STURGEON BAY

Planning Considerations for the

Sturgeon Bay Downtown Waterfront Region

Introduction

This paper offers a summary of planning considerations for the Downtown Waterfront region of the City of Sturgeon Bay. It has been prepared to address future land use, development, transportation, and design issues concerning this critical area of the city. This report builds upon the previous work of the city=s planning consultants, the Downtown Sturgeon Bay Visioning results, and other reports and studies. It is intended that this plan will be a companion to the overall Comprehensive Plan, but will provide greater detail than the existing Comprehensive Plan.

Subject Area

The region which the planning effort focuses on is generally the properties within Tax Increment District #2 plus certain adjacent lands. On the east side it includes the 1^st, 2^nd, and 3^rd Street corridors as well as portions of S. 4^th and S. 5^th Avenues. On the west side it generally includes the region north of Spruce Street and east of Lansing Avenue toward the waterfront. Of course, the properties beyond this region are also important and recommendations for these other parts of the city are included in the overall Sturgeon Bay Comprehensive Plan.

Existing Land Use

The existing land uses for both the east and west sides of the downtown area were inventoried. This was both to update the existing land use map within the Comprehensive Plan and correct errors within the existing land use map. For the ease of mapping all commercial uses (including office, retail, and service uses) were included in a single general category.

Both the east and west sides contain a healthy array of uses, including retail, office, industrial, institutional, recreational, and residential lands. In addition to the PBI site, several key parcels are currently vacant. The mixture of land uses is quite diverse and is indicative of the subject area being an older part of the City, developed at a time when various uses were intermingled more so than recent times.

The residential properties are primarily single family homes with a scattering of two-family homes. There is not a significant amount of multiple family housing (apartments) existing in this region. On the east side the residential area south of Pennsylvania/east of 3^rd Avenue appears quite stable with a majority of owner-occupied single family homes. The same can be said for the residential area along Pine and Redwood Streets on the west side.

The commercial uses are dominated by Third Avenue on the east side (between Nebraska and Jefferson Streets) and Madison Avenue on the west side. These streets have a traditional pattern of first floor retail sales/service with residential apartments above. The City has worked hard to preserve and strengthen this historic character. On other streets, the pattern is a mixture of commercial uses and residential uses. In some cases, former residences were converted to commercial uses, while in others commercial style buildings are interspersed with residences. This is a more haphazard pattern, and planning considerations need to consider how conflicts can be minimized.

Industrial uses in the Downtown Waterfront region are water dependant industries, including Bay Shipbuilding Company, Palmer Johnson Yachts, and Roan Salvage Company. While uses such as these lend visual interest to the shoreline and provide significant employment activity, they potentially pose conflicts due to noise, dust, visual obstructions due to large buildings and similar impacts. Blending these vital industries into the overall downtown waterfront region continues to be a challenge for the city.

Potential for Change

Once the existing land use was inventoried, the potential that the current use of each parcel might change was assessed. Parcels that were currently undeveloped or contained vacant buildings were, of course, considered ripe for development. In addition, other properties were deemed to have high potential to change for other reasons, such as condition of existing structures, underutilization of property, type of ownership, location along major streets, and character of the neighborhood. Areas with a significant amount of properties with high potential for change are the regions were the City should concentrate its planning efforts in order to ensure coordination, consistency, and achievement of the goals of the Plan and TID.

Although there are properties with the potential to change spread throughout the planning region, there are two clusters that are considered ripe for redevelopment. On the east side the former PBI shipyard is obvious due to the large vacant parcels and buildings. In addition to the shipyard itself, nearby properties along both South 2^nd Avenue and South 3^rd Avenue (including several non-PBI properties) should see significant change. This would be Aspinoff@ development spurred by the anticipated redevelopment of the shipyard as well as naturally occurring development due to the abundance of vacant parcels and buildings in this area.

The west side cluster poised for new uses or development is the E. Maple Street/Neenah Avenue region. The potential is attributed to the possible redevelopment of the Door County Co-op property, the existence of large underutilized sites and older renter-occupied homes that could be converted or redeveloped into new uses, and also the growing significance of Neenah Avenue as a transportation corridor. Neenah Avenue provides direct full access to State Highway 42/57 via a signalized intersection. If a second downtown bridge is constructed along the Maple to Oregon corridor, the importance of East Maple Street and Neenah Street will increase even more.

