
At the present, 36 properties / districts within the City are listed on the National Register.
The properties listed in the National Register include:
Table 8-12: City of Oshkosh National Register and State Register of Historic Places
Reference # Location Historic Name
94001368 Roughly, Algoma Blvd. from
Woodland Avenue to Hollister
Avenue
Algoma Boulevard Historic District
74000140 1174 Algoma Blvd. Algoma Boulevard Methodist Church
82000730 1157 High Avenue Amos House
82000731 1010 Bayshore Drive Bowen, Abraham Briggs, House
95001505 17 W. Sixth Avenue Brooklyn No. 4 Fire House
82005125 1610 Doty Street Chief Oshkosh Brewery
82000732 224 State Street Daily Northwestern Building
95000247 502 N. Main Street First Methodist Church
74000142 110 Church Avenue First Presbyterian Church
82000733 132-140 High Street and 9
Brown Street
Frontenac
84003824 1200 Washington Avenue Guenther, Richard, House
78000151 1149 Algoma Blvd. Hooper, Jessie Jack, House
94000156 Roughly bounded by W.
Irving Avenue, Franklin St.,
Church Avenue, Wisconsin
St. and Amherst Avenue
Irving Church Historic District
82000734 1449 Knapp Street Lutz, Robert, House
99001174 809 Ceape Avenue Mayer--Banderob House
83004365 234 Church Avenue Morgan, John R., House
13000783 North Main Street generally
bounded by Nevada Avenue
and Huron Avenue
North Main Street Bungalow Historic
District
Roughly, N. Main Street from
Parkway Avenue to Algoma
Blvd., and Market Street NW.
to High Avenue
North Main Street Historic District
85002334 240 Algoma Blvd. Orville Beach Memorial Manual Training
School
74000144 100 High Avenue Oshkosh Grand Opera House
84000722 Buildings at 800, 842, and
912 Algoma Blvd., and 845
Elmwood Avenue
Oshkosh State Normal School Historic
District
75000086 Address Restricted Overton Archeological District
79000121 842 Algoma Blvd. Oviatt House
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78000152 1410 Algoma Blvd. Paine Art Center and Arboretum
86001392 Off Congress Avenue roughly
between High, New York, and
Summit avenues., and Paine
Lumber access road
Paine Lumber Company Historic District
84000728 765 Algoma Blvd. Pollock, William E., Residence
93000025 1120 Algoma Blvd. Read School
03000578 1901 Algoma Boulevard Riverside Cemetery
94001212 903 Oregon Street Security Bank
74000145 203 Algoma Blvd. Trinity Episcopal Church
84000732 751 Algoma Blvd. Wall, Thomas R., Residence
86001129 Roughly bounded by Merritt
Avenue Linde and Lampert
streets, Washington Avenue,
Bowen and Evan streets
Washington Avenue Historic District
93000068 1141 Algoma Blvd. Waterman, S. H., House
82000736 415 Jackson Street Winnebago County Courthouse
82000737 220 Washington Ave. Wisconsin National Life Insurance Building
Source: National Register, Accessed from the Wisconsin State Historical Society
The National Register is not a static inventory. Properties are constantly being added, and, less
frequently, removed. It is, therefore, important to access the most updated version of the
National Register properties. This can be found by accessing the DHP website
(http://www.wisconsinhistory.org) or by contacting the Wisconsin State Historical Society.
Architecture and History Inventory (AHI)
In order to determine those sites that are eligible for inclusion on the National Register, the
DHP frequently funds historical, architectural, and archaeological surveys of municipalities and
counties within the state. Surveys are also conducted in conjunction with other activities such
as highway construction projects.
A search of the DHP’s online Architecture and History Inventory (AHI) reveals a total of
1,777 sites listed for Oshkosh.17
Inclusion in this inventory conveys no special status, rights, restrictions, or benefits to owners
of these properties. It simply means that some type of information on these properties exists in
the DHP’s collections. AHI is primarily used as a research and planning tool. Like the National
Register, this is not a static inventory. Properties are constantly being updated. Information can
be found on the DHP web site (http://www.wisconsinhistory.org).
17 Accessed 11/21/2016.
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East Central Wisconsin Regional Planning Commission 8-23
Archaeological Sites Inventory
An inventory similar to the AHI exists for known archaeological sites across the state: the
Archaeological Sites Inventory (ASI). Due to the sensitive nature of archaeological sites,
information as to their whereabouts is not currently made available online. This information is
distributed only on a need-to-know basis. Archaeological sites are added to ASI as they are
discovered; discovery is a continual process. For technical assistance and up-to-date
information on sites within the City and the 3.0 mile extraterritorial area, contact State Historic
Preservation Officer at the Wisconsin State Historical Society.
Wisconsin Historical Markers
Wisconsin historical markers identify, commemorate and honor important people, places, and
events that have contributed to the state’s rich heritage. The Wisconsin Historical Markers
Program is a vital education tool, informing people about the most significant aspects of
Wisconsin’s past. The Society’s Division of Historic Preservation administers the Wisconsin
Historic Markers Program. Applications are required for all official State of Wisconsin historical
markers and plaques. There are five historical markers located in the City.
Table 8-13: Wisconsin Historical Markers in City of Oshkosh
Marker # Name Location
27 Knaggs Ferry Rainbow Park, near junction of
Veterans Tr and Punhoqua St,
Oshkosh
183 University of Wisconsin-
Oshkosh
Temporarily Relocated
211 S.J. Wittman - Aircraft
Designer, Race Pilot, Inventor
Wittman Field Airport, 525 W 20th Ave,
Oshkosh
347 Edgar Sawyer House Oshkosh Public Museum, 1331 Algoma
Blvd, Oshkosh
560 Elizabeth Batchelder Davis
Children’s Home
1260 N Westfiled St, Oshkosh
Source: Official List of Wisconsin’s State Historic Markers, Accessed from the Wisconsin State Historical
Society 11/21/16
Museums/Other Historic and Cultural Resources
Museums protect valuable historic resources for community enjoyment. Residents are
welcome to learn from the exhibits and amenities they have to offer. There are two museums
in the City. Several museums are located in close proximity to the City.
Table 8-14: Museums in City of Oshkosh
Museum Location
Oshkosh Public Museum 1331 Algoma Boulevard, Oshkosh
The Paine Art Center and Gardens 1410 Algoma Boulevard, Oshkosh
Source: City of Oshkosh, 2017
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Local Historic Preservation Commissions and Societies
The Certified Local Government (CLG) program was enacted as part of the National Historic
Preservation Act Amendments of 1980. It has been established in Wisconsin to further
encourage and assist historic preservation by local governments. In Wisconsin, a city, village,
county, or town can be certified by Wisconsin’s State Historic Preservation Office and the
Department of the Interior as a CLG if it meets basic criteria. The City is a Certified Local
Government (CLG).
Historic Preservation Commissions are part of local governments and are established through
local preservation ordinances. A commission’s size, responsibilities, and authority depend on
local laws and the needs of the community. The City has established the Oshkosh
Landmarks Commission. In 1983, the Landmarks Commission was established by the
Oshkosh Common Council. The Commission is charged with fostering protection,
enhancement and perpetuation of historic improvements and districts along with safeguarding
and fostering civic pride in the City’s historic and cultural heritage.
The Wisconsin State Historical Society also maintains a list of local historical societies that are
affiliated with the Wisconsin Council for Local History.18 The Winnebago County Historical and
Archeological Society are affiliated with the Wisconsin Council for Local History.
The Winnebago County Historical and Archeological Society were formed in 1922 at the
Oshkosh Public Library. It moved to its current home in the Edgar Sawyer home in 1924. Its
mission is to represent, serve and involve community members in preserving the history of our
area.
Local History19
Oshkosh is located on the eastern shore of Lake Winnebago, halfway between the Fox Cities
and Fond du Lac, in Winnebago County. The Ho-Chunk Indians lived on the site of modern
Oshkosh for centuries before white settler Webster Stanley arrived in 1836. Within several
months of his arrival, Stanley had established a trading post, tavern, and an inn. More than
100 people lived in the area by 1840, and soon, the Villages of Brooklyn, on the south
side of the Fox River, and Athens, on the north, merged and officially adopted the name
Oshkosh after the Menominee chief (1795-1858).
The waters of the Fox River empty into Lake Winnebago at Oshkosh, which provided the City
with the power to build lumber and gristmills, as well as furniture and equipment factories.
Morris Firman built the City's first sawmill in 1847 and within several years, sawmills lined the
Fox River. The great Chicago fire of 1871 proved a boon to Oshkosh's lumber trade, as much
of the lumber used to rebuild the City came from Oshkosh mills. By 1873, 24 sawmills, 15
shingle mills, and seven sash and door factories were in operation, earning Oshkosh the name
"Sawdust City."
In 1856, Oshkosh resident Coles Bashford (1816-1878) was elected Wisconsin's first
Republican governor in the most hotly contested election in Wisconsin history. The state
18 http://www.wisconsinhistory.org/ . 19 Sources: Oshkosh, Wisconsin - A Brief History, Wisconsin Historical Society, accessed on November 21, 2016.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-25
supreme court ultimately decided the case in Bashford's favor over Democratic incumbent
William Barstow (1813-1865).
In the summer of 1898, 1,500 Oshkosh woodworkers formed a union and launched a strike that
lasted for 14 weeks. Many women participated in the strike, throwing eggs and bags of pepper
at the deputies sent to quell the disturbance.
On November 21, 1968, the University of Wisconsin-Oshkosh was rocked by "Black Thursday"
as protestors occupied the president's office demanding more black teachers, classes on
African American history, black speakers on campus, and a black cultural center. Nearly 100
student protestors were arrested.
Oshkosh is probably best known for OshKosh B'Gosh, a manufacturer of overalls, adult work
clothing, and children's clothing founded in 1895. Oshkosh is also home to the EAA AirVenture
Oshkosh, the world's largest airshow. The airshow is held at Wittman Regional Airport, named
for Oshkosh aviator S.J. Wittman (1904-1995), pilot and small aircraft designer. The City is also
home to the Oshkosh Corporation, one of the world's largest manufacturers of emergency,
utility, and military vehicles.
POLICIES AND PROGRAMS
Policies and programs related to the Agricultural, Natural and Cultural resources element can
be found in Appendix D.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
Type Reference Content
Goal ANC1
Promote the development of urban agricultural programs and
activities.
Objective ANC1.1 Support agricultural opportunities for the community.
Action ANC1.1.1
Develop a planned system of temporary and permanent community
garden sites.
Action ANC1.1.2 Maintain and support farmer’s market programs.
Action ANC1.1.3 Explore options for community-based agricultural harvest programs.
Type Reference Content
Goal ANC2
Protect and preserve wetlands, shorelands, and other
environmentally sensitive areas.
Objective ANC2.1
Participate in programs that protect and conserve environmentally
sensitive areas.
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Chapter 8: Agricultural, Natural & Cultural Resources
8-26 East Central Wisconsin Regional Planning Commission
Action ANC2.1.1
Complete the Fox River Corridor with a looped trail system with an
environmentally sensitive design for the shoreline.
Action ANC2.1.2
Participate in the local Water Quality Initiative, including
participating in the lake council for Lake Winnebago.
Action ANC2.1.3
Participate in air quality meetings and educational promotions with
the DNR and EPA.
Action ANC2.1.4
Revise Zoning Ordinance to address:
a. Design guidelines for land next to existing and future parks;
b. Impervious surface in the floodplain.
Action ANC2.1.5
Participate in the Winnebago Waterways project which seeks to
update the lakes management plan.
Type Reference Content
Goal ANC3
Protect aquatic and wildlife habitat when managing
development in proximity to environmental corridors, riparian
areas, and woodlands.
Objective ANC3.1
Develop programs that protect the environmental features during
development.
Action ANC3.1.1
Continue to educate and involve public regarding:
a. Water conservation practices.
b. Non-point source pollution.
c. Stormwater management techniques that address improving
quality and lessening the quantity of runoff.
d. Chemical fertilization, weed and pest control for lawns.
Type Reference Content
Goal ANC4
Protect and develop passive and active recreation resources
(e.g. parks, trails, hunting and fishing opportunities).
Objective ANC4.1
Coordinate park purchases and programs that increase the amount
of and connect recreational opportunities within the City and with
other agencies and local units of government.
Action ANC4.1.1
Update the “Pedestrian and Bicycle Circulation Plan”, including:
a. Further identify and develop a linked network of parks and trails
around and within the City.
b. Complete the Fox River Corridor looped trail system with an
environmentally sensitive design for the shoreline.
Action ANC4.1.2
Implement recommendations of the “Comprehensive Outdoor
Recreation Plan”, including officially mapping parks and trails.
Action ANC4.1.3
Participate in quarry reclamation planning processes for quarries
within the City and extraterritorial area.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
East Central Wisconsin Regional Planning Commission 8-27
Type Reference Content
Goal ANC5
Promote an aesthetically pleasing natural environment
throughout the City.
Objective ANC5.1
Develop programs that address the aesthetic quality of new and
existing development.
Action ANC5.1.1
Identify and implement aesthetic improvements for gateways/key
corridors into and through the City, including update of the “Highway
41 Corridor Plan”.
Action ANC5.1.2
Revise Land Subdivision Ordinance to address:
a. Alternative methods to stormwater management;
b. Increased tree retention during development;
c. Eliminating conflicts between stormwater management and
development requirements.
Action ANC5.1.3
Research and propose implementation of billboard reduction
programs for the City, including highway corridors into the City.
Action ANC5.1.4
Implement programs that mitigate the effect of emerald ash borer
and other destructive insects and diseases.
Action ANC5.1.5
Utilize the Forestry Management Plan and work with Public Works
to avoid tree plantings that could damage infrastructure.
Type Reference Content
Goal ANC6
Promote the on-going viability of publicly and privately owned
cultural resources.
Objective ANC6.1
Develop partnerships and programs that promote local resources to
citizens and visitors.
Action ANC6.1.1
Maintain and improve the visibility of and accessibility to our historic
and cultural resources.
Action ANC6.1.2
Pursue private/public partnerships to support the city owned and
operated resources.
Action ANC6.1.3
Increase commitment to maintain and improve historic and cultural
resources owned and operated by the City.
Type Reference Content
Goal ANC7 Create a strong and vibrant cultural tourism program.
Objective ANC7.1 Coordinate events and advertising of cultural events for visitors.
Action ANC7.1.1
Conduct a marketing and implementation study for a cultural
tourism program.
Action ANC7.1.2
Pursue funding sources for implementation of cultural tourism
programming.
City of Oshkosh Comprehensive Plan Update 2040
Chapter 8: Agricultural, Natural & Cultural Resources
8-28 East Central Wisconsin Regional Planning Commission
Type Reference Content
Goal ANC8 Promote and publicize cultural events and sites within the City.
Objective ANC8.1
Develop programs that increase awareness of local events and
sites.
Action ANC8.1.1
Pursue private/public partnerships to support the city owned and
operated resources.
Action ANC8.1.2
Maintain the “Oshkosh Events” website (www.oshkoshevents.com)
with updated information regarding cultural resources and activities.
Action ANC8.1.3
Continue coordination with OASD and UWO on historical and
cultural resource curriculum.
Type Reference Content
Goal ANC9
Encourage preservation and protection of the historic built
environment.
Objective ANC9.1 Develop programs that identify and promote local historic resources.
Action ANC9.1.1
Promote identification of existing and survey potential historic
districts and neighborhood boundaries.
Action ANC9.1.2 Develop Historic Preservation Plan for the City.
Type Reference Content
Goal ANC10
Maintain, improve, and increase public access to the
waterfront.
Objective ANC10.1
Continue to provide and promote opportunities for recreational
events on and public access to the Lake Winnebago and Fox River
system.
Action ANC10.1.1
Upgrade and improve the city’s way-finding signage system,
including to the lake and river access points.
Type Reference Content
Goal ANC11 Continue to improve the City’s overall aesthetic quality.
Objective ANC11.1
Develop programs that update and create standards to address the
aesthetic quality of new and existing development.
Action ANC11.1.1 Explore opportunities for corridor plans into and through the City.
Type Reference Content
Goal ANC12
Ensure ongoing communication regarding agricultural, natural
and cultural resource issues and activities.
Objective ANC12.1
Adopt policy to verify ongoing communication with agricultural,
natural and cultural resource stakeholders.
Action ANC12.1.1
Continue city staff involvement with Oshkosh Landmarks
Commission.
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Map 8-1: City of Oshkosh Comprehensive Plan UpdateFarmland Preservation
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Map 8-2: City of Oshkosh Comprehensive Plan UpdateEnvironmental - Soils
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Sand and Gravel Suitability
High Bedrock (5 ft)
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High Groundwater (2 ft)
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Map 8-3: City of Oshkosh Comprehensive Plan UpdateEnvironmental - Water
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Map 8-4: City of Oshkosh Comprehensive Plan UpdateGroundwater ContaminationPotential
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More Susceptible toGroundwater Contamination
Less Susceptible toGroundwater Contamination
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Map 8-5: City of Oshkosh Comprehensive Plan UpdateEnvironmental - Conservation
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CHAPTER 9
INTERGOVERNMENTAL COOPERATION
CHAPTER 9: INTERGOVERNMENTAL COOPERATION
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 9-1
Goals…………………………………………………………………………………………………… . 9-1
Key Summary Points………………………………………………………………………………….. 9-1
Inventory and Analysis………………………………………………………………………………… 9-2
Governmental Units and Relationships to the City……….......................................................... 9-2
Policies and Programs………………………………………………………………………….......... 9-4
Objectives and Actions………………………………………………………………………………... 9-4
City of Oshkosh Comprehensive Plan Update 2040
Chapter 9: Intergovernmental Cooperation
East Central Wisconsin Regional Planning Commission 9-1
CHAPTER 9: INTERGOVERNMENTAL COOPERATION
INTRODUCTION
The relationship a municipality has with school districts, neighboring communities, the county,
the Regional Planning Commission, the state, and the federal government can impact residents
in terms of taxation, planning, service provision, and siting of public facilities. An examination of
these relationships and the identification of existing or potential conflicts can help a municipality
address these situations in a productive manner.
GOALS
The following goals were developed for this element. Goals set direction, provide purpose and
accountability and provide a roadmap. Supporting Objectives and Actions are included at the
end of this element.
Type Reference Content
Goal IC1
Establish mutually-beneficial relations with local public,
parochial, technical and university educational systems.
Goal IC2 Establish mutually-beneficial relations with other jurisdictions.
Goal IC3
Adopt and maintain intergovernmental agreements with all
surrounding towns.
Goal IC4
Ensure ongoing communication regarding intergovernmental
issues and activities.
KEY SUMMARY POINTS
The following list summarizes key issues and opportunities identified in the element. The reader
is encouraged to review the “Inventory and Analysis” portion of the element for more detail.
Governmental Units and Relationships to the City
a) The City shares its borders with the Towns of Oshkosh, Algoma, Nekimi and Black Wolf.
b) The City is served by the Oshkosh Area School District.
c) The Oshkosh School District operates recreational programming for the City.
d) The City is part of the Oshkosh Metropolitan Planning Organization (MPO).
e) The Winnebago County Health Department (WCHD) provides public health services for
the City.
f) Library service to City residents is provided through the Oshkosh Public Library System.
g) The library receives the majority of its revenue from local municipalities and the county.
h) The City works with county departments regarding public health, solid waste/recycling,
and Wittman Regional Airport.
i) ECWRPC provides planning and technical assistance to counties, communities,
businesses, interest groups and individuals within its region.
j) The WDNR works with the City in the planning and development of waterfront areas.
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Chapter 9: Intergovernmental Cooperation
9-2 East Central Wisconsin Regional Planning Commission
k) WisDOT works with the Oshkosh Area MPO, and local municipalities to evaluate existing
transportation infrastructure including bicycle and pedestrian trails as well as assists in
planning efforts for future trails.
l) The Algoma, Black Wolf and Nekimi Boundary Agreements identify areas of future
growth for the City.
INVENTORY AND ANALYSIS
The following provides an inventory and analysis for intergovernmental cooperation.
GOVERNMENTAL UNITS AND RELATIONSHIPS TO THE CITY
Adjacent Communities
The City shares its borders with the Towns of Oshkosh, Algoma, Nekimi and Black Wolf.
As a result, the land use planning; road system planning and maintenance; trail planning,
construction, and maintenance; other planning issues should be coordinated between
municipalities. The City has certain statutory powers and authorities including the power to
annex lands and exercise extraterritorial plat review and zoning in the neighboring towns. The
City utilizes annexation upon request and uses a three-mile extraterritorial plat review that
includes the Towns of Algoma, Black Wolf, Nekimi, Omro, Oshkosh, Utica, Vinland and
Winneconne.
School Districts
The City is served by the Oshkosh Area School District. The district operates fifteen
elementary schools, five middle schools, two high schools and four charter schools. Over
10,000 students are enrolled in the district. The Oshkosh School District operates
recreational programming for the City. The City and the district communicate regularly and
collaborate as needed.
The City is served by the Fox Valley Technical College. One campus and three education
centers are located within the City. Opportunities may exist to partner with the Technical
College on projects that would benefit the residents in the City.
The University of Wisconsin at Oshkosh is located within the City. It is the third largest
university in the state with nearly 14,000 students. The university offers 60 majors, more than
100 minors, 15 graduate programs and a doctoral program.
Community Facilities
The City is part of the Oshkosh Metropolitan Planning Organization (MPO). The MPO
encompasses the City and the Towns of Algoma, Black Wolf, Nekimi, Oshkosh and Vinland.
The East Central Wisconsin Regional Planning Commission is the designated governing body
for the MPO and as such works with jurisdictions within the MPO and certifies that planning
requirements are met. The Oshkosh Police Department provides police services for the City
and is one of three police agencies in the state to be accredited through the Commission on
Accreditation for Law Enforcement Agencies (CALEA) and one of 19 police agencies that have
earned Wisconsin Law Enforcement Accreditation (WILEAG). Fire protection, Fire Prevention
and Emergency Medical Services for the City is provided by the City of Oshkosh Fire
City of Oshkosh Comprehensive Plan Update 2040
Chapter 9: Intergovernmental Cooperation
East Central Wisconsin Regional Planning Commission 9-3
Department. The department operates six fire stations. The Winnebago County Health
Department (WCHD) provides public health services for the City.