Downtown Sturgeon Bay Visioning

In late 2001 and early 2002 the University of Wisconsin Extension assisted the city in developing vision statement for its downtown. The process involved a visioning session with 66 participants identifying what they wanted preserved in the downtown and what they wanted changed or created. Although there was some overlap in the issues identified, the top items coming out of this process are listed below:

Preserved

1. Public access to waterfront

2. Historic architecture

3. Local government centers (city hall, etc.)

4. Small town friendly atmosphere

5. Have as many daily-life reasons to use downtown kept in place as possible

6. Characteristic of a Aquaint@ community

7. Municipal buildings remain, i.e. city hall, courthouse, library and museums

8. Bay Shipbuilding Co. and Palmer Johnson Yachts

9. Shipbuilding stay downtown and Coast Guard

10. Green space and public access to water

Changed or Created

1. New 2-lane bridge - Maple to Oregon and restore old bridge.

2. Develop Peterson Shipyard property with a balance of retail, residential, and green space.

3. Public waterfront walkway along both northeast and southwest sides of waterfront.

4. Identify future population base of 2012 & develop economic plan to attract industries & businesses to support it by using downtown Sturgeon Bay=s uniqueness ... Infusion of professional activities which could enjoy association with Sturgeon Bay=s downtown environment

5. Affordable housing (for $35,000 and under annual salaries)

6. Pedestrian mall on Third Avenue - no traffic on Third Avenue

7. One new bridge at Michigan Street corridor with 4 lanes

8. Change Hardees intersection to make it safer and more aesthetically appropriate for Jefferson Street

9. More evening entertainment, i.e. film fest, concerts on water, east and west sides

10. Prevention of business sprawl outside downtown district

Based upon the results of the visioning process an overall vision statement was created. This statement is a consensus that reflects the priorities for preservation and change. The vision statement was adopted by the Common Council. It is a key part of the Downtown Waterfront planning effort.

Downtown Sturgeon Bay Vision Statement

Sturgeon Bay takes great pride in balancing the needs of residents while welcoming downtown visitors to a unique place where businesses, residences, local government centers and open spaces support a vigorous economy. The Sturgeon Bay downtown is a focus of daily life for many and the heart of civic life for the county and community. Arts, museums, entertainment, special events, and a variety of restaurants and businesses flourish.

The vibrant east and west side retail corridor reflects the characteristics of a quaint community with plantings, lighting, benches and other aesthetically pleasing features. Four lanes of traffic bridging the bay support automobile, pedestrian, and bicycle traffic. The community=s small town character and historic architectural structures have been preserved.

Our economic strengths also include well paying jobs, custom boat building, state-of-the-art telecommunications, technology-based businesses, and professional offices. The former PBI shipyard is now a mixed-use development with a balance of commercial, residential, and green space.

The flavor of our rich maritime history, our active ship building industries and Coast Guard presence are balanced with a waterfront enjoyed by the public. Scenic water vistas, tree-lined streets, inviting bike paths, parks and green spaces encourage all ages to experience the many year round activities that draw people to Sturgeon Bay. The waterfront experience is enhanced by public access, shoreline walkways, marinas, informational plaques, observation points, and self-guided tours. The bay is managed for recreation and environmental quality.

Downtown Sturgeon Bay is warm and inviting, a destination for young and old, visitor and resident.

Public Informational Forums

In addition to the visioning process, the property owners and residents of Sturgeon Bay were also invited to two Public Informational Forums regarding planning recommendations for the downtown waterfront region. At these forums, property owners and residents were able to review the preliminary recommendations and other information regarding downtown waterfront planning and to discuss ideas and concerns with staff. The opportunity to provide official written comments was also afforded the participants of the forums.

The forums providing a chance to gain valuable feedback from affected property owners and the general public. To the extent practical, the comments received from the forums were incorporated into the recommendations.

Principles for Redevelopment

As changes and new development occur in the downtown waterfront region there are several general principles that should be considered in order to implement the Vision Statement and goals of the Comprehensive Plan. These principles may not be applicable to all properties or projects, but are intended to reflect the overall desired character of this vital portion of the City.