Library service to City residents is provided through the Oshkosh Public Library in the
City. The library is part of the Winnefox Library System. The Winnefox Library System is one
of 17 library systems in the state and is a federation of the public libraries in Fond du Lac,
Waushara, Winnebago, Marquette and Green Lake counties. Residents of the system may use
any of the public libraries in the five counties. Library systems are designed to provide
expanded library services to more people without making additional large expenditures. The
Library receives the majority of its revenue from local municipalities and the county.
Communication and coordination between the City and providers of utility infrastructure (electric,
natural gas, telecommunication, etc.), WisDOT and the Winnebago County Highway
Department ensures that road construction and utility upgrades will run smoothly and that all
work is done before restoration is completed. This lessens the chance that new road surfaces
and restored terraces will need to be excavated shortly after construction is complete. Likewise,
local governments, school districts and businesses working together on technological upgrades,
ensure that these upgrades are made in concert without duplication of efforts so that a common
goal can be achieved.
Winnebago County
The City is located in Winnebago County. The City works with county departments
regarding public health, solid waste/recycling, and Wittman Regional Airport. City
residents have access to county departments and services including senior citizen and other
social services, recreational resources, property information, birth and death certificates, and
others. The City and the county continue to maintain open communications with one another
that work to foster good working relationships and mutual respect.
Regional
East Central Wisconsin Regional Planning Commission. Winnebago County, and thus the
City, is a member of the East Central Wisconsin Regional Planning Commission (ECWRPC).
ECWRPC provides planning and technical assistance to counties, communities,
businesses, interest groups and individuals within its region. These services include
environmental management, housing, demographics, economic development, transportation
(including Metropolitan Planning Organization (MPO) work), community facilities (including
Sewer Service Area (SSA) planning responsibilities), land use, contract planning, and others.
ECWRPC has worked with the City on several projects over the years including transportation
and sewer service area work and the current comprehensive plan update.
State
Wisconsin Department of Natural Resources (WDNR). The WDNR is responsible for the
regulation, protection, and sustained management of natural resources within the state. The
WDNR operates various programs in water and air quality management, habitat preservation,
recreational trail development, and other programs. The WDNR works with the City in the
planning and development of waterfront areas.
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Wisconsin Department of Transportation (WisDOT). WisDOT deals with issues related to all
transportation uses in the planning area. WisDOT works with the Oshkosh Area MPO, and
local municipalities to evaluate existing transportation infrastructure including bicycle
and pedestrian trails as well as assists in planning efforts for future trails.
Intergovernmental Agreements
Commonly referred to locally as the “boundary agreements”, the City has developed
intergovernmental agreements with the Towns of Algoma, Black Wolf and Nekimi. The Algoma,
Black Wolf and Nekimi Boundary Agreements identify areas of future growth for the City.
POLICIES AND PROGRAMS
Policies and programs related to the Intergovernmental Cooperation element are found in
Appendix D.
OBJECTIVES AND ACTIONS
The following objectives and actions represent the steps and resources needed to meet the
goals identified in this element. Objectives are specific activities to accomplish goals. Objectives
should be clear, measurable and concise. Actions represent the steps and resources needed to
meet objectives.
Type Reference Content
Goal IC1
Establish mutually-beneficial relations with local public,
parochial, technical and university educational systems.
Objective IC1.1 Provide efficient and coordinated services.
Action IC1.1.1
Participate in planning and implementation efforts of schools system
plans.
Action IC1.1.2
Participate with the implementation and revisions of the University of
Wisconsin-Oshkosh Campus Master Plan, to ensure consistency
with this comprehensive plan.
Action IC1.1.3
Provide information to public, parochial, technical and university
school systems on an on-going basis that assists in their planning
efforts.
Action IC1.1.4 Explore joint purchasing and personnel where applicable.
Action IC1.1.5 Coordinate with University of Wisconsin-Oshkosh planning efforts.
Action IC1.1.6
Share land use information with school systems that may impact
their boundaries and services.
Type Reference Content
Goal IC2 Establish mutually-beneficial relations with other jurisdictions.
Objective IC2.1
Establish effective intergovernmental land use policies within the
extraterritorial jurisdiction area.
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Chapter 9: Intergovernmental Cooperation
East Central Wisconsin Regional Planning Commission 9-5
Action IC2.1.1
Utilize the City's Pedestrian and Bicycle Circulation Plan to
coordinate installation of sidewalks and trails that benefit non-
motorized traffic, including school children.
Action IC2.1.2
Participate in the comprehensive and strategic planning processes of
other jurisdictions (towns, county, East Central WI RPC, etc.).
Action IC2.1.3
Continue to review extraterritorial plats and land divisions to avoid
land use conflicts.
Action IC2.1.4
Participate in air quality meetings and educational promotions with
the DNR and EPA.
Action IC2.1.5
Participate in the local Water Quality Initiative, including participating
in the Lake Council for Lake Winnebago.
Action IC2.1.6
Where pertinent, notify jurisdictions about proposed developments
and rezoning's.
Action IC2.1.7
Participate in planning processes that go beyond municipal
boundaries, such as highway and stormwater drainage projects.
Action IC2.1.8
Review extraterritorial plans and officially map future streets,
highways, parks, and other infrastructure to ensure adequate future
facilities.
Action IC2.1.9 Continue collaboration with I-41 initiative.
Action IC2.1.10 Continue collaboration with Winnebago County.
Action IC2.1.11 Continue collaboration with East Central WI RPC.
Action IC2.1.12 Continue collaboration with state elected officials and agencies.
Objective IC2.2
Explore intergovernmental agreements and contracts for services
outside of land use (police, garbage, etc.)
Action IC2.2. Explore potential bus and taxi agreements with surrounding towns.
Type Reference Content
Goal IC3
Adopt and maintain intergovernmental agreements with all
surrounding towns.
Objective IC3.1
Establish effective intergovernmental agreements that benefit long-
range planning efforts to define agreed upon jurisdictional
boundaries, land uses and service levels.
Action IC3.1.1
Meet periodically with representatives of individual towns to establish
parameters and details of future municipal boundaries.
Action IC3.1.2
Adopt cooperative boundary plans as set forth in s.66.0307,
Wisconsin Statutes.
Type Reference Content
Goal IC4
Ensure ongoing communication regarding intergovernmental
issues and activities.
Objective IC4.1
Adopt policy to verify ongoing communication with intergovernmental
stakeholders.
Action IC4.1.1 Continue city staff involvement with intergovernmental functions.
CHAPTER 10
IMPLEMENTATION
CHAPTER 10: IMPLEMENTATION
TABLE OF CONTENTS
Introduction…………………………………………………………………………………………...... 10-1
Role of the Plan……………………………………………………………………………………….. 10-1
Responsibility………………………………………………………………………………………….. 10-1
Consistency……………………………………………………………………………………………. 10-2
Monitoring Progress………………………………………………………………………………… ... 10-3
Updating the Plan…………………………………………………………….………………………. .10-4
Adopting the Plan or Update……………………………………………………….......................... 10-4
Land Use Planning Controls………………………………………………………………………..... 10-5
Consistency with Other Plans………………………………………………………………………. .10-8
Implementation Schedule………………………………………………………….................... ...... 10-9
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Chapter 10: Implementation
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CHAPTER 10: IMPLEMENTATION
INTRODUCTION
A smart growth comprehensive plan serves a community by establishing priorities for the future,
evaluating available resources, and providing a means for dealing with change. The purpose of
the planning effort is to develop a plan that will guide both public and private decisions. In order
to follow the plan as described in the preceding chapters, it is necessary to implement the goals,
as outlined on a continual basis. If a plan is to be successful it must be implemented
meaningfully and aggressively. This chapter prescribes a specific series of ongoing efforts and
actions to be completed by the City.
ROLE OF THE PLAN
All land controls governing the City must be consistent with the adopted comprehensive plan1.
The City’s Plan Commission is responsible for ensuring this plan is used as a guide to update
and/or replace ordinances to reflect the goals of this plan. When the Plan Commission reviews
any petitions for development, the plan should be reviewed; any recommendations for future
development must be based on the identified goals, objectives, actions and proposed land use
patterns within this plan. If the Plan Commission must ultimately make a decision that is
inconsistent with the plan, the plan should be amended to reflect the change in policy.
RESPONSIBILITY
Elected Officials
Elected officials must make their decisions on criteria regarding how development will affect the
entire community, as well as how it will influence a specific site. As a result, elected officials
make complex decisions based upon the comprehensive plan, the goals of the applicant,
technical advice from staff, citizen input from advisory boards, and their own judgment on the
specific development. The comprehensive plan provides much of the factual information an
elected official will need for decision making. Elected officials must familiarize themselves with
the contents and overall goals of the plan in order to ensure the plan remains viable.
Plan Commission
The powers and duties of planning commissions have been established by Wisconsin Statutes2.
The City Plan Commission is the primary entity responsible for implementing and updating this
comprehensive plan. As such, the Plan Commission must promote good planning practices
within the City. Commission members should be knowledgeable about the contents, visions,
goals, objectives and actions of the comprehensive plan. Moreover, the Plan Commission must
promote active citizen participation in future planning efforts, and should strive to keep the
citizens and elected officials informed of any technical issues and proceedings regarding current
planning issues. The Plan Commission is responsible for periodic amendments to the
comprehensive plan so that regulations and ordinances are in compliance with the plan.
Likewise, the Plan Commission must review all new ordinances to verify they are compliant with
1 Wisconsin State Statutes 66.1001. 2 Wisconsin State Statutes 62.23 and 60.62.
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the goals, objectives and actions of the comprehensive plan. The following principles should be
used in making decisions
As the City considers the implementation of the comprehensive plan, it is seeking to find better
ways to utilize and apply the plan’s vision, goals and objective statements to the day to day
development-related decisions that occur. A set of ten (10) general principles have been
developed to aid in such reviews. Ideally, while every development decision would strictly
incorporate or adhere to each and every goal or objective statement in the plan, it will be very
difficult (if not impossible) to do so, as certain conflicts (or ’trade-offs’) might exist. These
principles can help the process by forcing the contemplation of broad measures of success as
they apply to the impacts of land use change across all elements of the comprehensive plan.
Individual plan elements that the principle may be applied to are listed in parentheses.
In short, development decisions should consider the positive and negative impacts of effects on
each of the principles listed below. Does the decision contribute positively in any way to the
existence, enhancement, or improvement of this principle’s arena? Furthermore does the action
have short or long term impacts within the context of each principle?
1. Identity [Placemaking / Sense of Place] (housing, economic development,
transportation, community facilities, recreation, cultural resources)
2. Community [Sense of Belonging] (housing, transportation, community facilities,
recreation, cultural resources)
3. Diversity (population, housing, economy)
4. Equity (population, housing, services, recreation, economic development, natural
resources)
5. Efficiency (public services, transportation)
6. Sustainability (environment, economy, housing)
7. Resiliency (environment, economy)
8. Mobility (transportation, housing, recreation)
9. Health (housing, transportation, community facilities, natural resources, recreation)
10. Collaboration (all elements)
CONSISTENCY
Internal Consistencies
The comprehensive plan was developed sequentially with supportive goals, objectives and
actions. Utilizing the City’s public participation process and information contained in the
background chapters as a basis, key issues were identified for each of the nine elements of the
plan. Using these issues, along with factual information regarding natural features, historical
population and housing data, population and housing projections, and an analysis of existing
infrastructure, goals, objectives and actions for each comprehensive planning element were
developed. The identified goals, objective and actions expressed in this plan were used to
prepare the Future Land Use Map (Map 4-5). To maintain internal consistency, any amendment
to the plan should be accompanied with an overall review of all nine elements and their
associated goals, objectives and recommendations.
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Beginning on January 1, 20103, if a local governmental unit enacts or amends any of the
following ordinances, the ordinance shall be consistent with that local governmental unit's
comprehensive plan4:
Official mapping ordinances enacted or amended under Wisconsin State Statutes 62.23
(6).
Local subdivision ordinances enacted or amended under Wisconsin State Statutes
236.45 or 236.46.
County zoning ordinances enacted or amended under Wisconsin State Statutes 59.69.
City or village zoning ordinances enacted or amended under Wisconsin State Statutes
62.23 (7).
City zoning ordinances enacted or amended under Wisconsin State Statutes 60.61 or
60.62.
Shorelands or wetlands in shorelands zoning ordinances enacted or amended under
Wisconsin State Statutes 59.692, 61.351 or 62.231.
External Consistencies
Not only is it important to maintain internal consistencies, but the City should also be aware of
other planning documents and their relevance to the City’s comprehensive plan. An attempt
should be made to maintain consistency with these plans if possible. Some examples of these
plans can be found in Appendix D.
MONITORING PROGRESS
It is the responsibility of the Plan Commission to monitor the progress of implementation utilizing
the Action Implementation Tables that are found at the end of this chapter. The progress of plan
implementation should periodically be reported to the City Council. Additionally, the Plan
Commission should annually review the goals, objectives and actions and address any conflicts
which may arise between the elements of the plan. While it is the responsibility of the Plan
Commission to monitor progress, others may also check progress including community
members, City staff and citizen groups.
In order to assist the Plan Commission with the monitoring of the plan, it may be necessary to
develop and implement a variety of informal tools and techniques. Items for consideration may
include:
creation of development review ‘checklists’ to assist with determining a proposal’s
consistency with the comprehensive plan;
integration of plan actions into a ‘performance-based budgeting’ initiative;
development of an annual ‘work plan’ for the Plan Commission;
placing the comprehensive plan as an item on every Plan Commission meeting agenda
so that either the public and/or Plan Commission members can discuss items related to
the plan, or to use the time to evaluate implementation progress;
3 Wisconsin Act 372 delays the consistency requirement until January 1, 2012 for local governments who applied for
but not received a comprehensive planning grant from the WDOA. It also gives WDOA discretionary authority to
grant consistency extensions to grant local governments who have received a comprehensive planning grant. 4 Wisconsin State Statutes 66.1001(3).
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developing articles for the City newsletter which focus on certain recommendations or
strategies within the plan and calling for public input or volunteers to work on an item;
and
designation of an official “Comprehensive Planning Day” within the City and have
activities or workshops related to this subject so as to build awareness (perhaps
associated with the month of October which is the American Planning Association’s
formal “Community Planning Month.”
UPDATING THE PLAN
A comprehensive plan must be updated at least once every ten years5. However, it is strongly
recommended that the Plan Commission annually review both the implementation schedule and
current planning decisions to ensure compliance with the overall goals of the plan and continued
consistency with the overall vision of the community. This annual review should also be used to
determine if a “major” plan amendment is required.
The comprehensive plan is a dynamic document. The plan should be updated when new
demographic, economic, and housing data are released by the U.S. Census Bureau. It is
anticipated that the land use element will likely require updating over the course of the plan due
to growth and change that the City may experience. Other elements are less likely to need
updates. Furthermore, as community values change, some goals, objectives and actions may
no longer be relevant. The update to a plan should take less time than the full comprehensive
planning process, but should include public participation.
ADOPTING THE PLAN OR UPDATE
As directed by Wisconsin State Statutes 66.1001(4), any plan commission or other body of a
local governmental unit authorized to prepare or amend a comprehensive plan shall adopt
written public participation procedures that foster public participation, adopt a resolution by a
majority vote of the entire commission or governmental unit. The vote shall be recorded in the
official minutes of the plan commission; the resolution shall refer to maps and other descriptive
materials that relate to one or more elements of the comprehensive plan.
The City Council and Plan Commission may spend time reviewing, revising and requesting
revisions to the recommended plan. The City Council shall draft an ordinance adopting the plan
and publish a class 1 public notice 30 days prior to the hearing on the proposed ordinance to
adopt the final “recommended plan”. The City Council must provide an opportunity for written
comments to be submitted by the public and there must be a response to those comments. In
addition, a public hearing must be held on the ordinance. By majority vote, the City Council
must approve the ordinance. One copy of the adopted comprehensive plan, or an amendment
to the plan, shall be sent to the following:
Every governmental body that is located in whole or part within the boundaries of the
local governmental unit (county, utility districts, school districts, sanitary districts,
drainage districts).
The clerk of every local governmental unit that is adjacent to the local governmental unit
that is the subject of the plan that is adopted or amended.
The Wisconsin Department of Administration (email notification required only).
5 Wisconsin State Statutes 66.1001(2)(i).
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East Central Wisconsin Regional Planning Commission.
The public library that serves the area in which the local government unit is located.
LAND USE PLANNING CONTROLS
Although zoning and subdivision ordinances are the two most commonly utilized land use
planning tools, there are several key tools which can be utilized to ensure that new development
occurs in an organized and desired fashion. The City may wish to modify existing or establish
new ordinances which regulate new development.
Zoning
Comprehensive plans and zoning ordinances perform differently. A comprehensive plan is a
“guide to the physical, social, and economic development of a local government unit” and that
“the enactment of a comprehensive plan by ordinance does not make the comprehensive plan
by itself a regulation.”6 Comprehensive plans provide a vision for 20 years while zoning
ordinances have an immediate impact on land use decisions. In order to rectify this difference,
re-zoning is completed on an ongoing basis in a manner that is consistent with the overall vision
of the plan. The timing of rezoning is dependent on market forces, political climate, and the
accuracy of the plan’s predictions.
The Plan Commission and City Council must continually ensure that any future zoning changes
are consistent with the comprehensive plan. Several actions can be taken to ensure that zoning
decisions are made that accommodate the preferred future land uses as indicated on the Future
Land Use Map (Map 10-1).
Compare intended future land uses with existing zoning. Amend current zoning to
reflect the intended future uses for all areas within the City.
Encourage local citizens and elected officials to actively participate in ongoing City
meetings regarding all zoning and planning issues.
Amend existing ordinances and develop new ordinances which are reflective of the
goals, objectives and actions of all elements in the City’s comprehensive plan.
Official Maps
Cities, villages, and towns which have adopted village powers have the authority to develop an
official map7. An official map is a diagram which delineates the current and future roadways
such as local streets, highways, historic districts, parkways, and parks. Additionally, an official
map may delineate railroad right-of-ways, waterways (only if included on a comprehensive
surface water drainage plan) and public transit facilities. Furthermore the map may establish
exterior lines of future streets, highways, historic districts, parks, parkways, public transit
facilities, waterways, and playgrounds. Official maps serve several important functions which
ensure that future land use decisions will remain compliant with the comprehensive plan.
Future costs for land acquisitions for city/village/town streets and other delineated
features are lowered or minimized because the land will remain vacant.
6 2009 Wisconsin Act 379. 7 Wisconsin Statutes 62.23(6).
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Future subdivisions of land will be streamlined because future streets have already been
established; developers will be required to adhere to guidelines set forth within the
official map unless it is amended by an ordinance.
Potential home and land buyers can be readily informed that land has been designated
for specific public uses.
Acceptable route(s) for a potential by-pass for a major state highway can be delineated.
Local governments can preserve sensitive environmental features (i.e. trout streams)
while establishing a preferred corridor for a by-pass.
The City should ensure that its official map is current and consistent with the comprehensive
plan.
Sign Regulations
Many communities are interested in regulating signage for local business in order to preserve a
rural atmosphere and “community character.” Restrictions are especially important in major
transportation corridors, historic downtowns or neighborhoods, or other culturally or
environmentally significant areas. As signs have become increasingly larger and bolder due to
illumination, roadways have become more cluttered and communities have become less
distinctive.
Erosion and Stormwater Control Ordinances
Local communities may adopt a construction site erosion control and stormwater management
ordinance. The purpose of these ordinances is to protect surface water quality and minimize
the amount of sediment and other pollutants in stormwater runoff from construction sites to
lakes, streams, and wetlands.
Historic Preservation Ordinance8
As development continues to modernize the appearance of an area, the use of an historic
preservation ordinance can help a community protect and enhance key cultural and historical
features. A historic preservation ordinance can designate local landmarks and protect these
properties by regulating new construction, alterations or demolitions that affect them. More
information is available on the Wisconsin Historical Society’s webpage at
http://www.wisconsinhistory.org/.
Design Review Ordinance
Design review can accompany many different development aspects and will assist communities
in achieving an identified look and character expressed within the individual vision statements.
These ordinances, however, need to be based upon well-defined sets of criteria. Signage,
lighting, exterior building material types, structural guidelines, colors, and other aspects will
have to be specifically identified within any ordinance.
8 Historic Preservation Ordinances are regulated under Wisconsin Statutes 62.23 (em).
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Building/Housing Codes
The Uniform Dwelling Code promotes health, safety, and general welfare; protects property
values; and provides for orderly, appropriate development and growth in the communities. The
enforcement of the uniform dwelling code along with enforcement of other local codes can help
ensure properties are adequately maintained and that property values are protected.
Floodplain Ordinance
The City regulates all areas within the City that would be covered by the regional flood or base
flood. In some instances, it may be important to readjust the floodplain boundaries in specific
areas. In order to do so, local communities must follow these steps:
1) Contract with an engineering firm to conduct hydrologic and hydraulic engineering
studies and modeling to calculate the floodplain for the specified area. It is
recommended that 2 foot contour intervals be utilized.
2) Submit the recalculated floodplain boundaries to the WDNR and FEMA for review.
3) If approved, amend existing zoning maps to reflect the re-calculated floodplain
boundaries.
Subdivision Ordinances
Wisconsin State Statutes regulate the division of raw land into lots for the purpose of sale for
building development. A subdivision ordinance is related to the zoning ordinance in that it
regulates the platting, or mapping, or newly created lots, streets, easements, and open areas.
A subdivision ordinance can help implement the comprehensive plan and must be consistent
with and conform to the local comprehensive plan goals. Furthermore, subdivision ordinances
can incorporate construction standards and timelines for completion of community facilities such
as transportation networks or curb and gutter systems.
Lighting Controls/Ordinances
As development pressures occur, communities discover that not only are the natural features
being altered, but also the scenic views of the night sky are being diminished. Both yard lighting
and signage can change the character of a community as significantly as new development.
This is especially true in areas where new lighting has become over-excessive in new
commercial or industrial districts. Direct lighting or glare can and should be regulated in order to
maintain community character.
Currently, lighting and its evening glare is one of the chief complaints residents have in many
communities across this state and nation. Many light manufactures have responded positively
to complaints about the increased amounts of light pollution. There are many examples of
development and lighting structures which have reduced scatter light through new non-glare
technologies. Many light manufactures have light cutoff shields that will remove glare, thus
increasing the light’s effectiveness and reducing its overall energy consumption. Other lights
may direct light at ground height only. Since non-glare lighting and other similar technologies
are similarly priced to current lighting practices, communities should consider developing
lighting ordinances which not only reduce light pollution, but also improve energy consumption
and costs.
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CONSISTENCY WITH OTHER PLANS
Several plans have been adopted since the 2005 comprehensive plan update. It is not the
intent of this plan to replicate those documents within the framework of this update but those
that have been adopted are incorporated by reference into this comprehensive plan update.
Plans being incorporated by reference into the comprehensive plan will be reviewed for
consistency and have the same force as the comprehensive plan. Should there be any conflict
between any of the listed plans below and the comprehensive plan language will take
precedence unless amended.
Capital Improvement Program
The annual CIP includes projects related to street, water, sanitary, sidewalk, stormwater, parks,
major equipment purchases and property improvements that will occur each year and also plans
projects for the next four years. The recommendations as identified in the plan should be
compared on an annual basis when preparing and adopting the CIP. Where applicable,
implementation actions of this plan should be included in the CIP.
City of Oshkosh Strategic Plan
Every two years, the Oshkosh Common Council and City leadership develop a strategic plan
which identifies strategic initiatives intended to help the City growth and serve the citizens. The
plan is used as a guide for elected officials and city staff when developing the city’s budget, CIP,
and priorities within each department.
University of Wisconsin-Oshkosh Campus Master Plan
At over 120 acres and being one of the City’s largest employers, the UWO Campus is a major
presence in the Central City that significantly impacts its neighbors and the City. The UWO
Campus Master Plan, originally prepared in 1998 and updated in 2003, outlines the future plans
of the campus. The updated plan has several land use related impacts including the
construction of a parking ramp, closing of Algoma Boulevard, the reconfiguration of High
Avenue and Pearl Avenue, and the addition of parking.
Comprehensive Outdoor Recreation Plan (CORP)
The Comprehensive Outdoor Recreation Plan was adopted by the Common Council in 2003
and updated in 2011, and most recently in 2018. The plan is a formal document designed to
assist the City in the development of park and open space amenities to provide for the need of
residents. The plan provides a means for identifying, analyzing, promoting, and responding to
changes in society, both present and future. As the CORP has planning and development
implications, development proposals, official mapping, subdivisions, and zone changes will be
reviewed for consistency with this plan.
Pedestrian and Bicycle Circulation Plan
The “Pedestrian and Bicycle Circulation Plan” was adopted in 1998 and updated in 2011 and is
currently being updated. The plan inventories existing bicycle and pedestrian facilities, which
includes existing trails, sidewalks, and the policies that affect these facilities. The plan includes
a twenty-year facilities plan, recommended revisions to the Zoning Ordinance, and priority
improvements for arterial streets throughout the City. This plan is currently in the process of
being updated.
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Imagine Oshkosh, A Master Plan For Our Center City
The Imagine Oshkosh Plan or Central City Investment Strategy, adopted by Council in 2017 is a
policy guide and action framework to elevate the Center City and provides recommendations,
strategies, and policies to maintain and improve the broader downtown area and represents a
comprehensive update to the Downtown Action Plan of 2000.
The Imagine Oshkosh Plan stands as a long-term vision and comprehensive investment
strategy for Center City, directing growth, development, and infrastructure investment. In
addition to guiding the City’s elected and appointed officials and staff, Image Oshkosh is a
resource for businesses, not-for-profits, developers, and other important community
stakeholders.
ONE Oshkosh Our Neighborhoods Engage Strategic Plan
ONE Oshkosh (Our Neighborhoods Engage) is intended to bring together public and private
resources to invest in neighborhoods through property improvements and stronger relations
among neighbors. In 2016, City staff worked closely with Greater Oshkosh Healthy
Neighborhoods, Inc. (GO-HNI), Habitat for Humanity – Oshkosh, Winnebago/Oshkosh Housing
Authority, ADVOCAP, Inc. and local resident leaders to identify roles and responsibilities that
seek to strengthen neighborhoods and achieve positive outcomes in four areas: Image, Market,
Physical Conditions and Neighborhood Management. Efforts have led to the development of an
overarching brand (ONE Oshkosh) and the following Strategic Plan which is intended to
promote collaborative efforts among agencies to collectively work towards implementation of the
Common Council’s Strategic Plan Goal - Strengthen Neighborhoods.
City Center Corridors Plan 9th Avenue & South Park Avenue
The purpose of the corridors plan is to guide planning and policy decisions for future
improvements to 9th Avenue and South Park Avenue. This includes issues related to land use,
multi-modal transportation, and urban design. The corridors plan should be adopted as an
addendum to the Oshkosh Comprehensive Plan. In 2015, the City of Oshkosh initiated Imagine
Oshkosh, a planning process to address issues and opportunities within the Downtown and
surrounding area, dubbed the Center City. A key concern identified through the process was
the corridors which provide access to the Center City. Recognizing the need to address local
corridors, the City initiated a secondary planning process to analyze and develop policies and
recommendations for two prominent routes.
IMPLEMENTATION SCHEDULE
The goals established in the implementation schedule should be applied over the planning
period which begins in 2018 with the adoption of the comprehensive plan and runs through the
planning period. They represent priorities for the City. Supporting objectives and actions
developed with the goals provide more detailed and readily measurable steps toward reaching
each goal, while actions used to ensure plan implementation.
Due to the nature of comprehensive planning, goals, objectives and actions of each particular
element are interrelated. To ensure that implementation of the plan is achieved in a timely
fashion, landmark dates have been set for each recommendation. During periodic reviews, the
Plan Commission should verify that these deadlines have been met and consider additional
recommendations to better achieve the stated goal, if necessary. Specific landmark dates have
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10-10 East Central Wisconsin Regional Planning Commission
been established to ensure that individual recommendations complement one another in their
implementation. The landmark dates have been reviewed by the public, the Plan Commission,
City Staff and the City Council to assure that they are feasible expectations.
The goals found below are a summary of the items found in chapters 2 through 9.
Priority/Timeline
The plan should be implemented over a period of 20 years. The following is a listing of the
priorities ranging from high priority (1) to low priority (4).
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Land Use
Type Reference Content Priority Timeframe Lead Secondary
Goal LU1
Provide sufficient land area with adequate
services to meet projected land demand for
various types of land uses. 1 Ongoing
Plan
Commission
Planning
Services
Division
Goal LU2
Encourage the efficient and compact
utilization of land. 2 Ongoing
Plan
Commission
Planning
Services
Division
Goal LU3
Encourage compatible land use
development. 2 Ongoing
Plan
Commission
Planning
Services
Division
Goal LU4
Encourage redevelopment to be oriented
toward the waterfront and increase public
access where appropriate. 2 Ongoing
Economic
Development
Division
Redevelopment
Authority and
Planning
Services
Division
Goal LU5
Maintain and preserve the viability of
existing neighborhood development. 2 3 - 5 Years GO HNI
Planning
Services
Division
Goal LU6
Promote environmentally sensitive and
responsible utilization of land,
incorporating permanent open space and
natural resources. 3 6 - 10 Years
Plan
Commission
Planning
Services
Division
Goal LU7
Ensure ongoing communication regarding
land use issues and activities. 1 Ongoing
Planning
Services
Division
Plan
Commission
Economic Development
Type Reference Content Priority Timeframe Lead Secondary
Goal ED1
Leverage the collective assets of the
broader region for increased economic
prosperity within the City of Oshkosh. 3 6 - 10 Years GO EDC
Economic
Development
Division
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Goal ED2
Promote and support the diversification of
the industrial and manufacturing
employment base in order to have a more
resilient local and regional economy. 1 Ongoing GO EDC
Economic
Development
Division
Goal ED3
Retain and attract a strong core of stable
employers within the City of Oshkosh. 1 Ongoing GO EDC
Economic
Development
Division
Goal ED4
Support the growth of entrepreneurship
activities and new companies within the
City of Oshkosh. 2 Ongoing GO EDC
Economic
Development
Division
Goal ED5
Promote Oshkosh as a regional economic
center within the larger Fox Valley / I-41
Corridor market. 2 Ongoing GO EDC
Economic
Development
Division
Goal ED6
Develop the physical facilities, within
designated Economic Activity Zones, and
other parts of Oshkosh, which support
economic development linking Oshkosh to
the regional and global network. 3 6 - 10 Years
Economic
Development
Division GO EDC
Goal ED7
Promote destination tourism for
individuals, or group activities such as
conferences, recreational activities, and
special events. 2 3 - 5 Years
Convention
and Visitors
Bureau
Economic
Development
Division
Goal ED8
Support programs designed to enhance
and develop workforce skills and attract
workers to the City. 1 Ongoing GO EDC
Economic
Development
Division
Goal ED9
Increase the economic and social
opportunities within the downtown, central
city and waterfront areas. 2 3 - 5 Years
Economic
Development
Division GO EDC
Goal ED10
Strengthen and improve major entryways
into the City as well as other commercial
and retail corridors within the City. 4 11 - 20 Years
Plan
Commission
Planning
Services
Division
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Goal ED11
Maintain and improve the quality of the
City’s neighborhoods. 3 6 - 10 Years GO HNI
Planning
Services
Division
Goal ED12
Celebrate the overall high quality of life and
sense of place that the City of Oshkosh and
surrounding region have to offer. 4 Ongoing
Economic
Development
Division GO EDC
Goal ED13
Continue to improve the City’s overall
aesthetic quality. 3 Ongoing
Plan
Commission
Public Arts and
Beautification
Committee
Goal ED14
Ensure ongoing communication regarding
Economic Development issues and
activities. 1 Ongoing
Economic
Development
Division GO EDC
Housing
Type Reference Content Priority Timeframe Lead Secondary
Goal H1
Develop policies and programs to create
housing products to address unmet needs
as market conditions evolve. 1 1 - 2 Years City Council
Planning
Services
Division
Goal H2
Maintain or rehabilitate the City's existing
housing stock. 2 Ongoing
Planning
Services
Division GO HNI
Goal H3
Enhance environmental quality, promote
good design, and eliminate and lessen land
use conflicts throughout the community. 3 6 - 10 Years
Plan
Commission
Sustainability
Advisory Board
Goal H4
Ensure ongoing communication regarding
housing issues and activities. 1 Ongoing
Planning
Services
Division GO HNI
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Transportation
Type Reference Content Priority Timeframe Lead Secondary
Goal T1
Provide efficient and well-designed
collector and arterial streets and highways. 1 Ongoing
Department of
Public Works
Traffic and
Parking
Advisory Board
Goal T2
Increase efficiency and "reduce friction" on
principal arterial streets, which form the
primary circulation system. 2 Ongoing
Traffic and
Parking
Advisory Board
Transportation
Department
Goal T3
Maintain efficiency of the regional highway
system for high speed intercity
transportation. 2 Ongoing
Metropolitan
Planning
Organization
Department of
Public Works
Goal T4
Ensure adequate parking is available
throughout the City. 3 Ongoing
Traffic and
Parking
Advisory Board
Transportation
Department
Goal T5
Provide quality public transit and
paratransit services. 2 Ongoing GO Transit
Transit
Advisory
Board
Goal T6
Provide facilities for pedestrian and bicycle
circulation. 2 Ongoing
Pedestrian and
Bicycle
Advisory
Committee
Planning
Services
Division
Goal T7
Maintain adequate and efficient aviation
facilities serving the Oshkosh area. 3 Ongoing
Winnebago
County
Aviation
Committee
Goal T8
Promote and maintain efficient freight rail
serving the Oshkosh area. 3 Ongoing GO EDC
Economic
Development
Division
Goal T9
Encourage the establishment of passenger
rail service in the Oshkosh area. 4 Ongoing
Metropolitan
Planning
Organization
Plan
Commission
Goal T10
Ensure ongoing communication regarding
transportation issues and activities. 1 Ongoing
Metropolitan
Planning
Organization
Planning
Services
Division
City of Oshkosh Comprehensive Plan Update 2040
Chapter 10: Implementation
East Central Wisconsin Regional Planning Commission 10-15
Utilities and Community Facilities
Type Reference Content Priority Timeframe Lead Secondary
Goal UCF1
Expand and maintain utility and community
facilities and services provided by both
public and private entities that support
economic and residential development. 1 Ongoing City Council
Department of
Public Works
Goal UCF2
Design facilities and services for an
adequate level of service, based on
standards for population and demand for
those facilities and services. 1 Ongoing City Council
Department of
Public Works
Goal UCF3
Promote neighborhoods designed to
include pedestrian- and bicycle friendly
facilities and public gathering places. 2 3 - 5 Years
Plan
Commission
Pedestrian and
Bicycle
Advisory
Committee
Parks
Department
Goal UCF4
Promote growth and redevelopment of
property included within the service areas
of the existing infrastructure and service
system. 2 3 - 5 Years
Plan
Commission
Planning
Services
Division
Goal UCF5
Utilize environmentally sensitive methods
and systems. 2 3 - 5 Years Public Works
Planning
Services
Division
Goal UCF6
Ensure ongoing communication regarding
Utilities and Community Facilities issues
and activities. 1 Ongoing Public Works
Planning
Services
Division
City of Oshkosh Comprehensive Plan Update 2040
Chapter 10: Implementation
10-16 East Central Wisconsin Regional Planning Commission
Agricultural, Natural and Cultural Resources
Type Reference Content Priority Timeframe Lead Secondary
Goal ANC1
Promote the development of urban
agricultural programs and activities. 3 6 - 10 Years
Sustainability
Advisory Board
Planning
Services
Division
Goal ANC2
Protect and preserve wetlands, shorelands,
and other environmentally sensitive areas. 2 3 - 5 Years
Plan
Commission
Sustainability
Advisory Board
Goal ANC3
Protect aquatic and wildlife habitat when
managing development in proximity to
environmental corridors, riparian areas, and
woodlands. 2 3 - 5 Years
Department of
Public Works
Sustainability
Advisory
Board
Goal ANC4
Protect and develop passive and active
recreation resources (e.g. parks, trails,
hunting and fishing opportunities). 3 6 - 10 Years
Advisory Parks
Board
Parks
Department
Goal ANC5
Promote an aesthetically pleasing natural
environment throughout the City. 1 Ongoing
Plan
Commission
Parks
Department
Goal ANC6
Promote the on-going viability of publicly
and privately owned cultural resources. 3 6 - 10 Years
Museum
Board
Landmarks
Commission
Goal ANC7
Create a strong and vibrant cultural tourism
program. 2 3 - 5 Years
Convention
and Visitors
Bureau GO EDC
Goal ANC8
Promote and publicize cultural events and
sites within the City. 2 3 - 5 Years
Convention
and Visitors
Bureau GO EDC
Goal ANC9
Encourage preservation and protection of
the historic built environment. 2 3 - 5 Years
Landmarks
Commission
Plan
Commission
Goal ANC10
Maintain, improve, and increase public
access to the waterfront. 1 1 - 2 Years
Plan
Commission
Planning
Services
Division
Goal ANC11
Continue to improve the City’s overall
aesthetic quality. 2 3 - 5 Years
Public Arts and
Beautification
Committee
Plan
Commission
City of Oshkosh Comprehensive Plan Update 2040
Chapter 10: Implementation
East Central Wisconsin Regional Planning Commission 10-17
Goal ANC12
Ensure ongoing communication regarding
agricultural, natural and cultural resource
issues and activities. 1 Ongoing
Landmarks
Commission
Planning
Services
Division
Intergovernmental Cooperation
Type Reference Content Priority Timeframe Lead Secondary
Goal IC1
Establish mutually-beneficial relations with
local public, parochial, technical and
university educational systems. 1 Ongoing City Council City Manager
Goal IC2
Establish mutually-beneficial relations with
other jurisdictions. 1 Ongoing City Council City Manager
Goal IC3
Adopt and maintain intergovernmental
agreements with all surrounding towns. 1 1 - 2 Years City Council City Manager
Goal IC4
Ensure ongoing communication regarding
intergovernmental issues and activities. 1 Ongoing City Council City Manager
APPENDICES
APPENDICES
TABLE OF CONTENTS
Appendix A: Public Participation Plan ..................................................................................... A-1
Appendix B: Project Meetings ................................................................................................ . B-1
Appendix C: Plan Adoption .............................................................................................. .….. C-1
Appendix D: Policies and Programs………………………………………………………………… D-1
APPENDIX A
PUBLIC PARTICIPATION PLAN
MEMORANDUM
TO: Honorable Mayor and Members of the Common Council
FROM: Darryn Burich
Director of Planning Services
DATE: March 3, 2016
RE: Approve Amended Public Participation Plan / City of Oshkosh Comprehensive
Plan (Plan Commission Recommends Approval)
BACKGROUND
In the early 2000’s as the City was preparing to move forward to develop a state mandated
comprehensive plan, known commonly as the “Smart Growth” law, one of the requirements
was to approve a Public Participation Plan that would let the public know how the plan was
being developed; who would be involved in the preparation; and how the information would
be disseminated to the public in an effort to incorporate transparency into the process. A
Public Participation Plan was approved which guided the development of the 2005 City of
Oshkosh Comprehensive Plan. Now that the City is undertaking a general update to the
2005 Comprehensive Plan being led by East Central Wisconsin Regional Planning
Commission, staff is proposing some minor updates to the Public Participation Plan that
reflects the update process and clarifies how the public will be involved and how
information/feedback will be developed and disseminated during the update and approval
process. Included in this staff report is a marked up copy of where changes are proposed to
the current Public Participation Plan.
ANALYSIS
Some of the more significant changes proposed are reducing the number of public hearings
from 3 to 2 as only one is required including several areas of public involvement and
additional hearings seem unnecessary and administratively burdensome for a minor update.
A change to allow Plan Commission alternates to be members of the Comprehensive Plan
Update Committee (CPUC) even if all other Plan Commission members are present as there
is no total membership cap and the participation of alternates will be an asset to the overall
update process. A change from Steering Committee meetings to Targeted Focus Group
meetings as this is a minor update versus a major update where more specific time may be
needed to review each element. Steering Committees will once again be used when a major
update is needed in the mid 2020’s. A change to utilize recent feedback from past/ongoing
planning projects to be used as a guide for forming recommendations as part of this update
to reflect the time and effort put into developing those plans. A change to the
intergovernmental meetings scheduled to be held clarifying who will be contacted as part of
the update process. The existing Public Participation Plan is over 10 years old and it is
necessary to review and refresh the existing plan given the changes that have occurred in
overall planning and to reflect that this is a minor versus major update to the Comprehensive
Plan.
FISCAL IMPACT
East Central Wisconsin Regional Planning Commission A-1
RECOMMENDATION
The Plan Commission recommended approval of the amendment to the Comprehensive Plan
Public Participation Plan at its March 1, 2016 meeting.
Respectfully Submitted, Approved,
Darryn Burich Mark Rohloff
Director of Planning Services City Manager
A-2 East Central Wisconsin Regional Planning Commission
APPENDIX B
PROJECT MEETINGS
Meeting
Date
Type Items discussed
4/9/16 Comprehensive Plan
Update Committee
Project Meeting
Project kickoff
Project expectations
Demographic highlights
7/25/16 Comprehensive Plan
Update Committee
Project Meeting
Committee handbook
Public participation map exercise
Economic Development background
Housing background
9/12/16 Comprehensive Plan
Update Committee
Project Meeting
Housing background
Transportation background
Economic Development existing goals review
10/24/16 Comprehensive Plan
Update Committee
Project Meeting
Economic Development existing goals review
Housing existing goals review
Transportation existing goals review
Outreach events
12/5/16 Comprehensive Plan
Update Committee
Project Meeting
Intergovernmental Cooperation background and
existing goals review
Agricultural, Natural and Cultural Resources
background and existing goals review
Outreach events
1/30/17 Comprehensive Plan
Update Committee
Project Meeting
Utilities and Community Facilities background
element review
Utilities and Community Facilities existing goals
and objectives review
Project check-in
3/13/17 Comprehensive Plan
Update Committee
Project Meeting
Outreach events
Land Use element background review
Land Use element existing goals and objectives
review
Implementation discussion
4/24/17 Comprehensive Plan
Update Committee
Project Meeting
Outreach events
Intergovernmental updated goals and objectives
review
Transportation updated goals and objectives
review
Agricultural, Cultural and Natural Resources
updated goals and objectives review
6/26/17 Comprehensive Plan
Update Committee
Project Meeting
Housing updated goals and objectives review
Economic Development updated goals and
objectives review
Utilities and Community Facilities updated goals
and objectives review
7/17/17 Comprehensive Plan
Update Committee
Project Meeting
Utilities and Community Facilities updated goals
and objectives review (started at previous
meeting)
Land Use presentation and discussion
7/31/17 Comprehensive Plan Land Use projections summary
Oshkosh Comprehensive Plan Update
List of Project Meetings
East Central Wisconsin Regional Planning Commission B-1
Update Committee
Project Meeting
Land Use map concepts presentation and
discussion
8/28/17 Comprehensive Plan
Update Committee
Project Meeting
Final review of elements discussion
Future Land Use map concepts discussion
10/16/17 Comprehensive Plan
Update Committee
Project Meeting
Implementation discussion
Future Land Use map concepts discussion
11/20/17 Comprehensive Plan
Update Committee
Project Meeting
Review of updated elements
City limits Future Land Use map review
(introduced at 10/16/17 meeting)
Extraterritorial Future Land Use map concepts
discussion (map to be distributed at meeting)
1/8/18 Comprehensive Plan
Update Committee
Project Meeting
Future Land Use map review
4/30/18 Comprehensive Plan
Update Committee
Project Meeting
Final Draft review including general discussion
and Economic Development Strengths and
Weaknesses
Possible action to start adoption process
8/13/18 Comprehensive Plan
Update Committee
Project Meeting
Final Draft review including review of city staff
updates and Future Land Use Map
Adoption process
B-2 East Central Wisconsin Regional Planning Commission
APPENDIX C
PLAN ADOPTION
East Central Wisconsin Regional Planning Commission C-1
APPENDIX D
POLICIES AND PROGRAMS
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-1
APPENDIX D: POLICIES AND PROGRAMS
INTRODUCTION
Growth and development patterns do not occur in a vacuum. Over time, federal, state and local
policies have directed the amount and location of development. State transportation policies
and state land use legislation such as NR121, farmland preservation, natural resource
protection and real estate tax codes have influenced growth and settlement. Local attitudes
towards growth and accompanying zoning legislation, transportation and utility investments and
tax and land subsidies also influence the type and amount of growth and development which
occurs in each community.