1. Strive for a diversity of uses. The city should allow and promote a multitude of uses within the downtown region. Providing a balanced mixture of uses enhances the region=s vitality and creates more reasons for residents and visitors to be in the downtown waterfront area. Most residential, retail, institutional, office, and recreational uses would be appropriate in both the east and west downtown areas. Certain industrial uses, particularly high employment water-dependent uses, are also appropriate. Efforts should be made to avoid a single use dominating the entire area.

2. Create public access to and along waterfront. Opening up the waterfront to the public was a principle goal of the City=s redevelopment efforts from the beginning. Additional public access should continue to be stressed, including linking various waterfront areas to each other and to the rest of the City. Projects along the waterfront should be examined to see if and how public access can be incorporated.

3. Identify and develop additional downtown green space on the east side. Currently, there is a minimal amount of downtown public green space on the east side, particularly near the water. Given the amount of currently vacant property and the potential for change in the region south of Michigan Street/west of 3^rd Avenue, a great opportunity exists to establish more parkland and other open space.

4. Promote waterside activities, amenities, and commerce. In addition to providing public access to the waterfront, there should be reasons to be there. Public events, concessions, artist booths, and the like should all be considered for areas along the waterfront.

5. Maintain/enhance view corridors. Views of the Bay are important amenities. Although a continuous view across the entire waterfront area is not practical, care should be taken to locate new buildings such that views along street corridors are not disrupted.

6. Maintain option for Maple to Oregon bridge. The City is still investigating the possibility of a bridge on the Maple Street to Oregon Street alignment. Although such a bridge (if economically feasible) would probably not be built for some time, it is important that new development not hamper or preclude this bridge. Thus, building setbacks and orientation should respect the possibility that Oregon Street (as well as Maple Street and Neenah Avenue) could become a more significant carrier of traffic in the future. Specific standards need to be adopted so that development can proceed, while still accommodating a future bridge.

7. Promote rehabilitation and reuse of existing structures. To a large degree the City=s historic character stems from its older buildings, even if these buildings have been converted to new uses. On both the east and west sides, there are opportunities to rehabilitate and convert old industrial, institutional, and residential structures. By retaining some of these structures, linkages between the newly redeveloped uses and the historic character of the area are maintained. The Quest realty office, Barbican B&B, and Jefferson Street shops are all good examples of this concept. The West Side School, Peterson Pool, the old PBI Stone Basement, and the former PBI Electric Shop (Building 33) at the foot of Pennsylvania Street have all been touted as candidates for rehabilitation and reuse.

8. Encourage or require taller structures. Two story and multistory buildings are preferred over single story buildings that are more spread out. This concept is most compatible with existing structures, reflects the historic building design, and allows for more efficient use of property.

9. Promote narrow setbacks. Buildings should be set close to the street right-of-way. Again, this reflects historic building patterns and allows for rear parking. A suburban style character with large building setback and expansive front yard parking should be discouraged. For residential development, reducing the required street yard to 15 feet could easily be supported. For nonresidential development, setbacks ranging from 0 - 15 feet would be sufficient depending upon the existing character of the street.

10. Improve/maintain streetscape. Improvements to the streetscape should be undertaken, including pedestrian amenities. Street corridors should integrate the downtown and waterfront areas. The use of temporary or permanent art is encouraged. The success of the sturgeon sculptures is an example of how art generates interest. The use of historical markers (such as describing the former use of the PBI property as a shipyard producing numerous vessels, including navy ships) should also be considered. The historic uses of Martin Park and the former high school property also could be capitalized upon through the use of monuments or historic markers.

11. Provide sufficient, but not excessive parking. Lack of parking has been a deterrent to revitalization of many cities= downtowns. Thus, it is important that parking spaces are provided. However, allocating too much land to parking can detract from the character of the downtown waterfront and can reduce the density of buildings and uses needed to create vibrancy. A balance between parking areas and development/open space is needed. Striving for greater efficiency in the location and use of parking lots can help reduce the overall number of spaces required.

12. Retain the variety of vessels located along the waterfront. The unique character of Sturgeon Bay=s waterfront stems in large part to the mixture of boats and other water craft located there. The large Great Lakes freighters, luxury yachts, tugboats, barges and other working craft, cruise vessels, the Coast Guard cutter, and private pleasure boats all together set Sturgeon Bay=s waterfront apart from other coastal communities. The City should identify appropriate sites along the waterfront to accommodate all vessel types.