Policies which impact growth and development have been developed over time by different
agencies and different levels of government with varying missions and objectives. The resulting
policies and programs are sometimes complementary and sometimes contradictory. It is the
interaction of these various policies and market influences that determine actual growth
patterns. Although many current federal and state policies and subsidies still encourage
expansion, other policies such as the 14 land use goals developed by the state also encourage
communities to accommodate growth in perhaps a more efficient manner than they have in the
past. The adopted comprehensive plan legislation encourages communities to develop
comprehensive plans, but provides communities with the opportunity to determine their own
growth patterns. As a result, the type of development which will occur in the future is still open
to debate.
ISSUES AND OPPORTUNITIES
Regional and County Policies
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone #3, its
regional comprehensive plan in April 2008. The plan serves as an advisory document for
counties and communities within the region. As part of this planning process, several key
issues were identified:
How do we plan for continued population growth, which will result in an increase in
demand for services and land consumption in the region?
How do we promote the recognition of the relationship between the density of settlement
and amount and location of land consumed for housing, commercial, and industrial uses
and the costs of services?
How do we ensure the economic vitality of the agricultural and forestry sectors in the
context of a decrease in the amount of open space?
How do we address the conflicts that will arise given that the majority of future growth is
expected to occur in the urban counties, which is where most of the region’s more
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Appendix D: Policies and Programs
D-2 East Central Wisconsin Regional Planning Commission
productive farmland is located? More specifically, how will we address the impact on the
farm economy?
How do we ensure that an increase in urbanization has a positive impact on rural
communities?
Urban counties in the region currently have greater social and economic capital, more
government support due to a larger tax base, and greater access to nonprofit services
than rural counties. Current trends show the educational and income gap between
urban counties and rural counties widening. How do we plan to decrease this gap and
promote a healthy, vibrant economy and quality of life for all residents throughout the
region?
The core goal of the Issues and Opportunities section is:
To promote communities that are better places to live. That is, communities that are
economically prosperous, have homes at an affordable price, respect the countryside,
enjoy well designed and accessible living and working environments, and maintain a
distinct sense of place and community.
The intent of this goal is to minimize the negative effects of sprawl development and provide a
cost-effective variety of services and infrastructure that will meet the changing demographics of
the overall population.
Federal, State and Regional Programs
This section includes information on federal, state and regional programs which were used to
develop this chapter. Other programs which influence growth and may impact future socio-
economic conditions will be described in pertinent chapters within this appendix.
Federal Programs
United States Department of Commerce
Economics and Statistics Administration (ESA). The Economics and Statistics
Administration collects, disseminates and analyzes broad and targeted socio-economic data. It
also develops domestic and international economic policy. One of the primary bureaus within
the ESA is the U.S. Census Bureau. The majority of information analyzed in this chapter was
collected and disseminated by the Census Bureau, which is the foremost data source for
economic statistics and demographic information on the population of the United States. The
Census Bureau conducts periodic surveys and decennial censuses that are used by federal,
state, and local officials and by private stakeholders to make important policy decisions. The
Bureau produces a variety of publications and special reports regarding the current and
changing socio-economic conditions within the United States. It develops national, state and
county level projections and also provides official measures of electronic commerce (e-
commerce) and evaluates how this technology will affect future economic activity.
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Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-3
State Programs
Wisconsin State Data Center (WSDC)
The Wisconsin State Data Center is a cooperative venture between the U.S. Bureau of the
Census, DOA, the Applied Population Laboratory at the University of Wisconsin-Madison and
35 data center affiliates throughout the state.1 The U.S. Bureau of the Census provides census
publications, tapes, maps and other materials to the WSDC. In exchange, organizations within
WSDC function as information and training resources. DOA is the lead data center and the
Applied Population Laboratory functions as the coordinating agency throughout the state. Local
data center affiliates, such as East Central, work more closely with communities and individuals
within their region.
Wisconsin Department of Administration (DOA)
Demographic Services Center. The Wisconsin Department of Administration (DOA)
Demographic Services Center is responsible for developing annual population estimates for all
counties and all minor civil divisions (MCD) in the state. They develop annual estimates of the
voting age population by MCD and population estimates by zip code. The Demographic
Services Center also produces annual county level housing unit and household estimates. The
Demographic Services Center also develops population projections by age and sex for all
Wisconsin counties, and produces population projections of total population for all
municipalities.
University of Wisconsin-Madison
Applied Population Laboratory (APL). The Applied Population Laboratory is located with the
Department of Rural Sociology at the University of Wisconsin-Madison. They conduct socio-
economic research, give presentations and publish reports and chartbooks. They will contract
to do specific studies or school district projections. APL also functions as the coordinating
agency for the WSDC and the lead agency for the Wisconsin Business/Industry Data Center
(BIDC).
Regional Programs
East Central Wisconsin Regional Planning Commission
Planning for our Future Program. This program element promotes, builds awareness and
coordinates the implementation of the Commission’s Year 2030 Regional Comprehensive Plan
and locally adopted comprehensive plans. It also includes the Commission’s Health and
Planning work element. Examples of work under this program element include: population
information and projections, comprehensive planning and implementation assistance.
State Data Center Affiliate. East Central receives census materials and Demographic
Service Center publications from DOA, plus additional information and reports from other
state agencies. This information is maintained within its library, used for planning
purposes and published within East Central reports. Information and technical
1 Wisconsin Department of Administration, http://www.doa.state.wi.us/Divisions/Intergovernmental-
Relations/Demographic-Services-Center/US-Census-State-Data-Centers/. Accessed 10/15/15.
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Appendix D: Policies and Programs
D-4 East Central Wisconsin Regional Planning Commission
assistance regarding this data is also provided to local governments, agencies,
businesses and the public upon request.
Official Regional Population Projections and Household Growth. While DOA
provides base level population projections for the state, local conditions such as zoning
regulations, land-locked communities, and local decisions regarding land use
development can influence the accuracy of these base line projections. As a result, East
Central has the authority to produce official population projections for the region. East
Central also estimates future household growth.
LAND USE
State, Regional, County, and Local Policies
State Policies
Zoning Ordinances
Wisconsin State Statutes 66.1001 requires that if a local governmental unit enacts or amends
any of the following ordinances, the ordinance shall be consistent with that local governmental
unit's comprehensive plan:
Official mapping ordinances enacted or amended under Wisconsin State Statutes 62.23
(6).
Local subdivision ordinances enacted or amended under Wisconsin State Statutes
236.45 or 236.46.
County zoning ordinances enacted or amended under Wisconsin State Statutes 59.69.
City or village zoning ordinances enacted or amended under Wisconsin State Statutes
62.23 (7).
Town zoning ordinances enacted or amended under Wisconsin State Statutes 60.61 or
60.62.
Shorelands or wetlands in shorelands zoning ordinances enacted or amended under
Wisconsin State Statutes 59.692, 61.351 or 62.231.
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone #3, its
regional comprehensive plan in April 2008. The plan serves as an advisory document for
counties and communities within the region. As part of this planning effort, East Central
developed a vision for land use, which states:
East Central will promote land use patterns which foster healthy communities, preserve
individual community identity, enhance personal mobility, reduce the cost of services and
protect our natural environment.
The Milestone #3 report contains four land use “plan guidelines” which contain goals, strategies,
and recommendations for achieving this vision. “Plan guidelines” include: LU-1: Land
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-5
Consumption and Development, LU-2: Regional and Community Character, LU-3: Balancing
Community Interests and Property Rights, and LU-4: Regional and Local Sustainability.
County Policies
Winnebago County
A Multi-Jurisdictional Comprehensive Plan for Winnebago County: 2016-2035. The
Winnebago County Comprehensive Plan was adopted in 2016. The plan’s land use element
provides the following goals:
Small, compact development that integrates public spaces into development.
Large areas with low population density and small areas with high population density.
Development and protection of nature-based recreational resources.
Provision of housing for all populations.
Effective transportation system, including continued development of public transit,
automobiles, and pedestrian and bicycle modes.
Vital infrastructure and services balanced with reasonable and equitable taxes.
Education of public and private landowner on environmental stewardship and
conservation ethic.
Effective protection of natural resources.
The rural, agricultural area maintained in large, contiguous tracts.
Healthy urban centers with diversified uses.
Historical preservation of unique community characteristics.
Maintenance and enhancement of q quality education system.
Owner rights balanced with community rights.
Promote communication and respect between diverse populations.
County Code of Ordinances. The Winnebago County Code of Ordinances regulates private
on-site wastewater treatment systems, land divisions, land uses and other ordinances that may
be relevant to the City and / or the 3 mile extraterritorial area. Several chapters that relate to
land use are summarized below.
Chapter 18 - Subdivisions and Platting. The ordinance facilitates division of larger parcels of
land into smaller parcels of land through two methods: Certified Survey Maps (CSMs) and Plats.
Certified Survey Maps create up to four new lots, parcels or tracts from the parent parcel. Plats
are required for land subdivisions that create five or more lots created from the parent parcel.
The ordinance also contains design standards for streets, blocks, setbacks and utility
easements.
Chapter 20 – Non-Metallic Mining. The purpose of this chapter is to establish a local program
to ensure the effective reclamation of nonmetallic mining sites on which nonmetallic mining
takes place in Winnebago County.
Chapter 26 – Floodplain Zoning Code. This chapter is intended to regulate floodplain
development to protect life, health and property; minimize expenditures of public funds for flood
control projects; minimize rescue and relief efforts undertaken at the expense of the taxpayers;
minimize business interruptions and other economic disruptions; minimize damage to public
facilities in the floodplain; minimize the occurrence of future flood blight areas in the floodplain;
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
D-6 East Central Wisconsin Regional Planning Commission
discourage the victimization of unwary land and homebuyers; prevent increases in flood heights
that could increase flood damage and result in conflicts between property owners; and
discourage development in a floodplain if there is any practicable alternative to locate the
activity, use or structure outside of the floodplain.
Chapter 27 – Shoreland Zoning Code. Shorelands are defined as lands which are: 1,000 feet
from the ordinary high water elevation mark of navigable lakes, ponds, or flowages; or 300 feet
from the ordinary high water elevation mark of navigable rivers or streams. If the landward side
of the floodplain exceeds either of these two measurements, this is used as the zoning
standard. Wetlands means those areas where water is at, near or above the land surface long
enough to be capable of supporting aquatic or hydrophytic vegetation and which have soils
indicative of wet conditions. This ordinance controls the lot size, building setbacks, landfills,
agricultural uses, alteration of surface vegetation, sewage disposal, filling, grading, lagoons, and
other uses which may be detrimental to this area.
Winnebago County Farmland Preservation Plan, adopted March 13, 2012. The Winnebago
County Farmland Preservation Plan is included in the Winnebago County Comprehensive Plan.
The plan is intended to guide local efforts related to farmland protection and the promotion of
the agricultural sector in Winnebago County during the 15-year period from 2012 through 2026.
The goals of the plan are: (1) Protect farmland in Winnebago County, while balancing
landowner rights and community benefit; (2) Maintain a strong agricultural economy; (3) Support
agriculture-related businesses and support systems; and (4) Promote urban agriculture. The
intent of the plan is to meet the requirements of chapter 91 of the Wisconsin State Statutes for
Farmland Preservation and help maintain sustainable agriculture economies in the county as
well provide an informational base to assist decision makers in the preservation of farmland and
agriculture related development within the county.
2011-2020 Winnebago County Land and Water Resource Management (LWRM) Plan.
Appendix C, 2016- 2020 Work Plan was updated in 2016. The LWRM) addresses soil and
water quality concerns using local, state and federal programs. The goal of the Winnebago
County Land and Water Resource Management Plan is to restore, improve, and protect the
ecological diversity and quality and promote the beneficial uses of the land, water, and related
resources found throughout the county.
Winnebago County Comprehensive Park and Recreation Plan, 2013 -2017. The
Winnebago County Comprehensive Park and Recreation Plan, adopted in 2013, describes
existing conditions, projects future growth, and offers recommendations to guide the future
growth and development of recreational facilities in Winnebago County. The plan identifies
three goals: (1) Provide throughout the county a planned system of parks and recreation areas
that will enable county residents and visitors alike to participate in and enjoy a diversity of
recreational activities; (2) Preserve scarce and valuable resources important to the ecological,
sociological, and economic life of the county; and (3) To encourage continued involvement of
county residents when planning for parks and recreational development.
Local Policies
City of Oshkosh
Code of Ordinances. The City’s Code of Ordinances regulates land divisions and land uses.
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-7
Official Map. The City of Oshkosh has an official map. An official map is intended to
implement a master plan for a city, village or town. The master plan helps direct development
by designating areas for streets, highways, parkways, floodplains, and other pertinent land
uses. Official maps direct development away from sensitive areas which are designated for
future public use.
State and Regional Programs
State Programs
Land and Water Resource Management Planning Program (LWRM). The land and water
resource management planning program (LWRM) was established in 1997 by Wisconsin Act 27
and further developed by Wisconsin Act 9 in 1999.2 Although both Acts are designed to reduce
non-point pollution, Wisconsin Act 27 regulates rural and agricultural sources while Wisconsin
Act 9 regulates urban sources. Counties are required to develop LWRM plans and revise these
plans every five years. Only counties with DATCP approved LWRM plans are eligible to receive
annual funding through the soil and water resource management grant program. Plans must be
developed through a locally led process that identifies local needs and priorities and describes
how a county will implement runoff control standards for farms and urban areas. All LWRM
plans must be approved by the Wisconsin Department of Agriculture, Trade, and Consumer
Protection.
Regional Programs
East Central Wisconsin Regional Planning Commission
Community Development and Affordable Housing. This program element incorporates the
Commission’s ongoing efforts to help address regional land use and housing issues which have
a strong relationship with the regional economic development strategy for the region. Examples
of work under this program element relating to land use include: neighborhood planning, zoning
ordinance assistance, urban/rural development strategies, downtown redevelopment,
waterfront/riverfront planning, subdivision ordinance assistance, and historic preservation.
ECONOMIC DEVELOPMENT
Regional and County Policies
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone #3, its
regional comprehensive plan in April 2008. The plan serves as an advisory document for
counties and communities within the region. As part of this planning effort, East Central
developed a vision for economic development, which states:
2 Wisconsin Department of Agriculture, Trade and Consumer Protection. http://datcp.wi.gov .
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
D-8 East Central Wisconsin Regional Planning Commission
The East Central Region has diversified employment opportunities including well paid
knowledge based jobs. The regional economy benefits from advances in research and
technology and supports entrepreneurialism and local business ownership. The region
conducts collaborative economic development efforts across jurisdictional boundaries of
governments, educational institutions, and other economic development entities. The
preservation of natural resource amenities supports tourism opportunities, assists in
attracting an educated workforce and enhances the quality of place for residents in the
region.
The Milestone #3 report contains five economic development “plan guidelines”, which contain
goals, strategies, and recommendations for achieving this vision. More Information is available
at: http://www.ecwrpc.org/programs/comprehensive-planning/.
Comprehensive Economic Development Strategy (CEDS) Report
The East Central Wisconsin Regional Planning Commission annually creates a Comprehensive
Economic Development Strategy (CEDS) report, which evaluates local and regional population
and economic activity. Economic development trends, opportunities, and needs are identified
within the CEDS report. All communities, which are served by the Commission, are invited to
identify future projects for economic development that the community would like to undertake.
Those projects are included within the CEDS and may become eligible for federal funding
through the Economic Development Administration (EDA) Public Works grant program.
Additional information can be found at http://www.ecwrpc.org/programs/economic-development-
housing/ceds/.
County Policies
Winnebago County
A Multi-Jurisdictional Comprehensive Plan for Winnebago County: 2016-2035. The
Winnebago County Comprehensive Plan was adopted in 2016. Economic development policies
and programs in Winnebago County are to achieve maintenance and enhancement of a strong
economic base through economic diversification, labor force education and development, and
efficient movement of goods, services, and employees that also protects our quality
environment and community atmosphere.
Federal, State, Regional, Local and Private Programs
Federal Programs
Occupation Safety and Health Administration (OSHA)
Susan Harwood Training Grants Program. These training grants are awarded to
nonprofit organizations for training and education. They can also be used to develop
training materials for employers and workers on the recognition, avoidance, and
prevention of safety and health hazards in their workplaces. Grants fall into two
categories; Target Topic Training and Training Materials Development. The Target
Topic Training grants are directed towards specific topics chosen by OSHA. Follow-up
is required to determine the extent to which changes were made to eliminate hazards
associated with the chosen topic. The Training Materials Development grants are
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Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-9
specifically aimed at creating classroom quality training aids. Aids which are developed
under the grant program must be ready for immediate self-study use in the workplace.
Information regarding the Susan Harwood Training Grant Program can be found at
https://www.osha.gov/dte/sharwood/.
United States Department of Labor
The Employment and Training Administration (ETA) administers federal government job
training and worker dislocation programs, federal grants to states for public employment
service programs, and unemployment insurance benefits. These services are primarily
provided through state and local workforce development systems. More information on
grant opportunities can be found at: https://www.doleta.gov/grants/find_grants.cfm.
United States Environmental Protection Agency (EPA)
One Cleanup Program. The One Cleanup Program is EPA's vision for how different cleanup
programs at all levels of government can work together to meet that goal and ensure that
resources, activities, and results are effectively coordinated and communicated to the public.
The EPA has entered into a memorandum of understanding with the Wisconsin DNR to provide
a single, consolidated approach to environmental cleanup. More information regarding the
program can be found at: http://dnr.wi.gov/topic/brownfields/rrprogram.html.
State Programs
There are many state programs that communities can consider utilizing to meet their stated
goals and objectives. While not an all-inclusive list, there are several programs that the City
should consider and are addressed below.
Wisconsin Department of Administration
Community Development Block Grant for Economic Development (CDBG-ED).
CDBG-ED grant funds are awarded to local governments to assist businesses to create
or retain jobs for individuals with low and moderate income. Additional information
regarding the CDBG-ED program can be found at
http://doa.wi.gov/Divisions/Housing/Bureau-of-Community-Development.
CDBG Public Facilities Funds (CDBG-PF). CDBG-PF funds help support
infrastructure and facility projects for communities. Some examples of eligible projects
include streets, drainage systems, water and sewer systems, sidewalks, and community
centers. Additional information regarding the CDBG-PF program can be found at
http://doa.wi.gov/Divisions/Housing/Bureau-of-Community-Development.
CDBG Planning Funds. CDBG Planning grant funds support community efforts to
address improving community opportunities and vitality. Grants are limited to projects
that, if implemented, are CDBG eligible activities. Additional information regarding the
CDBG Planning funds program can be found at
http://doa.wi.gov/Divisions/Housing/Bureau-of-Community-Development.
CDBG Public Facility - Economic Development (CDBG PF-ED). CDBG PF-ED
grants are awarded to local government for public infrastructure projects that support
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D-10 East Central Wisconsin Regional Planning Commission
business expansion or retention. Additional information regarding the PF-ED funds
program can be found at http://doa.wi.gov/Divisions/Housing/Bureau-of-Community-
Development.
CDBG Emergency Assistance (EAP). The CDBG-EAP program assists communities
to recover from a recent natural or manmade disaster. Eligible activities include repair of
disaster related damage to dwellings, assistance to purchase replacement dwellings,
and repair and restore public infrastructure and facilities.
http://www.doa.state.wi.us/Divisions/Housing/CDBG-EAP.
Venture Capital Investment Program. The venture capital investment program was
created as part of 2013 Wisconsin Act 41. This program will help create jobs and
promote economic growth in Wisconsin by identifying new investors for Wisconsin,
bringing new capital to Wisconsin investments, and cultivating Wisconsin
entrepreneurship.
Wisconsin Department of Transportation
Transportation Economic Assistance (TEA) Program. The Transportation Economic
Assistance (TEA) program provides 50% state grants to governing bodies, private
businesses, and consortiums for road, rail, harbor and airport projects that help attract
employers to Wisconsin, or encourage business and industry to remain and expand in
the state. Additional information regarding the TEA program can be found at the
following website: http://www.dot.wisconsin.gov/localgov/aid/tea.htm.
State Infrastructure Bank Program. This program is a revolving loan program that
helps communities provides transportation infrastructure improvements to preserve,
promote, and encourage economic development and/or to promote transportation
efficiency, safety, and mobility. Loans obtained through SIB funding can be used in
conjunction with other programs. Additional information regarding the State
Infrastructure Bank Program can be found at http://wisconsindot.gov/Pages/doing-
bus/local-gov/astnce-pgms/aid/sib.aspx.
Freight Railroad Infrastructure Improvement Program. This program awards loans
to businesses or communities wishing to rehabilitate rail lines, advance economic
development, connect an industry to the national railroad system, or to make
improvements to enhance transportation efficiency, safety, and intermodal freight
movement. Additional information for the Freight Railroad Infrastructure Improvement
Program is available at http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-
pgms/aid/default.aspx.
Freight Railroad Preservation Program. The Freight Railroad Preservation Program
provides grants to communities to purchase abandoned rail lines in the effort to continue
freight rail service, preserve the opportunity for future rail service, and to rehabilitate
facilities, such as tracks and bridges, on publicly-owned rail lines. Additional information
for the Freight Railroad Infrastructure Improvement Program is available at
http://www.dot.state.wi.us/localgov/aid/frpp.htm.
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East Central Wisconsin Regional Planning Commission D-11
Wisconsin Department of Natural Resources
Remediation and Redevelopment Program (RR). The WDNR Remediation and
Redevelopment program oversees the investigation and cleanup of environmentally
contaminated sites (e.g. “brownfields.” The program is comprehensive, streamlined, and
aims to consolidates state and federal cleanups into one program. More information can
be found at http://dnr.wi.gov/topic/Brownfields/.