Land Use Planning Recommendations

Several plans for the downtown regions have been put forth through recent years, including the Sturgeon Bay Comprehensive Plan, Waterfront Redevelopment Plan, PBI-East Downtown Subarea Plan, and various plans developed by PBI. The recommendations cited below are a synthesis of the best parts of those plans, along with ideas stemming from the Downtown Sturgeon Bay Visioning process, input from public informational meetings, and from property owners and staff.

East Side Recommendations

1. Third Avenue/Downtown Commercial. Third Avenue is the commercial heart of the east side and should continue to be preserved and enhanced as a Ashopping street@. The following are recommended:

$ Extend retail sales and services to the intersection with Pennsylvania Street.

$ Initiate zoning code changes to allow the building and site design to follow the existing pattern, such as allowing buildings to be built up to the street right-of-way.

$ Promote a wide array of commercial uses along Third Avenue, while promoting residential use located above the first floor level.

$ Extend the streetscape improvements along the entire length of this stretch in order to integrate all of Third Avenue.

5. Tourist Commercial. The entire length of Second Avenue, as well as portions of First Avenue, is appropriate for tourist related commercial activities, including lodging (hotels, B&B=s), dining (restaurants, cafes), galleries (artist co-op), indoor/outdoor markets (produce market), and shops. However, this region also supports commercial uses along Third Avenue and on the waterfront. Thus, a mixture of uses should be allowed, including the existing residential and industrial uses as well as offices and institutional uses. Other recommendations include:

$ Use this region to provide parking areas to support the denser retail uses along Third Avenue and waterfront uses along First Avenue. (See the parking recommendations for greater detail.)

$ To the extent possible, rehabilitation/reuse of existing buildings is encouraged. In fact, many of the existing uses are contained within rehabilitated/converted buildings.

$ Seek and maintain year-round uses in order to enhance downtown vitality.

$ Streetscape improvements are desirable but need not be as extensive as Third Avenue or the waterfront walkway. The focus should be pedestrian linkages between the waterfront uses/activities/nodes and Third Avenue, particularly along Kentucky Street and Oregon/Pennsylvania Streets.

5. Single Family Residential. The residential neighborhood south of Pennsylvania Street and east of the alley between 3^rd and 4^th Avenues is a fairly stable residential neighborhood with predominately single family homes. However, much of the current zoning is for multifamily and office development. Rather than seek redevelopment of this area, the City should maintain the current residential character. Strong nearby neighborhoods contribute to a healthy downtown. Thus, it is recommended that the City initiate changing the zoning classification to R-2 residential for the properties between Pennsylvania Street and Quincy Street, except for the properties along Third Avenue.

6. Multifamily Residential. The frontage along 3^rd Avenue south of Pennsylvania Street is conducive to multifamily development. This creates a higher density residential presence near the heart of the downtown area. A range of housing options, including townhouses, condominiums, and mid-range apartments are all possible. Lower income housing could also be explored, but may not be feasible due to higher land values. Other recommendations include:

$ Buildings located along 3^rd Avenue and Pennsylvania Street should orient to the street, with windows and entrances along the street. These buildings should integrate with the rest of the neighborhood, rather than only Alooking@ inward toward the rest of the development.

$ Although the scale of buildings should generally be similar, a variety of building types is preferred over a large homogenous development with the same building represented many times.

$ Much of the area proposed for multifamily residential development is the former PBI shipyard. A Planned Unit Development should be undertaken for developing this area. Because of the large area involved, the fact that it is under a single owner, and that it is within the Tax Increment Financing district, a PUD is the best available means of ensuring that the future development is cohesive, coordinated with city improvements, and meets the goals and requirements of the various city plans.

$ The area recommended for multifamily development includes the city-owned parking lot at Quincy Street/3rd Avenue. This lot previously provided parking for PBI shipyard employees, but now is used very minimally. This property should be redeveloped for residential use, unless it is shown that the parking is required to support new nearby developments or the property is needed for other municipal purposes.

5. Waterfront Open Space. There is an identified need and desire for additional open space within the east side portion of the downtown region. The City should actively seek to acquire more acreage with waterfront open space being the priority. Expanding upon the existing city-owned East Side Dock property offers the greatest potential. Two options that have been touted, as well as other recommendations, are described below.