Regional Programs
East Central Wisconsin Regional Planning Commission
Economic Growth and Resiliency Program. The primary focus of this program element is to
coordinate and promote the federal Economic Development Administration's (EDA's) programs
with public and private stakeholders throughout the region. East Central also coordinates and
communicates with State of Wisconsin economic development agencies and programs,
including the Wisconsin Economic Development Corporation (WEDA). Examples of work under
this program element relating to economic development include: access to EDA grants for
eligible projects, development of the Comprehensive Economic Development Strategy (CEDS
5-year update) and subsequent CEDS annual reports, database of industrial parks, facilitation of
joint economic development efforts, industrial site plans, industrial site data, ESRI Business
Analyst Market Assessments/Profiles, EMSI Economic Impact Scenario Modeling, tourism
development and marketing, local economic development strategy process/reports, global
trade/exporting information, heritage tourism planning, maintain/update the "Farm Fresh Atlas"
map, GDBG grant assistance/administration, business development grants, tourism grants and
historic preservation grants. Additional information on some of the programs is provided below:
EMSI Developer. EMSI Developer is used by ECWRPC to provide economic data to
requesting economic development entities or municipalities in the East Central WI Region as a
service of WEDC. EMSI data is composed of comprehensive information on industries,
occupations, demographics - as well as things like occupational skills, education, training, and
even the names and size of companies in your region broken down by industry. EMSI links
more than 90 data sources from federal sources like the Bureau of Labor Statistics to state and
private sources. Additional information on EMSI Analyst is available at
http://www.ecwrpc.org/programs/economic-development-housing/economic-data-resources/.
Global Trade Strategy. As part of the Economic Development Administration’s Community
Trade Adjustment Assistance Program, ECWRPC developed a study to increase exports for
small to medium size companies in NE Wisconsin. This program assists communities impacted
by trade with economic adjustment through the: (1) coordination of federal, state, and local
resources; (2) creation of community‐based development strategies; and (3) development and
provision of programs that help communities adjust to trade impacts. The Community TAA
Program is designed to provide a wide range of technical, planning, and infrastructure
assistance and respond adaptively to pressing trade impact issues. Fond du Lac County was
one of nine counties identified by the Department of Labor as being significantly impacted by
global trade. More information on the Global Trade Strategy is available at
http://www.ecwrpc.org/programs/economic-development-housing/economic-data-resources/.
Initiative 41. Initiative 41 was formed as a result of large-scale layoffs by Oshkosh Corporation
in 2012-2013 that impacted much of the East Central region. This initiative focuses on the I-41
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D-12 East Central Wisconsin Regional Planning Commission
corridor from Green Bay to Fond du Lac. It is designed to create greater economic diversity by
increasing collaborative efforts between businesses, governments, community leaders,
universities and technical colleges throughout the region. Additional information on Initiative 41
is available at http://www.ecwrpc.org/programs/economic-development-housing/initiative-41/.
Northeast Wisconsin Regional Economic Partnership
The combined Bay-Lake and East Central Wisconsin Regional Planning Commission areas
were named as Technology Zone by the Wisconsin Department of Commerce in 2002. The
Northeast Wisconsin Regional Economic Partnership (NEWREP) Technology Zone has
provided over $5 million in tax credits to businesses certified by Commerce, based on a
company’s ability to create jobs and investment and to attract related businesses. The
Technology Zone Program focuses primarily on businesses engaged in research, development,
or manufacture of advanced products or those that are part of an economic cluster and
knowledge-based businesses that utilize advanced technology production processes in more
traditional manufacturing operations. Additional information can be found at
http://newnorthwww.web1.buildmyownsite.com/doing-business/new-regional-economic-
partnership-(newrep).
New North, Inc.
New North’s mission is “to harness and promote the region's resources, talents and creativity for
the purposes of sustaining and growing our regional economy.” New North maintains a number
of regionally based economic development committees charged with addressing the following
initiatives:
Fostering regional collaboration
Focusing on targeted growth opportunities
Supporting an entrepreneurial climate
Encouraging educational attainment
Encouraging and embracing diverse talents
Promoting the regional brand
For more information on the New North, visit: http://www.thenewnorth.com/.
ADVOCAP
ADVOCAP, a non-profit community action agency, was founded in 1966 to fight poverty within
our local communities. It offers programs in Fond du Lac, Green Lake and Winnebago counties
and helps low-income person’s secure affordable housing, gain employment skills and training,
start a small business and become self-employed, volunteer at schools and daycares, etc.
More information regarding ADVOCAP can be found at: http://www.advocap.org/.
Fox Cities Regional Partnership
The Fox Cities Regional Partnership is an organization committed to helping businesses locate
and expand in the Fox Cities Region, and supported by public and private sector partners from
around the region. Located in east-central Wisconsin, along the banks of the Fox River and
Lake Winnebago, the Fox Cities Region is comprised of several dozen communities, the largest
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East Central Wisconsin Regional Planning Commission D-13
of which is the City of Appleton. Additional information on the Fox Cities Regional Partnership is
available at http://foxcitiesregionalpartnership.com/.
Local Programs
Greater Oshkosh Economic Development Corporation (GO EDC)
To provide leadership, direction, coordination, and services to advance economic development
in the greater Oshkosh area.
City of Oshkosh Economic Development Division
The City of Oshkosh offers assistance with locating, expanding, or starting businesses in the
city.
Private Programs
Wisconsin Economic Development Corporation
WEDC is a quasi-public agency and is the state’s lead economic development agency. It works
collaboratively with more than 600 regional and local partner organizations, educational
institutions and other government offices to help businesses, communities and individuals take
advantage of new opportunities for growth and job creation through innovative market-driven
programs.
Main Street Program. The Main Street program assists communities ranging from
towns with populations of less than 1,000 to large neighborhoods in Milwaukee and
Green Bay. Communities selected to participate in the Wisconsin Main Street Program
initially receive five years of free, intensive technical assistance. The end goal is to
enable participating communities to professionally manage a downtown or historic
commercial district that is stable, physically attractive, competitive and visible. Additional
information can be found at http://inwisconsin.com/community-
development/programs/main-street-program/.
Connect Communities Program. The Connect Communities Program helps local
planners leverage the unique assets of their downtowns and urban districts, providing
technical assistance and networking opportunities to local leaders interested in starting a
downtown revitalization effort. It also provides access to additional financial and
technical assistance programs. Additional information on the Connect communities
Program is available at: http://inwisconsin.com/community-
development/programs/connect-communities-program/.
Capacity Building Grants. Capacity Building (CAP) Grant funds are designed to help
strengthen Wisconsin’s economic development network by assisting local and regional
economic development groups with economic competitive assessments and the
development of a Comprehensive Economic Development Strategy. Additional
information regarding the CAP grants can be found at http://inwisconsin.com/grow-your-
business/programs/capacity-building-grants/.
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D-14 East Central Wisconsin Regional Planning Commission
Brownfield Program. Wisconsin’s Brownfield Program provides grant funds to assist
local governments, businesses and individuals with assessing and remediating the
environmental contamination of an abandoned, idle or underused industrial or
commercial facility or site. This program will help convert contaminated sites into
productive properties that are attractive and ready for redevelopment. Additional
information regarding the Brownfield Program can be found at
http://inwisconsin.com/grow-your-business/programs/brownfield-program/.
Enterprise Zone Tax Credit. A certified business may qualify for tax credits only for
eligible activities that occur after an eligibility date established by WEDC. Positions that
are created as a result of the tax credits claimed shall be maintained for at least five
years after the certification date established by WEDC. Additional information regarding
the Enterprise Zone Tax Credit program can be found at http://inwisconsin.com/grow-
your-business/programs/enterprisecredit/.
Industrial Revenue Bond. Industrial Revenue Bonds (IRBs) are designed to help
Wisconsin municipalities support industrial development through the sale of tax-exempt
bonds. RB financing can be used for building, equipment, land, and bond issuance
costs, but not for working capital. Additional information regarding the Industrial
Revenue Bond program can be found at http://inwisconsin.com/grow-your-
business/programs/industrial-revenue-bond/.
Wisconsin Manufacturing and Agriculture Credit. The manufacturing and agriculture
tax credit is available to individuals and entities for taxable years that begin on or after
January 1, 2013, for manufacturing and agricultural activities in Wisconsin. The tax credit
is available for income derived from manufacturing or agricultural property located in
Wisconsin and will offset a significant share of Wisconsin income taxes. The credit is a
percentage of “eligible qualified production activities income. Additional information
regarding the Wisconsin Manufacturing and Agriculture Credit program can be found at
http://inwisconsin.com/grow-your-business/programs/wisconsin-manufacturing-and-
agriculture-credit/.
Business Opportunity Loan. Business Opportunity Loans are available to a business
that has created new full-time positions and/or retained its existing full-time employment
base in Wisconsin. Additional information regarding Business Opportunity Loans can be
found at http://inwisconsin.com/grow-your-business/programs/business-opportunity-
loan/.
Impact Loans. Impact Loans are available to businesses with expansion projects that
will have a significant impact on job creation, job retention, and capital investment on the
surrounding community. WEDC’s Impact Loan Program is a forgivable loan program.
Additional information regarding Impact Loans can be found at
http://inwisconsin.com/grow-your-business/programs/impact-loans/.
Economic Development Tax Credits (Etc.). Economic Development Tax Credits
(ETC) are available for businesses that begin operating in, relocate to, or expand an
existing operation in Wisconsin. Additional information regarding Economic
Development Tax Credits can be found at http://inwisconsin.com/grow-your-
business/programs/economic-development-tax-credits/.
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East Central Wisconsin Regional Planning Commission D-15
Training Grants. Rodrigues Training grants are available to any business making a firm
commitment to locate a new facility in Wisconsin or expand an existing facility within the
state, and is upgrading a product, process or service that requires training in new
technology and industrial skills. Grants fund business upgrades to improve the job-
related skills of its full-time employees. Additional information regarding Training Grants
can be found at http://inwisconsin.com/grow-your-business/programs/training-grants/.
Minority Business Development Revolving Loan Fund. The Minority Business
Development Revolving Loan Fund Program (MRLF) is designed to support minority
business development through business creation, business expansion and minority
community business attraction. This is accomplished through direct grant assistance to
qualifying minority business associations in Wisconsin. Grant assistance is provided to
minority business associations for Revolving Loan Funds, technical assistance and used
as a pass through to fund training. Additional information is available at
http://inwisconsin.com/inside-wedc/transparency/programs/minority-business-rlf/.
Wisconsin Entrepreneurs’ Network
Business Planning or Commercialization Planning Assistance. The Business or
Commercialization Planning assistance micro-grant can fund up to 75% of the costs, limited to
$4000, spent on hiring an independent, third party to write a comprehensive business or
commercialization plan for a Wisconsin business. The program is limited to businesses in
certain industries. Additional information regarding the Business or Commercialization Planning
assistance micro-grants can be found at http://www.wenportal.org/.
HOUSING
State, Regional, County, and Local Policies
State Policies
Wisconsin Department of Administration
Wisconsin Consolidated Housing Plan; 2015-2019. The Wisconsin 2015-2019 Consolidated
Plan, developed by the Wisconsin Department of Administration, Division of Housing (DOH),
details the Division’s overall strategy for addressing housing, community, and economic
development needs. The plan defines how the Division of Housing will distribute grant funds to
local governments, public and private organizations, and businesses. Additional information is
available at: http://www.doa.state.wi.us/Divisions/Housing/Consolidated-Plan.
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone #3, its
regional comprehensive plan in April 2008. The plan serves as an advisory document for
counties and communities within the region. As part of this planning effort, East Central
developed a vision for housing, which states:
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D-16 East Central Wisconsin Regional Planning Commission
In 2030 in the East Central Wisconsin region, a dynamic housing market fosters community
and neighborhood cohesion. Varied types of quality housing are integrated with community
facilities and various transportation alternatives. This housing market meets the needs of
urban and rural households of all types, ages, income, cultures and mobility status.
The Milestone #3 report contains four housing plan guidelines, which contain goals, strategies,
and recommendations for achieving this vision. The plan can be view at the following link:
http://www.eastcentralrpc.org/planning/compplan/milestone3/MS3Final/ms3final.htm.
Overcoming Barriers to Affordable Housing in the East Central Region. In January 2004,
East Central adopted the report, Overcoming Barriers to Affordable Housing in the East Central
Region. This report is a compilation of input from urban and rural residents, who identified
barriers to affordable housing in their communities and suggested potential solutions that local
citizens, county and local governments, developers and other housing providers can use to
address these issues. Some of the identified issues and potential solutions which are pertinent
to the Town of Greenville include senior housing issues, income and economic development
barriers and access to funding, to name a few. This report is available online at:
www.eastcentralrpc.org and through the ECWRPC office. Communities and agencies are
encouraged to review the options presented and choose the best option or combination of
options which best serve the needs of their residents and clients. Communities and individuals
from the private and nonprofit sectors are encouraged to develop additional solutions and share
those solutions with others to help improve the quality of life for all residents in our communities.
County Policies
Winnebago County
A Multi-Jurisdictional Comprehensive Plan for Winnebago County: 2016-2035. The
Winnebago County Comprehensive Plan was adopted in 2016. The plan’s housing element
provides the following goal “To achieve a provision of housing choices for all residents, including
different age, income, and special need levels, that protect the environments, balance fiscal
constraints with available services, and promote a strong economy”.
Local Policies
City of Oshkosh
Code of Ordinances. The City’s Code of Ordinances regulates land divisions and land uses.
Official Map. The City of Oshkosh has an official map. An official map is intended to
implement a master plan for a city, village or town. The master plan helps direct development
by designating areas for streets, highways, parkways, floodplains, and other pertinent land
uses. Official maps direct development away from sensitive areas which are designated for
future public use.
Federal, National Private, State, Regional, County and Local Programs
Funding and technical assistance for housing programs are available from several federal,
state, and regional agencies. In addition the City is an annual recipient of federal Community
Development Block Grant (CDBG) funds. A listing of these programs follows.
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Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-17
Federal Programs
United States Department of Housing and Urban Development
Brownfield Economic Development Initiative Grant. This grant can be used for
brownfield sites (converting old industrial to residential). BEDI and Section 108 funds
must be used in conjunction with the same economic development project, and a
request for new Section 108 loan guarantee authority must accompany each BEDI
application. Funds can be used to benefit low-moderate income persons,
prevent/eliminate slum and blight, and address imminent threats and urgent needs
(usually follow the same guidelines as CDBG). More specifically, funds can be used for
land write downs, site remediation costs, funding reserves, over-collateralizing the
Section 108 loan, direct enhancement of the security of the Section 108 loan, and
provisions of financing to for-profit businesses at below market interest rates. The
maximum grant amount is $1 million, and the minimum BEDI to Section 108 ratio is 1:1.
For more information visit the web site at: https://www.hudexchange.info/programs/bedi/.
Multi-Family Housing Programs. HUD offers a number of multi-family programs
through the state. These programs fund facility purchases, construction, rehabilitation,
lead based paint abatement, energy conservation and accessibility improvements. For
more information, visit HUD’s website at:
http://portal.hud.gov/hudportal/HUD?src=/program_offices/housing/mfh/grants.
Public Housing Programs. HUD offers a number of public housing programs for the
development/redevelopment or management of public housing authorities, rental
assistance through the Section 8 program and some limited homeownership
opportunities. General information can be found at:
http://www.hud.gov/progdesc/pihindx.cfm. Information regarding the Oshkosh -
Winnebago Public Housing Authority can be found at: http://www.ohawcha.org/
Affordable Housing Program. The National Housing Trust Fund is a new program
designed to complement existing federal, state and local efforts to increase and preserve
the supply of decent, safe, and sanitary affordable housing for extremely low-income and
very low-income households, including homeless families. Grantees are required to use
at least 80 percent of each annual grant for rental housing; up to 10 percent for
homeownership housing; and up to 10 percent for the grantee's reasonable
administrative and planning costs. Eligible activities include: real property acquisition;
site improvements and development hard costs; related soft costs; demolition; financing
costs; relocation assistance; operating cost assistance for rental housing (up to 30% of
each grant); and reasonable administrative and planning costs. General information can
be found at: https://www.hudexchange.info/programs/htf/.
Single Family Housing Programs. HUD offers a number of single family home
programs, including homebuyer education and counseling, down payment assistance,
rehabilitation, weatherization, mortgage insurance and reverse mortgages. For general
information, visit HUD’s website at:
http://portal.hud.gov/hudportal/HUD?src=/program_offices/housing/sfh. Some of these
products, such as FHA loans, are available through approved lending institutions.
Access to HUD single family home programs can also be obtained through Wisconsin
Housing and Economic Development Authority (WHEDA) or the Wisconsin Department
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D-18 East Central Wisconsin Regional Planning Commission
of Administration (DOA) Division of Housing. Information about products WHEDA
provides can be found on WHEDA’s website at: http://www.wheda.com/root/. For
information about products provided through the DOA, visit the Wisconsin Department of
Administrations Division of Housing website at: http://doa.wi.gov/Divisions/Housing.
Special Needs Programs. HUD also funds programs for special need populations
through the state. Information regarding emergency shelter/transitional housing
programs or housing opportunities for people with AIDS can be found at the Wisconsin
Department of Administration Division of Housing website at:
http://doa.wi.gov/Divisions/Housing/Bureau-of-Supportive-Housing.
Federal Financial Institutions Examination Council
Community Reinvestment Act. Through the Community Reinvestment Act (CRA),
banks/financial institutions help meet the credit/investment needs of their markets with
the primary purpose of community development. This is in part accomplished through
direct grants/investments or loans to nonprofits or agencies to develop affordable
housing. Direct loans are also given to individual households of which a certain
percentage must go to low to moderate income households. More information can be
obtained from their website: http://www.ffiec.gov/cra/default.htm or from your local
financial institution.
United States Department of Veterans Affairs
Home Loan Guaranty Service. The Veterans Administration provides a variety of
benefits for eligible veterans and their dependents. Housing products include low cost
loans for purchase, construction or repair of owner-occupied housing. General
information can be obtained from the Veteran’s Affairs at:
http://www.benefits.va.gov/homeloans/.
Veteran Housing and Recovery Program. The Veteran Housing and Recovery
Program (VHRP) help homeless veterans and veterans at risk of homelessness. This
program is designed to help homeless veterans receive job training, education,
counseling and rehabilitative services needed to obtain steady employment, affordable
housing and the skills to sustain a productive lifestyle. General information on this
program is available at: http://dva.state.wi.us/Pages/benefitsClaims/VHRP.aspx.
Winnebago County Veterans Service Office. Additional information for veterans and
their dependents at the following website: https://www.co.winnebago.wi.us/veterans.
National Private Programs
National Association of Home Builders (NAHB)
The National Association of Home Builders is a trade organization that represents the building
industry. They provide information and education about construction codes and standards,
national economic and housing statistics, a variety of housing issues, jobs within the housing
industry and information about local builders who are members of their organization. Visit their
website at: http://www.nahb.org/ for more information.
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Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-19
National Low Income Housing Coalition (NLIHC)
NLIHC is a national advocacy group which conducts research on low income housing issues,
provides information and data on a variety of housing or housing related issues affecting low
income families and publishes reports and data regarding low income housing issues and
legislation. Their mission is to end the affordable housing crisis for low income families.
Information about NLIHC and its activities can be found at: http://www.nlihc.org/. NLIHC also
has a number of state partners. Wisconsin has two State Coalition Partners, the Wisconsin
Partnership for Housing Development, Inc. and Wisconsin Community Action Association. For
information about the Wisconsin Partnership for Housing Development, visit their website at:
http://www.wphd.org/. For information about Wisconsin Community Action Association, visit
their website at http://wiscap.org/programs-services/programs/housing/.
State Programs
University of Wisconsin – Extension
Family Living Program. The family living program provides assistance to families
throughout Winnebago County. Some of these programs include financial and parent
education, Rent Smart training and home maintenance. For information visit the UW-
Extension Family Living webpage at: http://winnebago.uwex.edu/family-living/.
Homeowner Resources. UW -Extension provides a number of publications and
materials to aid homeowners. Topics include home care, home maintenance and repair,
life skills, financial information, gardening, landscaping, pest control, etc. These
publications may be obtained through the Winnebago County UW -Extension office, or
accessed online at: http://www.uwex.edu/topics/publications/.
Housing – Ownership and Renting. UW-Extension provides a website which includes
information on home maintenance and repair, a seasonal newsletter, and Rent Smart,
which is a tenant education program. This website is located at:
http://www.uwex.edu/ces/house/renting.html. Publications are also available in Spanish.
Wisconsin Department of Agriculture, Trade and Consumer Protection (DATCP)
Consumer Protection. DATCP publishes a number of resources for renters, landlords
and homeowners. These publications can be found on DATCAP’s website at:
http://datcp.wi.gov/Consumer/Law_at_Your_Fingertips/Landlord_Tenant_Practices/Health
_and_Safety_Hazards/index.aspx.
Wisconsin Department of Administration - Division of Housing
The Department of Administration – Division of Housing helps to expand local affordable
housing options and housing services by managing a number of federal and state housing
programs and providing financial and technical assistance. Visit their website at:
http://doa.wi.gov/Divisions/Housing for additional information.
Community Development Block Grant Emergency Assistance Program (CDBG-
EAP). The CDBG-EAP program assists local units of government that have recently
experienced a natural or manmade disaster. CDBG-EAP funds may be used to address
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D-20 East Central Wisconsin Regional Planning Commission
damage, including: repair of disaster related damage to the dwelling unit, including repair
or replacement of plumbing, heating, and electrical systems; acquisition and demolition
of dwellings unable to be repaired; down payment and closing cost assistance for the
purchase of replacement dwellings; assistance is limited to 50 percent of the pre-market
equalized assessed value; publicly owned utility system repairs for streets, sidewalks
and community centers. Additional information is available at:
http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-Affordable-Housing.
Community Development Block Grant (CDBG) - Small Cities Housing Program.
These funds are primarily used for rehabilitation of housing units, homebuyer assistance,
and small neighborhood public facility projects. CDBG dollars are flexible and responsive
to local needs.
Community Development Block Grant (CDBG) - Revolving Loan Fund. CDBG
housing funds are loaned to low and moderate-income (LMI) households (households at
or below 80% of county median income) to make needed repairs to their homes. These
funds are also loaned to local landlords in exchange for an agreement to rent to LMI
tenants at an affordable rate. CDBG housing funds are repaid to the community when
the borrower moves or when the unit ceases to be the borrower's principal place of
residence. Loan to landlords are repaid on a monthly basis. Loans repaid to the
community are identified as CDBG-Revolving Loan Funds (CDGB-RLF). This program
is administered through the City for additional information, please contact the City.
Community Housing Development Organizations (CHDO). A CHDO is a private
nonprofit housing development corporation which among its purposes is the
development of decent housing that is affordable to low- and moderate-income persons.
CHDO’s may qualify for special project funds, operating funds and technical assistance
support associated with the state's HOME Investment Partnership Program (HOME).
Additional information on CHDO can be found at
http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-Affordable-Housing.
Housing Cost Reduction Initiative (HCRI). The HCRI program provides housing
assistance to low- and moderate-income (LMI) households seeking to own or rent
decent, safe, affordable housing. Funds are awarded to communities and local housing
organizations to fund a range of activities that build, buy, and/or rehabilitate affordable
housing for low income homeowners, homebuyers, and renters. Additional information
on the HCRI program can be found at
http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-Affordable-Housing.
HOME-Homebuyer and Rehabilitation Program (HHR). The HHR program provides
funding for (1) Homebuyer assistance to eligible homebuyers for acquisition (down
payment and closing costs), acquisition and rehabilitation, or new construction; (2)
Owner-occupied rehabilitation for essential improvements to single-family homes serving
as the principal residence of LMI owners; and (3) Rental rehabilitation to landlords for
making essential repairs to units rented to tenants at or below 60% of the county median
income. Additional information on the HHR program can be found at
http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-Affordable-Housing.
Neighborhood Stabilization Program (NSP). The Neighborhood Stabilization
Program provides assistance to acquire and redevelop foreclosed properties that might
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East Central Wisconsin Regional Planning Commission D-21
otherwise become sources of abandonment and blight within their communities.
Additional information on the NSP program can be found at
http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-Affordable-Housing.
Rental Housing Development (RHD). The Rental Housing Development (RHD)
Program assists eligible housing organization, including Community Housing
Development Organizations (CHDOs), with funds to develop affordable rental housing.
Additional information on the RHD program can be found at
http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-Affordable-Housing.
Wisconsin Department of Health Services
Lead-Safe Wisconsin. Funds are available for individuals and organizations working toward
reducing lead-based paint hazards through home renovation and repair. There are different
grants available. Many focus on low and moderate-income homeowners or property owners with
tenants with low to moderate incomes. Some funding opportunities are aimed at special groups,
such as veterans and rural residents. Additional information on Lead-Safe Wisconsin can be
found at: https://www.dhs.wisconsin.gov/lead/tools.htm.
Wisconsin’s Focus on Energy
Focus on Energy is Wisconsin utilities’ statewide energy efficiency and renewable resource
program. It offers a variety of services and energy information to energy utility customers
throughout Wisconsin. To learn about the programs and services they offer, visit their website at:
http://www.focusonenergy.com.
Wisconsin Historical Society
Historic Preservation. The Wisconsin Historical Society offers technical assistance
and two tax credit programs for repair and rehabilitation of historic homes in Wisconsin.
One tax credit program provides state tax credits; the other program provides federal tax
credits. The Wisconsin Historic Society also provides grants to local governments and
nonprofit organizations for conducting surveys and developing historic preservation
programs. For additional information, visit: http://www.wisconsinhistory.org/hp/.
Wisconsin Housing and Economic Development Authority (WHEDA)
WHEDA Foundation. The WHEDA Foundation awards grants to local municipalities
and nonprofit organizations through the Persons-in-Crisis Program Fund to support the
development or improvement of housing facilities in Wisconsin for low-income persons
with special needs. Special needs is defined as homeless, runaways, alcohol or drug
dependent, persons in need of protective services, domestic abuse victims,
developmentally disabled, low-income or frail elderly, chronically mentally ill, physically
impaired or disabled, persons living with HIV, and individuals or families who do not
have access to traditional or permanent housing. For more information, visit WHEDA’s
web site at https://www.wheda.com/WHEDA-Foundation/.
WHEDA Multi-family Products. WHEDA offers a number of multi-family home
products, including tax credits, tax exempt bond funding, construction, rehabilitation and
accessibility loans, asset management and tax credit monitoring services. For
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D-22 East Central Wisconsin Regional Planning Commission
information about this programs, visit WHEDA’s web site at
https://www.wheda.com/WHEDA-Foundation/.
WHEDA Single Family Products. WHEDA offers a number of single family home
products, including home improvement or rehabilitation loans, homebuyer assistance
and homebuyer education. For information about this programs, visit WHEDA’s web site
at https://www.wheda.com/WHEDA-Foundation/.
Wisconsin Affordable Assisted Living. The WI Department of Health and Family
Services and the WI Housing and Economic Development Authority in partnership with
NCB Development Corporation's Coming Home Program, a national program of the
Robert Wood Johnson Foundation created Wisconsin Affordable Assisted Living. This
website is a resource guide for providers, developers and consumers. Additional
information on Affordable Assisted Living is available at
http://www.wiaffordableassistedliving.org/index.html.
WIHousingSearch.org
The WIHousingSearch.org is a searchable statewide data base designed to help connect those
looking for affordable housing with those providing housing and housing services. The website
is searchable by location, unit size, availability, accessibility and cost of rent. Landlords and
property managers can list their properties; they are also responsible for updating information
about their properties. Renters can search for housing and services to fit their needs.
WIHousingSearch.org is funded by Wisconsin Housing and Economic Development Authority,
Wisconsin Department of Health Services and Wisconsin Division of Housing. Additional
information on WIHousingSearch.org and to search the database can be found at
http://www.wihousingsearch.org/index.html.
Regional Programs
East Central Wisconsin Regional Planning Commission
Community Development and Affordable Housing. This program element incorporates the
Commission’s ongoing efforts to help address regional land use and housing issues which have
a strong relationship with the regional economic development strategy for the region. Examples
of work under this program element relating to housing include: housing assessments and
housing data, support for government, non-profit and for-profit agencies and they address
housing issues.
Fair Housing Center of Northeast Wisconsin
The Fair Housing Center of Northeast Wisconsin, a branch of the Metropolitan Milwaukee Fair
Housing Council, serves the counties of Brown, Calumet, Outagamie and Winnebago as well as
the City of Fond du Lac. It seeks to “promote fair housing by guaranteeing all people equal
access to housing opportunities and by creating and maintaining racially and economically
integrated housing patterns. The Fair Housing Center maintains four broad programmatic
areas: Enforcement, Outreach and Education, Fair Lending and Inclusive Communities.
Additional information on the Fair Housing Center of Northeast Wisconsin can be found at
http://www.fairhousingwisconsin.com/new.html.
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East Central Wisconsin Regional Planning Commission D-23
Fox Cities Housing Coalition
The Fox Cities Housing Coalition (FCHC) is a consortium of twenty-seven housing providers in
the Fox Cities that maintain a Continuum of Care model to ensure that the housing needs of all
persons in the Fox Valley are met. In addition, the housing coalition conducts a semi-annual
point in time survey of homeless persons in the Fox Valley, and collaborates to submit joint
applications for funding. More information on the FCHC can be found at: http://www.fchc.net/.
Financial Information and Services Center
Financial Information and Services Center (FISC) provides financial, housing and bankruptcy
information and counseling for primarily low and moderate income clients. More information is
available at: https://www.fisc-cccs.org/.
Limited Emergency Assistance Valley Ecumenical Network (LEAVEN)
LEAVEN provides limited financial assistance to people who are struggling to meet their basic
needs and have nowhere else to turn for help. LEAVEN assists with rent, mortgage payments
and security deposits, utility payments, etc. More information is available at:
http://www.leavenfoxcities.org/.
County Programs
Winnebago County Home Buyer Program
The Winnebago Homebuyer Program is a collaborative program administered by the Oshkosh /
Winnebago County Housing Authority (OHAWCHA). The OHAWCHA partners with the cities of
Neenah, Oshkosh, Menasha, and Omro, local lending institutions and community housing
agencies to facilitate affordable homeownership and housing rehabilitation in the county. More
information is available at: http://www.winnebagohomebuyer.org/about/.
Oshkosh/Winnebago County Housing Authority
The Oshkosh/Winnebago County Housing Authority (OHAWCHA) was formed in 1970 and
provides affordable rental housing assistance, homebuyer support, and resident services to low
and moderately low income families living in Winnebago County. The OHAWCHA maintains
over 650 Public Housing units including family, single, disabled, and elderly units, administers
over 400 Housing Choice Vouchers, owns and maintains the properties of multiple group
homes, coordinates a family self-sufficiency program, and facilitates the county's home
ownership program.
Local Programs
City of Oshkosh
Community Development Block Grant. The City of Oshkosh is an annual recipient of federal
Community Development Block Grant (CDBG) funds. It prepares a plan each year that
describes the conditions of the community and its housing, and proposes ways to address
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D-24 East Central Wisconsin Regional Planning Commission
needs. Part of the CDBG funding that the City receives is awarded to agencies who address
the needs of Oshkosh residents.
Housing Program
The City’s Neighborhood Initiative is intended to concentrate resources (public and private) into
participating areas to promote neighborhoods of choice in Oshkosh. The Neighborhood Initiative
is carried out through the collaboration of various partners and programs. Together the partners
treat a “neighborhood” as the customer and seek to strengthen neighborhood components to
achieve outcomes in four areas: Image, Market, Physical Conditions, and Neighborhood
Management. Various housing programs have been created to provide flexible financing to
homeowners and investors located or looking to locate within participating neighborhoods.
Sold On Oshkosh Program – The Sold on Oshkosh program encourages home ownership
within participating neighborhoods. It promotes equity and pride of place and is intended to
improve the real estate market. The program offers first time home buyers a down payment
assistance forgivable grant after five years.
Curb Appeal Rehabilitation Program – The Curb Appeal Program encourages improvements
to the exterior façade of residential properties while improving the image and physical conditions
of homes in Oshkosh. The program offers eligible applicants 0% interest loans on select
exterior projects.
Owner Occupied Rehabilitation Program – The Owner Occupies Rehabilitation Program
encourages improvements to the exterior and interior of residential properties. The program
offers 0% interest loans on select projects.
Rental Rehabilitation Program - The Rental Rehabilitation Program encourages
improvements to the exterior and interior of residential properties. The program offers 0%
interest loans on select projects.
TRANSPORTATION
State, Regional, County, and Local Policies
State Policies
Wisconsin Department of Transportation (WisDOT)
Wisconsin State Highway Plan 2020. Wisconsin’s State Trunk Highway system,
consisting of approximately 11,800 miles of roads, is aging and deteriorating while traffic
congestion is increasing. In response to this critical issue, WisDOT, in partnership with
its stakeholders, has developed the Wisconsin State Highway Plan 2020, a 21-year
strategic plan that considers the highway system’s current condition, analyzes future
uses, assesses financial constraints and outlines strategies to address Wisconsin’s
preservation, traffic movement and safety needs. The plan is updated every six years to
reflect changing transportation technologies, travel demand and economic conditions in
Wisconsin.
According to the Wisconsin State Highway Plan, 2020, USH 41 is expected to be
extremely congested through the Fox Cities if no improvements are made. The USH 41
corridor has been identified as a potential major project. Potential projects are subject to
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East Central Wisconsin Regional Planning Commission D-25
environmental analysis and legislative approval; they will be re-evaluated in future state
highway plans.
This plan also stressed the need to develop a safe inter-modal transportation system
which accommodates alternate forms of transportation by designating specific state and
county highways that could safely accommodate bicycle transportation. Specific
accommodations recommended by the plan include the use of designated bicycle lanes
in urban areas, widening traffic lanes to allow for bicycle travel, and paving shoulders to
allow for increased bicycle use. The plan estimated that approximately $6 million would
be necessary to provide adequate bicycle accommodations throughout the state. More
information is available at http://wisconsindot.gov/Pages/projects/multimodal/ship.aspx.
Connections 2030 Long Range Multimodal Transportation Plan. Connections 2030
addresses all forms of transportation; integrates transportation modes; and identifies
policies and implementation priorities to aid transportation decision makers when
evaluating program and project priorities over the next 20 years. The plan is organized
around transportation themes rather than modes. The seven themes are to (1) Preserve
and maintain Wisconsin’s transportation system; (2) Promote transportation safety; (3)
Foster Wisconsin’s economic growth; (4) Provide mobility and transportation choice; (5)
Promote transportation efficiencies; (6) Preserve Wisconsin’s quality of life; and (7)
Promote transportation security. The plans policies were written using the seven themes
as a base. More information is available at
http://wisconsindot.gov/Pages/projects/multimodal/c2030-plan.aspx.
Wisconsin State Bicycle Transportation Plan 2020. The Wisconsin State Bicycle
Transportation Plan (WSBTP) 2020 specifically addresses the future needs of bicycle
transportation. The plan establishes two primary goals: to double the number of bicycle
trips made by 2010 and to reduce the number of motor vehicle-bicycle crashes by 10
percent by 2010. To achieve these goals, objectives for engineering, education,
enforcement and encouragement were identified. These goals included not only the
need for the construction of an expanded network of transportation facilities that allows
for safe bicycle travel, but also for the promotion of education to advance vehicle driver
awareness of bicyclists (drivers licensing and bicycle safety courses). Finally, tips to
promote the utility and ease of bicycle transportation were identified as well as a
mandate to increase the enforcement of reckless driving behavior by both motorists and
bicyclists.
The WSBTP provides suggestions for both intercity (rural) and urban/suburban bicycle
facilities. The suitability of rural roads for bicycle traffic is primarily determined by the
paved width of the road and the volume of traffic. To be bicycle accessible, high volume
roads (greater than 1,000 vehicle trips per day) should have a paved shoulder. Most
State Trunk Highways located on the Priority Corridor System meet these criteria. No
improvements were recommended for low volume roads (less than 1,000 vehicles per
day). Finally, separated multi-use paths (trails) were also promoted as a viable option to
increase bicycle transportation opportunities within rural areas. Urban improvements
should include designated bicycle lanes within the street area, widened lanes, and
paved shoulders. Larger urban parks often have both paved and unimproved multi-
purpose trail systems, which commonly parallel rivers or other scenic corridors. More
information is available at
http://wisconsindot.gov/Documents/projects/multimodal/bike/2020-plan.pdf.
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D-26 East Central Wisconsin Regional Planning Commission
Wisconsin Pedestrian Policy Plan 2020. The Wisconsin Pedestrian Policy Plan 2020
provides a long-range vision to address Wisconsin pedestrian needs. It offers basic
descriptions of existing and emerging pedestrian needs over the next 20 years, with a
set of recommendations to meet those needs. More information is available at
http://wisconsindot.gov/Documents/projects/multimodal/ped/2020-plan.pdf.
Wisconsin Guide to Pedestrian Best Practices. The Wisconsin Guide to Pedestrian
Best Practices provides detailed design, planning and program information for improving
all aspects of the pedestrian environment. The guide serves as a companion document
to the Wisconsin Pedestrian Policy Plan 2020 to assist in the implementation of the
goals, objectives and actions of the plan and serve as a reference or guidebook for state
and local officials. More information is available at
http://wisconsindot.gov/Pages/projects/multimodal/ped.aspx.
Wisconsin State Airport System Plan 2030. The Wisconsin State Airport System Plan
2030 builds off the polices and issues identified in Connections 2030, Wisconsin’s
statewide long-range transportation plan adopted in October 2009. It provides an
inventory and evaluation of the Wisconsin Airport System’s 98 airports and an
implementation plan to meet established goals and objectives. The Appleton
International Airport is classified as a Commercial Service Airport. More information is
available at http://wisconsindot.gov/Pages/projects/multimodal/sasp/default.aspx.
Midwest Regional Rail System Report. The Midwest Regional Rail System Report
outlines a high speed (up to 110 mph) passenger rail system that utilizes 3,000 miles of
existing rail right-of-way to connect rural, small urban and major metropolitan areas. The
plan calls for a rail corridor connecting Green Bay to Milwaukee and Chicago. The
regional passenger rail system remains a conceptual idea at this time. More information
is available at http://www.dot.state.mn.us/planning/railplan/docs/railmidwest.pdf.
Wisconsin Rail Plan 2030. The Wisconsin Rail Plan 2030 is the statewide long-range
rail transportation plan. It provides a vision for freight rail, intercity passenger rail and
commuter rail, and identifies priorities and strategies that will serve as a basis for
Wisconsin rail investments over the next 20 years. A copy of the plan is available at
http://wisconsindot.gov/Pages/projects/multimodal/railplan/default.aspx.
Wisconsin State Freight Plan. The Wisconsin State Freight Plan was started in early
2014 and is anticipated to be completed in December of 2016. Once completed, it will
provide a vision for multimodal freight transportation and position the state to be
competitive in the global marketplace by ensuring critical connections to national freight
systems remain, or become, efficient. More information on this planning effort is
available at http://wisconsindot.gov/Pages/projects/sfp/default.aspx.
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone
#3, its regional comprehensive plan in April 2008. The plan serves as an advisory
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East Central Wisconsin Regional Planning Commission D-27
document for counties and communities within the region. As part of this planning effort,
East Central developed a vision for transportation, which states:
In 2030, the East Central region will have an efficient regional transportation network
which provides options for the mobility needs of all people, goods, and services.
The Milestone #3 report contains five transportation “plan guidelines”, which contain
goals, strategies, and recommendations for achieving this vision. These plan guidelines
are (1) Effects of Sprawl Development on Transportation, (2) Transportation Funding
and Priority Plans and Projects, (3) Regional Connectivity, (4) Balance Between
Transportation and the Environment, and (5) Alternative Modes of Transportation and
Mobility. The plan can be view at the following link:
http://www.ecwrpc.org/programs/comprehensive-planning/2030-regional-comprehensive-plan-
2030/.
Appleton (Fox Cities) Transportation Management Area: Long Range Transportation /
Land Use Plan Appleton (Fox Cities) Urbanized Area. The Appleton Transportation
Management Area (TMA): Long Range Transportation / Land Use Plan for the Appleton (Fox
Cities) Urbanized Area was prepared to meet the requirements of the Moving Ahead for
Progress in the 21st Century Act (MAP-21) for long range transportation and land use
planning in metropolitan areas.. The plan can be viewed at the following link:
http://fcompo.org/planning-activities/long-range-transportation-planning/.
Transportation Improvement Program Fox Cities Transportation Management
Area 2017. The Transportation Improvement Program for the Fox Cities Transportation
Management Area is a staged multi-year program of both capital and operating projects
designed to implement the long-range element of the transportation plan and shorter-
range transportation system management (TSM) element. The staged program covers a
period of four years and includes projects recommended for implementation during the
2015-2018 program period. The specific annual element time frame recommended for
funding approval differs for the FHWA Surface Transportation Program (STP) and the
Federal Transit Administration Operating and Capital Assistance Programs. It includes
funding recommendations for STP-Urban Projects from 2019 through 2020; and for
transit assistance programs for 2017 and 2018. The plan can be viewed at:
http://fcompo.org/wp-content/uploads/2012/06/2017-Fox-Cities-TIP.pd.
Congestion Management Process (CMP) Plan Fox Cities (Appleton TMA) Urbanized
Area. The Congestion Management Process (CMP) plan is designed to provide systematic
planning solutions to the transportation needs of the Fox Cities. It inventories traffic
congestion across the Fox Cities. The primary goal of the CMP is to develop a balanced
transportation network which can be efficiently integrated within the Fox Cities MPO
boundaries. The plan can be viewed at http://fcompo.org/wp-
content/uploads/2013/10/Appleton-TMA-Congestion-Management-Plan-2013.pdf.
Appleton (Fox Cities) Transportation Management Area and Oshkosh Metropolitan
Planning Organization Bicycle and Pedestrian Plan – 2014. The bicycle / pedestrian plan
focuses on regional connectivity of bicycle and pedestrian networks throughout the Fox Cities
(Appleton) and Oshkosh Metropolitan Planning Organizations. The plan can be viewed at:
http://fcompo.org/wp-content/uploads/2012/06/Appleton-TMA-and-Oshkosh-MPO-BikePed-
Plan-2014.pdf.
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D-28 East Central Wisconsin Regional Planning Commission
Valley Transit - Transit Development Plan. The Valley Transit Development Plan was
adopted in 2009 and provides a comprehensive examination of Valley Transit. It identifies
recommendations for improving the transit system over the next five years. The plan can be
viewed at: http://fcompo.org/planning-activities/public-transit-specialized-transportation/.
Section 5310 Enhanced Mobility of Seniors and Individuals with Disabilities Program
Management and Coordination Plan Appleton Metropolitan Planning Organization
2014. The Section 5310 plan details procedures for administering the Section 5310 Enhanced
Mobility of Seniors and Individuals with Disabilities Program for the Appleton Transportation
Management Area (TMA). The plan can be viewed at: http://fcompo.org/wp-
content/uploads/2014/06/Appleton-TMA-Section-5310-Management-Coordination-Plan.pdf.
County Policies
Winnebago County
A Multi-Jurisdictional Comprehensive Plan for Winnebago County: 2016-2035. The
Winnebago County Comprehensive Plan was adopted in 2016. The plan’s transportation
element provides the following goal: To achieve a safe, efficient, and environmentally sound
transportation system that provides personal mobility for all segments of the population and
supports the economy of the county.
County Code of Ordinances. The Winnebago County Code of Ordinances regulates
transportation facilities. Several chapters may be relevant to the City and/or the 3.0 mile
extraterritorial area. These chapters, relating to transportation are summarized below.
Chapter 7 – Traffic Code. The Traffic Code regulates the speed limits on county highways
within the unincorporated areas of the county.
Chapter 8 – Public Works. The public works ordinance establishes criteria for sharing the cost
of funding for urban type construction on County Trunk Highways under county maintenance
jurisdiction.
Chapter 18 - Subdivisions and Platting. The ordinance facilitates division of larger parcels of
land into smaller parcels of land through two methods: Certified Survey Maps (CSMs) and Plats.
Certified Survey Maps create up to four new lots, parcels or tracts from the parent parcel. Plats
are required for land subdivisions that create five or more lots created from the parent parcel.
The ordinance also contains design standards for streets, blocks, setbacks and utility
easements.
Winnebago County Comprehensive Park and Recreation Plan, 2013 -2017. The
Winnebago County Comprehensive Park and Recreation Plan, adopted in 2013, describes
existing conditions, projects future growth, and offers recommendations to guide the future
growth and development of recreational facilities in Winnebago County. The plan identifies
three goals: (1) Provide throughout the county a planned system of parks and recreation areas
that will enable county residents and visitors alike to participate in and enjoy a diversity of
recreational activities; (2) Preserve scarce and valuable resources important to the ecological,
sociological, and economic life of the county; and (3) To encourage continued involvement of
county residents when planning for parks and recreational development.
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East Central Wisconsin Regional Planning Commission D-29
Local Policies
City of Oshkosh
Code of Ordinances. The City’s Code of Ordinances regulates land divisions and land uses.
Official Map. The City of Oshkosh has an official map. An official map is intended to
implement a master plan for a city, village or town. The master plan helps direct development
by designating areas for streets, highways, parkways, floodplains, and other pertinent land
uses. Official maps direct development away from sensitive areas which are designated for
future public use.
Federal, State, Regional and Local Programs
Federal Programs
Department of Transportation (DOT)
Surface Transportation Urban Program (STP-Urban, STP-U). This program allocates
federal Fixing America’s Surface Transportation (FAST) Act funds to complete a variety
of transportation improvements including projects on higher function local roads not on
the State Trunk Highway system, and local safety improvements. To be eligible roads
must be functionally classified as urban “collector” or higher. More information can be
found at http://wisconsindot.gov/Documents/doing-bus/local-gov/astnce-
pgms/highway/stp-urban.pdf.
Transportation Alternatives Program (TAP). The TAP allocates federal Fixing
America’s Surface Transportation (FAST) Act funds to transportation improvement
projects that “expand travel choice, strengthen the local economy, improve the quality of
life, and protect the environment. Projects that met eligibility criteria for the Safe Routes
to School Program, Transportation Enhancements, and/or the Bicycle and Pedestrian
Facilities Program will be eligible TAP projects. More information on the TAP can be
found at http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/aid/tap.aspx.
State Programs
Wisconsin Department of Transportation (DOT)
WisDOT is responsible for planning, building and maintaining Wisconsin's network of state
highways and Interstate highway system. The department shares the costs of building and
operating county and local transportation systems - from highways to public transit and other
modes. WisDOT plans, promotes and financially supports statewide air, rail and water
transportation, as well as bicycle and pedestrian facilities. A few of the funding opportunities are
listed below, more information on other WisDOT associated funding opportunities (various
programs) is available at:
http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/highway/default.aspx.
Local Bridge Improvement Assistance Program. This program helps counties, cities,
villages, and towns rehabilitate or replace existing bridges on Wisconsin’s local highway
system based on the sufficiency rating. The program operates on a cost-shared basis
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D-30 East Central Wisconsin Regional Planning Commission
with federal and state funds accounting for 80% of the total eligible project costs. More
information on the Local Bridge Improvement Assistance Program can be found at
http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/highway/localbridge.aspx.
General Transportation Aid. Road maintenance is partially funded by disbursement of
the state transportation fund. The largest portion of the fund is from General
Transportation Aids. The state provides an annual payment to each county and
municipality that funds a portion of the local governments’ costs for activities such as
road construction, filling potholes, snow removal, and other related transportation
maintenance. Disbursements from the account are determined by the total mileage of
local roads within the municipality or by a formula based on historic spending. This
information must be reported annually. More information can be found at
http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/highway/gta.aspx.
Local Roads Improvement Program (LRIP). This program provides funding to
improve or replace seriously deteriorating county highways, town roads, and city or
village streets. New roads are not eligible. LRIP funds pay up to 50% of total eligible
costs while the remaining amounts must be matched by the local government. The
program has three basic programs: County Highway Improvement (CHIP); Town Road
Improvement (TRIP); and Municipal Street Improvement (MSIP). Additional
discretionary funds are available for high cost projects. More information can be found
at http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/highway/lrip.aspx.
Bicycle and Pedestrian Facilities Program. This program provides funding for
projects that construct or plan for bicycle or bicycle/pedestrian facilities. More
information can be found at http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-
pgms/highway/gta.aspx.
Disaster Damage Aids. Towns, villages, cities or counties may apply for financial aid
due to disaster damage to any public highway under its jurisdiction that is not on the
State Trunk or Connecting Highway systems. More information can be found at
http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/highway/disaster.aspx.
Wisconsin Employment Transportation Assistance Program (WETAP). This
program is designed to provide transportation for low-income workers to jobs, training
centers, and childcare facilities through enhanced local transportation services. Funding
is provided by a combination of federal, state, and local funds. This program provides a
crucial link to allow low-income workers to remain in the workforce. More information
can be found at http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-
pgms/transit/wetap.aspx.
Local Transportation Enhancement Program (TE). This program provides funds that
increase multi-modal transportation within a region while enhancing the community and
the environment. Eligible projects include multi-use recreational trails, landscaping, or
the preservation of historic transportation structure. Funds cover up to 80% of the total
eligible project costs. More information can be found at
http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/aid/te.aspx.
Transportation Economic Assistance Grant Program (TEA Grant). This program
provides a 50% state grant to local governments, private businesses, and consortiums
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East Central Wisconsin Regional Planning Commission D-31
for road, rail, harbor, and airport projects that are necessary to help attract employers to
Wisconsin. These grants have a performance based incentive and successful funding
requires that businesses and industries created by the grant program retain and expand
local economies in Wisconsin. More information can be found at
http://wisconsindot.gov/Pages/doing-bus/local-gov/astnce-pgms/aid/tea.aspx.
Regional Programs
East Central Wisconsin Regional Planning Commission
Mobile and Active Communities Program. The program element coordinates, administers
and promotes federal, state, regional and metropolitan transportation planning through the
Commission's Metropolitan Planning Organization (MPO) designation for the three urbanized
areas. Major work efforts include the Fox Cities and Oshkosh Urbanized Areas MPOs, Short-
Range Planning – Congestion Management Process (TMA) (TAP), Regional Transportation
Planning, and the Fond du Lac Urbanized Area MPO. Examples of work under this program
element include: local road and highway planning (Long-Range Transportation/Land Use Plans,
Transportation Improvement Programs, CUBE Traffic Demand Model for transportation planning
scenario analysis, highway corridor studies, traffic facility assistance, transportation assistance
management, highway access control assistance, official street mapping, jurisdictional road
transfers, PASER Pavement Evaluation Ratings, WisDOT WISLR access and training, local
road sign inventories and airport systems), public transit planning, freight system planning,
bicycle and pedestrian planning (bicycle and pedestrian plan development and implementation,
on-street and off-street bicycle facilities issues and assessments, safe routes to school plans,
bicycle and pedestrian safety training and bicycle route mapping), and grant assistance and
support letters.
Oshkosh Area MPO – The Oshkosh Metropolitan Planning Organization (MPO)
encompasses the City of Oshkosh, the Towns Algoma, Black Wolf, Nekimi, Oshkosh,
Vinland and Winnebago County.
East Central Wisconsin Regional Safe Routes to School (SRTS). The SRTS is a
national and international movement to create safe, convenient and fun opportunities for
children to bicycle and walk to and from schools. The goal of the program is to enable
and encourage children K-8th grade, including those with disabilities, to walk and bike to
school. The East Central Wisconsin Regional SRTS Program focuses on empowering
local communities and school districts with the resources and knowledge needed to
implement SRTS activities.
Local Programs
Greater Oshkosh Transit (GO Transit)
Fixed Route Bus Service. O Transit's mission is to provide reliable, affordable and accessible
public transportation options to support our community's mobility needs. Transportation options
include fixed-route bus service within the City of Oshkosh, paratransit services to elderly and
disabled individuals, paratransit service to low-income workers, and intercity bus service to
Neenah.
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The Connector. The Connector is designed to provide safe, convenient, and affordable access
to public transportation for Fox Cities residents who work second or third shift schedules or who
need to travel throughout the community beyond Valley Transit’s fixed route service area.
UTILITIES AND COMMUNITY FACILITIES
Federal, State, Regional, County, and Local Policies
Federal Policies
Water Pollution Control Act. The Federal Water Pollution Control Act (1977), more commonly
known as the Clean Water Act, established the basic structure for regulating discharges of
pollutants into surface waters. Effluent standards for wastewater treatment plants and other
industrial facilities were established by this landmark legislation. The legislation also provided
grants to communities to assist with planning and construction of upgraded facilities. Today,
increasing levels of growth and changing treatment standards have caused more recent
expansions and improvements of these systems.
Safe Drinking Water Act (SDWA). Drinking water standards are set by the USEPA. The Safe
Drinking Water Act (SDWA) requires the USEPA to set primary standards, while individual
public water systems must ensure that they are met. Drinking water standards apply to public
water systems which supply at least 15 connections or 25 persons at least 60 days of a
calendar year. Standards have been set for 90 chemical, microbiological, radiological, and
physical contaminants. Non-enforceable guidelines are also set for secondary standards for
contaminants that may cause cosmetic effects such as poor taste or odors.
State Policies
Wisconsin Administrative Code
Chapter SPS 383 Private Onsite Wastewater Treatment Systems. Formally COMM 83,
Chapter SPS 383 establishes uniform standards and criteria for the design, installation,
inspection and management of a private onsite wastewater treatment system, POWTS, so that
the system is safe and will protect public health and the waters of the state.
Chapter 287 Solid Waste Reduction, Recovery and Recycling. Chapter 287 regulates solid
waste reduction, recovery and recycling the state, as well as littering and enforcement
requirements. The law requires that every citizen in Wisconsin must have residential recycling
service or drop-off centers within easy access and should be provided with recycling education
and outreach.
Chapter NR-110 Sewerage Systems. Chapter NR-110 regulates site-specific facility planning
and sanitary sewer extensions. Decisions regarding the extension or expansion of wastewater
collection facilities are made primarily at the local level.
Chapter NR-121 Areawide Water Quality Management Plans. Chapter NR-121 specifies the
standards and processes for initiating and continuous area wide wastewater treatment
management planning. As provided by NR-121, the WNDR’s role is to review and approve
every sewer service area plan and its amendments, taking into account water quality impacts
and cost-effectiveness.
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Chapter NR-809 Safe Drinking Water. Drinking water standards are also maintained at a
state level. NR-809 regulates the design, construction, and proper operation of public water
systems. The WDNR also assures that regulated contaminants are adequately monitored.
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone #3, its
regional comprehensive plan in April 2008. The plan serves as an advisory document for
counties and communities within the region. As part of this planning effort, East Central
developed a vision for utilities and community facilities, which states:
Efficient, cost effective community facilities are provided, which enhance the quality of life
and ensure prosperity and economic stability for all. The emphasis in service provision is on
cooperative planning, fostering collaboration, enhancing partnerships, sharing resources
and transcending boundaries, as appropriate. In 2030, there are regional opportunities for
the sustainable and safe management of solid waste and recycling, collection, processing
and disposal activities. A well-managed and planned public and private water supply
provides for the region’s citizens and industry. The region is served by a variety of well-
functioning public and private wastewater treatment systems, which are capable of
accommodating future growth, while limiting the inherent conflicts caused by both urban and
rural development patterns. Adequate, cost effective, environmentally conscientious utility
infrastructure exists to support industry and the general population. There are cost effective,
efficient, quality emergency and non-emergency services to ensure public safety. A variety
of meaningful educational options and opportunities exist for all students. Children and
adults in the region are provided with accessible educational, informational and recreational
library services and materials in an economically efficient and timely manner. There is a
collaborative regional forum to create and implement a strategic framework for the
continuum of care for the health and wellbeing of the residents of the region. Through
cooperative efforts, park, open space, and recreational facilities and programs are protected
and preserved and there are plans for new facilities. There are community facilities which
meet the needs of various groups, including youth, elderly, and minorities, in a balanced and
financially responsible manner.”
The Milestone #3 report contains nine utilities and community facilities “plan guidelines”, which
contain goals, strategies, and recommendations for achieving this vision. The plan guidelines
are (1) Waste: Garbage and Recycling, (2) Public and Private Wastewater Treatment, (3) Public
and Private Water Supply, (4) Electric, Gas and Telecommunications, (5) Public Safety, (6)
Education and Libraries, (7) Health and Childcare, (8) Local Parks and Recreational Facilities,
and (8) Wind Energy. The plan can be view at the following link:
http://www.eastcentralrpc.org/planning/compplan/milestone3/MS3Final/ms3final.htm.
County Policies
Winnebago County
A Multi-Jurisdictional Comprehensive Plan for Winnebago County: 2016-2035. The
Winnebago County Comprehensive Plan was adopted in 2016. The plan’s utilities and
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D-34 East Central Wisconsin Regional Planning Commission
community facilities goal is to achieve maintenance and development of quality public services
and facilities that provide for recreational opportunities, a low crime rate, strong rural and urban
economies, a clean environment, and reasonable and equitable taxes.
County Code of Ordinances. The Winnebago County Code of Ordinances regulates private
on-site wastewater treatment systems. Several chapters may be relevant to the City and/or the
3.0 mile extraterritorial area. These chapters, relating to Utilities and Community Facilities are
summarized below.
Chapter 6 – Emergency Management Operations. The Emergency Management Operations
ordinance ensures that the county will be able to cope with emergencies resulting from enemy
action and with emergencies resulting from natural disasters.
Chapter 11 – Health and Social Services. This chapter regulates the County Department of
Health and Human Services and contains the Public Health Code.
Chapter 15 – Sanitary Landfill. This ordinance regulates the county sanitary landfill and
transportation of waste to the landfill.
Chapter 16 – Private On-site Wastewater Treatment Systems. This ordinance regulates
private on-site wastewater systems in the county.
Chapter 19 – Parks and Recreation. This chapter regulates parks and related activities.
Winnebago County Comprehensive Park and Recreation Plan, 2013 -2017. The
Winnebago County Comprehensive Park and Recreation Plan, adopted in 2013, describes
existing conditions, projects future growth, and offers recommendations to guide the future
growth and development of recreational facilities in Winnebago County. The plan identifies
three goals: (1) Provide throughout the county a planned system of parks and recreation areas
that will enable county residents and visitors alike to participate in and enjoy a diversity of
recreational activities; (2) Preserve scarce and valuable resources important to the ecological,
sociological, and economic life of the county; and (3) To encourage continued involvement of
county residents when planning for parks and recreational development.
Local Policies
City of Oshkosh
Code of Ordinances. The City’s Code of Ordinances regulates land divisions and land uses.
Official Map. The City of Oshkosh has an official map. An official map is intended to
implement a master plan for a city, village or town. The master plan helps direct development
by designating areas for streets, highways, parkways, floodplains, and other pertinent land
uses. Official maps direct development away from sensitive areas which are designated for
future public use.
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East Central Wisconsin Regional Planning Commission D-35
Federal, State, and Regional Programs
Federal Programs
United States Environmental Protection Agency (USEPA)
National Pollutant Discharge Elimination System (NPDES) Storm Water Program.
The Clean Water Act also established the National Pollutant Discharge Elimination
System (NPDES) Storm Water Program. The comprehensive two–phased program
addresses the non-agricultural sources of stormwater discharges which adversely affect
surface water quality. A NPDES permitting mechanism requires the implementation of
controls designed to reduce the volume of stormwater runoff and the level of harmful
pollutants in stormwater runoff.
Federal Emergency Management Administration (FEMA)
FEMA offers several annual grant awards to fire departments. Eligible project costs include
equipment, supplies, training, emergency work (evacuations, shelters, etc.), and mobilization/
demobilization activities. All municipal jurisdictions with a population of less than 50,000 are
eligible to receive funding. Recipients must provide a 10 percent match for all project costs.
Additional information on FEMA grants is available at http://www.fema.gov/grants.
Other Federal Agencies
Federal regulation of telecommunications, radio, and television towers is currently under the
auspices of the Federal Communications Commission (FCC), the Federal Aviation
Administration (FAA), and the Occupational Safety and Health Administration (OSHA).
The FCC issues licenses for new telecommunication facilities by determining the overall need,
coordinates frequencies, and regulates tower placement. Communication towers must be
located at the most central point at the highest elevation available. The FAA regulates tower
height, coloring, and lighting to ensure aircraft safety. OSHA regulates the occupational
exposure to non-ionizing electromagnetic radiation emitted from radio, microwave, television,
and radar facilities.
State Programs
Public Service Commission (PSC)
Public utilities in Wisconsin are regulated by the PSC, an independent regulatory agency. The
PSC sets utility rates and determines levels for adequate and safe service. More than 1,400
utilities are under the agency’s jurisdiction. PSC approval must be obtained before instituting
new rates, issuing stock or bonds, or undertaking major construction projects such as power
plants, water wells, and transmission lines. Additional information on the Public Service
Commission is available at http://psc.wi.gov/.
Wisconsin Department of Administration
Community Development Block Grant – Public Facilities (CDBG – PF). CDBG-PF
funds help support infrastructure and facility projects for communities. Some examples
of eligible projects include streets, drainage systems, water and sewer systems,
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D-36 East Central Wisconsin Regional Planning Commission
sidewalks, and community centers. Additional information regarding the CDBG-PF
program can be found at http://www.doa.state.wi.us/Divisions/Housing/Bureau-of-
Community-Development/CDBG-PF-Program-Overview.
Wisconsin Department of Natural Resources
Wisconsin Solid Waste Management Program. Begun in the 1970s, the Wisconsin
Solid Waste Management Program regulates the collection, storage, transportation,
treatment and disposal of solid waste. The solid waste administrative codes are
extensive and include Chapter 502, Solid Waste Storage, transportation, transfer,
incineration, air curtain destructors, processing, wood burning, composting and
municipal solid waste combustors; Chapter 518, Land spreading of solid waste; and
ATCP 34, Clean sweep program. More information is available at:
http://dnr.wi.gov/topic/waste/solid.html.
Knowles-Nelson State Stewardship. The Knowles-Nelson State Stewardship Fund is
a land acquisition program for the State of Wisconsin. Created by the state legislature in
1989, $60 million dollars per year is utilized to purchase lands for parks and other
recreational purposes. An important component of the program is the cooperation
between the DNR and local governments and non-profit organizations. The program
offers a 50 percent grant match to create parks, hiking trails, hunting grounds, and other
facilities. The funds can also be utilized for facilities improvements such as road
construction and capital acquisition projects (picnic equipment, playgrounds, etc.). More
information is available at: http://dnr.wi.gov/topic/stewardship/.
Clean Water Fund Program (CWFP). The Clean Water Fund Program (CWFP) is one
of two Environmental Improvement Fund (EIF) loans that are jointly managed and
administered by the Department of Natural Resources and the Department of
Administration. It offers loans and hardship grants to any town, village, city, county utility
district, public inland lake protection and rehabilitation district, metropolitan sewerage
district or federally recognized American Indian tribe or band to construct or modify
municipal wastewater systems or construct urban storm water best management
practices. More information is available at: http://dnr.wi.gov/aid/eif.html.
Safe Drinking Water Loan Program (SDWLP). The Safe Drinking Water Loan
Program (SDWLP) is one of two Environmental Improvement Fund (EIF) loans that are
jointly managed and administered by the Department of Natural Resources and the
Department of Administration offers loans to any city, village, town, county, sanitary
district, public inland lake protection and rehabilitation district, or municipal water district
to construct or modify public water systems to comply with public health protection
objectives of the Safe Drinking Water Act. More information is available at:
http://dnr.wi.gov/aid/eif.html.
Wisconsin Pollutant Discharge Elimination System (WPDES) program. The
Department regulates the discharge of pollutants to waters of the state through the
WPDES program. Individual (e.g., site-specific) WPDES permits are issued to municipal
and industrial facilities discharging to surface water and/or groundwater. As of 2012,
approximately 358 industrial facilities require individual WPDES permits and
approximately 649 municipalities held individual WPDES permits. WPDES general
permits are issued by the Wisconsin Department of Natural Resources for specific
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East Central Wisconsin Regional Planning Commission D-37
categories of industrial, municipal and other wastewater discharges. More information is
available at: http://dnr.wi.gov/topic/wastewater/permits.html.
Wisconsin Pollutant Discharge Elimination System (WPEDS) Storm Water
Program. The NPDES program is administered by the WDNR through NR-216. The
Wisconsin Pollutant Discharge Elimination System (WPEDS) Storm Water Program
regulates stormwater discharge from construction sites, industrial facilities, and selected
municipalities. Recent Phase II requirements will require six minimum control measures
to be addressed by communities and other local entities: public education, public
participation, illicit discharges, construction site pollutant control (> 1 acre in size), post
construction site stormwater management, and pollution prevention. More information is
available at: http://dnr.wi.gov/topic/wastewater/dischargetypes.html.
Department of Public Instruction (DPI)
The Wisconsin Constitution as it was adopted in 1848 provided for the establishment of district
schools that would be free to all children age 4 to 20. Subsequent laws allowed a property tax
to be collected to fund school programs. Today, the Department of Public Education (DPI)
oversees the operations of school systems and sets state standards for educational curricula,
teacher certification standards, and other educational programs.
Wisconsin Community Action Program Association (WISCAP)
The Wisconsin Community Action Program Association (WISCAP) is the statewide association
for Wisconsin’s sixteen (16) Community Action Agencies and three single-purpose agencies
with statewide focus. CAP Services, a member of WISCAP covers Winnebago County.
Board of Commissioners of Public Lands (BCPL)
State Trust Fund Loan Program. The State Trust Fund Loan Program offers loans to
municipalities, lake districts, metropolitan sewerage districts and town sanitary districts
for a wide variety of municipal purposes.
Regional Programs
East Central Wisconsin Regional Planning Commission (ECWRPC)
Sustainable and Efficient Community Services and Facilities Program. This program
element implements the requirements of the “Smart Growth” planning legislation for the
Community Facilities and Utilities plan element and incorporates the Commission’s ongoing NR-
121 sewer service area (SSA) planning function. In addition to SSA planning, the Commission
provides assistance in the following areas: electric transmission line project reviews, capital
improvement programs, resource recovery and recycling/composting and solid waste
management planning.
Sewer Service Area Planning. This function is derived from ECWRPC being
designated by the WDNR as the 208 Water Quality Management Planning Agency for
the region. The Commission acts in an advisory and regulatory role for Sewer Service
Area (SSA) Plans and has prepared detailed long range plans for 26 wastewater
treatment plants to address growth and ensure water quality within the region. In
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D-38 East Central Wisconsin Regional Planning Commission
addition, the Commission acts in an advisory capacity to WDNR and provides
recommendations on various plan updates, amendments, facilities plans, and sewer
extensions. Additionally the Commission provides population and development
projections for facility siting and sewer service area planning.
Recreation and Heritage Opportunities Program. The Recreation and Heritage
Opportunities work program element encompasses planning activities associated with meeting
the open space and recreational needs of the region as a whole, as well as plans for individual
governmental jurisdictions. Examples of work under this program element include: park and
open space plans, park site plans, park funding and programing information, recreation
inventories, recreation surveys, park needs assessments, water trail planning and ADA
accessibility issues.
Natural Resource Management. The Natural Resource Management planning element
ensured that the region’s natural resources and unique environmental features are identified
and managed as an integral part of planning and development throughout the region. This
program element includes hazard mitigation planning, stormwater and watershed management
and the NR-135 Non-Metallic Mining Reclamation Program Administration.
AGRICULTURAL, CULTURAL, AND NATURAL RESOURCES
Federal, State, Regional, County, and Local Policies
Federal Policies
Clean Water Act (1977). The Clean Water Act established the basic structure for regulating
discharges of pollutants into the waters of the United States.
State Policies
Wisconsin State Statutes
Chapter 91 Farmland Preservation. This chapter requires the county to adopt a
Farmland Preservation Plan. It addresses Farmland Preservation zoning and
agricultural enterprise areas.
Wisconsin Administrative Code
Chapter SPS 383, Private Onsite Wastewater Treatment Systems. Formally COMM
83, Chapter SPS 383 establishes uniform standards and criteria for the design,
installation, inspection and management of a private onsite wastewater treatment
system, POWTS, so that the system is safe and will protect public health and the waters
of the state.
Chapter NR-103, Water Quality Standards for Wetlands. Chapter NR-103
establishes water quality standards for wetlands.
Chapter NR-115, Wisconsin’s Shoreland Management Program. Chapter NR-115
requires counties to adopt zoning and subdivision regulations for the protection of all
shorelands in unincorporated areas.
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East Central Wisconsin Regional Planning Commission D-39
Chapter NR-116, Wisconsin’s Floodplain Management Program. Chapter NR-116
requires municipalities to adopt reasonable and effective floodplain zoning ordinances.
Chapter NR-135, Nonmetallic Mining Reclamation. Chapter NR-135 was established
to ensure that non-metallic mining sites are properly abandoned. This law promotes the
removal or reuse of non-metallic mining refuse, removal of roads no longer in use,
grading of the non-metallic mining site, replacement of topsoil, stabilization of soil
conditions, establishment of vegetative groundcover, control of surface water flow and
groundwater withdrawal, prevention of environmental pollution, development and
reclamation of existing non-metallic mining sites, and development and restoration of
plant, fish and wildlife habitat if needed to comply with an approved reclamation plan.
Chapter ATCP 49, Farmland Preservation (Proposed). In 2009, the Wisconsin
Farmland Preservation Program, which had been in existence since 1977, was repealed
by the Wisconsin State Legislature and recreated with a new structure. This was done
in response to growing pressures to convert farmland statewide to nonagricultural uses.
Under the new law, DATCP was authorized to write an administrative rule that sets
technical details as to how local governments may plan and zone to preserve farmland.
Regional Policies
East Central Wisconsin Regional Planning Commission
Milestone #3, Goals, Strategies, and a Plan for Action, Year 2030 Regional
Comprehensive Plan “Shaping the 21st Century”. East Central adopted Milestone #3, its
regional comprehensive plan in April 2008. The plan serves as an advisory document for
counties and communities within the region. As part of this planning effort, East Central
developed three separate chapters for agriculture, natural and cultural resources:
Agricultural Resources Vision: In 2030, agriculture is an important feature of the economy
and lifestyle of the East Central region. Development pressures have been diverted away
from prime farmland and ample, un-fragmented agricultural districts exist. Farming is
practiced on the most productive soils. A variety of farm types and sizes are operating
successfully. The region’s farming community supplies both local and global markets.
Citizens, local officials, and farmers are aware of and continuously address interrelated
economic and land use issues. The viable and stable farm economy, in terms of farm
income and prosperity, reflects concerted efforts by the private and public sectors to balance
free market forces and government programs for land conservation.
Natural Resources Vision: In 2030, the importance of natural resources, including their link
to the regional economy, quality of life, and cost effective service provision is recognized.
Natural resource planning is sustainable, consistent and coordinated in order to protect and
build a strong sense of ecological place. The Winnebago Pool Lakes and the Fox/Wolf
River systems are recognized as the backbone of the region's ecological resources.
Geologic resources that are significant from an aesthetic, scientific, cultural, historic,
educational, or commercial extraction purpose, have been identified, inventoried, preserved
and protected to meet the development and societal needs of the region. The region has
proactively addressed public access, recreation, open space, and trail facilities in order to
meet the needs of its citizens; enhance the quality of life and environment; realize tax
savings and other economic benefits; and to maintain and improve the region's tourism
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D-40 East Central Wisconsin Regional Planning Commission
economy. The region is comprised of well-defined urban and rural spaces which improve
the individual's perception of 'sense of place', while communities within the region have
maintained their individual character and identity. Within the region, surface water resources
are planned for in a watershed-based manner that embraces and encourages the use of
‘green infrastructure’ concepts. The proactive protection of natural features not only
contributes to water quality, but also to the long term sustainability and economic benefit of
the region.
Cultural Resources Vision: In the year 2030, the region is recognized as a leader in the
state for preservation of its cultural resources. It provides public access to resource
protection tools and the political advocacy necessary to ensure protection for, and
appreciation of, our diverse ethnic heritage, both historic and prehistoric.
The Milestone #3 report contains four agricultural, five natural, and five cultural resources “plan
guidelines”, which contain goals, strategies, and recommendations for achieving each vision.
The plan can be view at the following link:
http://www.eastcentralrpc.org/planning/compplan/milestone3/MS3Final/ms3final.htm.
County Policies
Winnebago County
A Multi-Jurisdictional Comprehensive Plan for Winnebago County: 2016-2035. The
Winnebago County Comprehensive Plan was adopted in 2016. The plan’s agricultural, cultural,
and natural resources element provides the following goals:
Agricultural:
To achieve maintenance and development of the agricultural industry through
agriculture diversification, protection of economically viable tracts of arable land, and
the prevention of conflict between agricultural and incompatible uses.
Natural, Cultural and Historic Resources:
To achieve a clean and attractive environment through the protection of natural
resources, land use stewardship, development of recreational opportunities and
preservation of historical assets.
County Code of Ordinances. The Winnebago County Code of Ordinances regulates erosion
and sediment control, floods, nonmetallic mining, shoreland-wetland zoning, stormwater
management and other ordinances that may be relevant to the City and its planning area.
Several chapters that relate to agricultural, natural and cultural resources are summarized
below.
Chapter 13 – Animal Waste Management. The purpose of this Chapter is to assure the safe
handling and spreading of livestock waste as well as to regulate the location, design,
construction, alteration, operation, and maintenance of all livestock facilities and livestock waste
transfer and storage facilities; and to regulate the abandonment/closure of livestock waste
transfer and storage facilities.
Chapter 16 – Private On-site Wastewater Treatment Systems. This ordinance regulates
private on-site wastewater systems in the county.
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East Central Wisconsin Regional Planning Commission D-41
Chapter 20 – Non-Metallic Mining. The purpose of this chapter is to establish a local program
to ensure the effective reclamation of nonmetallic mining sites on which nonmetallic mining
takes place in Winnebago County.
Chapter 26 – Floodplain Zoning Code. This chapter is intended to regulate floodplain
development to protect life, health and property; minimize expenditures of public funds for flood
control projects; minimize rescue and relief efforts undertaken at the expense of the taxpayers;
minimize business interruptions and other economic disruptions; minimize damage to public
facilities in the floodplain; minimize the occurrence of future flood blight areas in the floodplain;
discourage the victimization of unwary land and homebuyers; prevent increases in flood heights
that could increase flood damage and result in conflicts between property owners; and
discourage development in a floodplain if there is any practicable alternative to locate the
activity, use or structure outside of the floodplain.
Chapter 27 – Shoreland Zoning Code. Shorelands are defined as lands which are: 1,000
feet from the ordinary high water elevation mark of navigable lakes, ponds, or flowages; or 300
feet from the ordinary high water elevation mark of navigable rivers or streams. If the landward
side of the floodplain exceeds either of these two measurements, this is used as the zoning
standard. Wetlands means those areas where water is at, near or above the land surface long
enough to be capable of supporting aquatic or hydrophytic vegetation and which have soils
indicative of wet conditions. This ordinance controls the lot size, building setbacks, landfills,
agricultural uses, alteration of surface vegetation, sewage disposal, filling, grading, lagoons, and
other uses which may be detrimental to this area.
Winnebago County Farmland Preservation Plan, adopted March 13, 2012. The Winnebago
County Farmland Preservation Plan is included in the Winnebago County Comprehensive Plan.
The plan is intended to guide local efforts related to farmland protection and the promotion of
the agricultural sector in Winnebago County during the 15-year period from 2012 through 2026.
The goals of the plan are: (1) Protect farmland in Winnebago County, while balancing
landowner rights and community benefit; (2) Maintain a strong agricultural economy; (3) Support
agriculture-related businesses and support systems; and (4) Promote urban agriculture. The
intent of the plan is to meet the requirements of chapter 91 of the Wisconsin State Statutes for
Farmland Preservation and help maintain sustainable agriculture economies in the county as
well provide an informational base to assist decision makers in the preservation of farmland and
agriculture related development within the county.
2011-2020 Winnebago County Land and Water Resource Management (LWRM) Plan.
Appendix C, 2016- 2020 Work Plan was updated in 2016. The LWRM) addresses soil and
water quality concerns using local, state and federal programs. The goal of the Winnebago
County Land and Water Resource Management Plan is to restore, improve, and protect the
ecological diversity and quality and promote the beneficial uses of the land, water, and related
resources found throughout the county.
Local Policies
City of Oshkosh
Code of Ordinances. The City’s Code of Ordinances regulates land divisions and land uses.
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D-42 East Central Wisconsin Regional Planning Commission
Official Map. The City of Oshkosh has an official map. An official map is intended to
implement a master plan for a city, village or town. The master plan helps direct development
by designating areas for streets, highways, parkways, floodplains, and other pertinent land
uses. Official maps direct development away from sensitive areas which are designated for
future public use.
Federal, State, Regional, County and Local Programs
Federal Programs
US Environmental Protection Agency
National Pollution Discharge Elimination System (NPDES) Storm Water Program.
The Clean Water Act established the National Pollutant Discharge Elimination System
(NPDES) Storm Water Program. The comprehensive two–phased program addresses
the non-agricultural sources of stormwater discharges and industrial/municipal effluents
which adversely affect surface water quality. A NPDES permitting mechanism requires
the implementation of controls designed to reduce the volume of stormwater runoff and
the level of harmful pollutants in stormwater runoff. More information is available at:
http://www.epa.gov/npdes.
State Programs
Wisconsin Department of Agriculture, Trade and Consumer Protection (DATCP)
DATCP has a number of programs related to agricultural development, conservation assistance,
farm and rural services, farmland preservation, etc. A few of the programs are highlighted
below:
Working Land Initiative. The Wisconsin Working Lands Initiative was signed into law in 2009
and is comprised of the following three programs Farmland Preservation Program, Agricultural
Enterprise Program, Purchase of Agricultural Conservation Easement (PACE) Program. More
information is available: http://datcp.wi.gov/Environment/Working_Lands_Initiative/.
Farmland Preservation Program. Counties are required to revise their farmland
preservation plans to meet the new requirements which are designed to better protect
farmland. A grant that covers up to 50 percent of the cost of preparing a farmland
preservation plan is available to all counties.
Local governments may choose to adopt and have certified a farmland preservation
zoning ordinance to ensure that landowners covered by the ordinance are eligible to
claim farmland preservation tax credits.
Agricultural Enterprise Area (AEA) Program. AEA’s are part of Wisconsin's Working
Lands Initiative. An AEA is an area where the local community has prioritized
preservation of farmland and agricultural development. Once an area is officially
designated as an AEA, eligible farmers owning land within the area may enter into a
farmland preservation agreement with the state. This enables the landowners to receive
tax credits in exchange for agreeing to keep their farm in agricultural use for at least 15
years.
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-43
Purchase of Agricultural Conservation Easement (PACE) Program. The PACE Program
provides up to 50% of the cost of purchasing agricultural conservation easements, including
transaction costs. Cooperating local governments or non-profit organizations can obtain money
from the state to purchase easements from willing landowners. Land with an agricultural
conservation easement cannot be developed for any purpose that would prevent its use for
agriculture.
Wisconsin Department of Natural Resources (WDNR)
Wisconsin Pollutant Discharge Elimination System (WPEDS) Storm Water
Program. The NPDES program is administered by the WDNR through NR-216. The
Wisconsin Pollutant Discharge Elimination System (WPEDS) Storm Water Program
regulates stormwater discharge from construction sites, industrial facilities, and selected
municipalities. Recent Phase II requirements will require six minimum control measures
to be addressed by communities and other local entities: public education, public
participation, illicit discharges, construction site pollutant control (1 or more acres in
size), post construction site stormwater management, and pollution prevention. More
information is available at: http://dnr.wi.gov/topic/wastewater/permits.html.
Knowles-Nelson Stewardship Local Assistance Grant Programs. The Knowles-
Nelson State Stewardship Fund is a land acquisition program for the State of Wisconsin.
Four Stewardship grant programs are available: Acquisition and Development of Local
Parks (ADLP), Urban Green Space (UGS) grants, Urban Rivers (UR) grants, and
Acquisition of Development Rights (ADR). The program offers a 50 percent grant match
to create parks, hiking trails, hunting grounds, and other facilities. The funds can also be
utilized for facilities improvements such as road construction and capital acquisition
projects (picnic equipment, playgrounds, etc.). More information is available at:
http://dnr.wi.gov/topic/stewardship/grants/applylug.html.
Wisconsin Shoreland Management Program. Shoreland zoning can enhance the
quality of surface water, protect wildlife habitat, and improve its aesthetic appearance.
The Wisconsin Shoreland Management Program is a cooperative effort between state
and local governments. Local governments are allowed to adopt shoreland and
floodplain zoning to direct development in compliance with state minimum standards.
Specific ordinances regulate zoning for wetlands (NR-103), shorelands (NR – 115), and
floodplains (NR – 116). Cities and villages can adopt similar zoning ordinances under
NR – 117. More information is available at:
http://dnr.wi.gov/topic/ShorelandZoning/Programs/program-management.html.
Forest Crop Law and Managed Forest Law. In 1927, the Wisconsin Legislature
enacted the Forest Crop Law (FCL), a voluntary forest practices program to encourage
sound forestry on private lands. It has promoted and encouraged long-term investments
as well as the proper management of woodlands. This law allowed landowners to pay
taxes on timber only after harvesting, or when the contract is terminated. Since the
program expired in 1986, participants are not allowed to re-enroll in the program. Since
1986, the Managed Forest Law has replaced the Forest Crop Law. More information is
available at: http://dnr.wi.gov/topic/forestlandowners/tax.html.
The Managed Forest Law (MFL), enacted in 1985, encourages the growth of future
commercial crops through sound forestry practices. To be eligible, a landowner must
City of Oshkosh Comprehensive Plan Update 2040
Appendix D: Policies and Programs
D-44 East Central Wisconsin Regional Planning Commission
own at least 10 contiguous acres of woodlands. The landowner must implement a
forestry management plan for future commercial harvests on the land. Contracts can be
entered for a period of either 25 or 50 years. Portions of the land enrolled are open to
public access for hunting, fishing, cross-country skiing, sight-seeing, and hiking. The
program recognizes individual property owners’ objectives while providing for society’s
need for compatible recreational activities, forest aesthetics, wildlife habitat, erosion
control, and protection of endangered resources. More information is available at:
http://dnr.wi.gov/topic/forestlandowners/tax.html.
Urban Forestry Grants. Urban Forestry Grants are provided to cities, villages, towns,
counties, tribes and 501(c)(3) nonprofit organizations. More information is available at:
http://dnr.wi.gov/topic/urbanforests/grants/index.html. These grants fall into three
categories:
o Regular grants are competitive cost-share grants of up to $25,000. Grants are to
support new, innovative projects that will develop sustainable urban and
community forestry programs, not to subsidize routine forestry activities.
o Startup grants are competitive cost-share grants of up to $5,000. These
simplified grants are available to communities that want to start or restart an
urban forestry program.
o Catastrophic storm grants are used to fund tree repair, removal or replacement
within urban areas following a catastrophic storm event for which the governor
has declared a State of Emergency under s. 166.03, Wis. Stats.
Wisconsin Historical Society
The Wisconsin Historical Society (WHS) Division of Historic Preservation (DHP) provides funds
for conducting surveys to identify and evaluate historical, architectural, and archaeological
resources, nominating properties and districts to the National Register, and carrying out a
program of comprehensive historic preservation planning and education. These are available to
local units of government and non-profit organizations. Although funding is limited, the DHP
identified target communities during each funding cycle. In recent years the DHP has favored
underrepresented communities: unincorporated communities or villages or fourth-tier cities with
a population less than 5,000. A set of funds is also designated for use by Certified Local
Government (CLG) status communities. In addition, many private funding sources specifically
target smaller communities in the more rural parts of the state. Other specific programs are
listed below.
Wisconsin Historic Preservation Fund Subgrants. The Wisconsin Historic
Preservation Fund Subgrants provide funds for surveys to identify and evaluate
historical, architectural and archaeological resources, nominating properties to the
National Register of Historic Places, and for carrying out a program of historic
preservation planning and education. More information is available at:
http://www.wisconsinhistory.org/Content.aspx?dsNav=Ro:20,N:4294963828-
4294963805&dsNavOnly=N:1210&dsRecordDetails=R:CS3314.
Historic Homes Tax Credit Program. The Historic Homes Tax Credit Program offers a
25 percent Wisconsin income tax credit for homeowners who rehabilitate historic, non-
income-producing personal residences
http://www.wisconsinhistory.org/Content.aspx?dsNav=Ro:40,N:4294963828-
4294963805&dsNavOnly=N:1210&dsRecordDetails=R:CS3136.
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Appendix D: Policies and Programs
East Central Wisconsin Regional Planning Commission D-45
Federal Historic Preservation Tax Credit. This program returns 20 percent of the cost
of rehabilitating historic buildings to owners as a direct reduction in the federal income
taxes. To quality, buildings must be income producing historic buildings, must be listed
on the National Register of Historic Places, or contribute to the character of a National
Register Historic District. More information is available at:
http://www.wisconsinhistory.org/Content.aspx?dsNav=Ny:True,Ro:0,N:4294963828-
4294963805&dsNavOnly=N:1210&dsRecordDetails=R:CS3215&dsDimensionSearch=D
:%E2%80%A2%09Wisconsin+Supplemental+Historic+Preservation+Credit.,Dxm:All,Dxp
:3&dsCompoundDimensionSearch=D:%E2%80%A2%09Wisconsin+Supplemental+Histo
ric+Preservation+Credit.,Dxm:All,Dxp:3.
Wisconsin Historic Preservation Tax Credit Program. This program returns 20
percent of the cost of rehabilitating historic buildings to owners as a Wisconsin income
tax credit. More information is available at:
http://www.wisconsinhistory.org/Content.aspx?dsNav=Ny:True,Ro:0,N:4294963828-
4294963805&dsNavOnly=N:1210&dsRecordDetails=R:CS3215&dsDimensionSearch=D
:%E2%80%A2%09Wisconsin+Supplemental+Historic+Preservation+Credit.,Dxm:All,Dxp
:3&dsCompoundDimensionSearch=D:%E2%80%A2%09Wisconsin+Supplemental+Histo
ric+Preservation+Credit.,Dxm:All,Dxp:3.
Regional Programs
East Central Wisconsin Regional Planning Commission (ECWRPC)
Recreation and Heritage Opportunities. The Recreation and Heritage Opportunities work
program element encompasses planning activities associated with meeting the open space and
recreational needs of the region as a whole, as well as plans for individual governmental
jurisdictions. This program element also includes historic and agricultural preservation.
Examples of work under this program element include: park and open space plans, park site
plans, park funding and programing information, recreation inventories, recreation surveys, park
needs assessments, water trail planning and ADA accessibility issues.
Natural Resource Management. The Natural Resource Management planning element
ensured that the region’s natural resources and unique environmental features are identified
and managed as an integral part of planning and development throughout the region. Examples
of work under this element include: Niagara Escarpment planning, air quality management,
aquatic invasive species, environmental impact review, endangered resources reviews,
groundwater resource management, green infrastructure planning, floodplain management,
hazard mitigation planning, lakes management planning, the NR-135 Non-Metallic Mining
Reclamation Program Administration, water quality management, stormwater and watershed
management and wetlands protection/management.
County Programs
Winnebago County Historical and Archaeological Society
The Winnebago County Historical and Archaeological Society is a non-profit organization that
was founded in 1919. The Historical Society promotes and facilitates outreach education
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Appendix D: Policies and Programs
D-46 East Central Wisconsin Regional Planning Commission
through historically focused public programs, local historical tours, special events, and the
publication of a quarterly newsletter.
Local Programs
Oshkosh Landmarks Commission
The Landmarks Commission was established in 1983 by the Oshkosh Common Council.
Among the duties and responsibilities of the Commission, as defined in Chapter 2 of the City’s
Municipal Code, the Commission is charged with:
Fostering the protection, enhancement and perpetuation of historic improvements and of
districts which represent or reflect elements of the City's cultural, social, economic,
political and architectural history.
Safeguarding and fostering civic pride in the City's historic and cultural heritage as
embodied in its landmarks and historic districts.