$ The recommended option for additional open space is the creation of a waterfront park that would extend southward from the East Side Dock and through the former shipyard. The park should include a walkway/promenade along the waterfront, but needs to be large enough to provide significant open space and allow for a variety of uses and activities. An advantage to this option is that it would provide a larger portion of the water frontage as open space instead of just the existing city-owned frontage at the East Side Dock between Oregon and Pennsylvania Streets. Providing more land near the water as open space is consistent with the results of the Downtown Visioning process. A second advantage is it would allow the land within the floodplain to be used for open space, while leaving the higher ground for development.

$ The alternative option is to connect the dock property to Martin Park by acquiring all or a portion of the intervening land. This creates open space between Oregon Street and Pennsylvania Street extending all the way from Third Avenue to the water. In addition to opening up a view corridor and providing a definite connection between Third Avenue and the waterfront, there would be opportunities for distinct areas (e.g. lawn, pavilion, plaza, parking, etc.) as the land descends from Third Avenue to the water=s edge. Since both options involve land currently owned by Peterson Development, it is important for the City to work with that entity to secure a site for open space.

$ Regardless of where the large waterfront park is ultimately created, a public walkway along the water=s edge should be completed connecting 3^rd Avenue at the southeast corner of the former shipyard to Oregon Street. The public walkway design should be carried onto the adjoining street sidewalks for a stretch in order to make it more inviting to the general public and clearly identify it as public space.

$ The City needs to give consideration to what public facilities and amenities ought to be included with downtown open space. Many ideas have been suggested; not all ideas can be accommodated.

3. Marina. The southern edge of the PBI property should be development into a marina and related facilities. This portion of the Bay that this area fronts on is well protected and has deeper water depths. Thus, it could serve larger craft. Boat slips could also serve the recommended residential portion of the redevelopment. On land facilities could include commercial enterprises serving the waterfront park (e.g. concessions, water craft rental, etc.).

4. Industrial. The Downtown industrial uses are dominated by Bay Shipbuilding Company and Palmer Johnson Yachts. It is vital that Sturgeon Bay maintain those high-visibility employers, hence their needs must be included with the overall revitalization effort. The following are recommended:

$ Since most of the production work is occurring in the northern part of the downtown waterfront area, it is recommended that future consolidation and expansion of shipbuilding activity be sought in this region first. Bay Shipbuilding and Palmer Johnson Yachts, along with the Door County Economic Development Corporation and the City of Sturgeon Bay, have initiated planning for shared launching facilities and other improvements. These efforts should be supported in order to improve efficiencies and ensure long-term viability.

$ Depending upon the results of the master plan for the shipbuilding cluster, city actions may be required to implement its recommendations. This could involve street closures or relocations, use of the city-owned parcel at First and Jefferson, ordinance changes, or other actions. By being an active participant in the master planning process, the City will be better prepared to initiate proposed actions.

$ In the rest of the planning area, additional industrial uses should generally not be promoted, except for large-scale shipbuilding operations and other water-dependent industries. The former PBI shipyard property is currently zoned for heavy industry, but previous reports have indicated that renewed industrial use is not likely. Hence, unless a high value, high employment industry expresses interest or if Palmer Johnson seeks to expand or consolidate its operation into this portion, the region south of Michigan Street should be planned for other uses.

4. Transportation Considerations. Transportation within the downtown region is influenced not only by new developments in the downtown, but by overall city traffic patterns. The following are considerations regarding transportation issues. Most of these issues will require further study before a firm recommendation can be made.

$ The PBI-East Downtown Subarea Plan recommended the extensions of Quincy Street and S. First Avenue to form a traffic connection through the PBI property. This street connection may not be necessary, especially if public access to the waterfront can still be assured. This street connection should not be planned for and planning for future streets (if any) within the main PBI property should be done in conjunction with more detailed site designs put forth by developers.

$ The City should consider extending 1^st Avenue from Oregon Street to Pennsylvania Street, but vacating 2^nd Street for this same block. This would be especially appropriate if the PBI-owned buildings along 2^nd Avenue between Oregon and Pennsylvania Streets (incl. Stone Basement and 2 homes) are removed for redevelopment. A larger unified parcel would be created for new development, while the extended 1^st Avenue could potentially give greater access to (and along) the waterfront open space. Additionally, such a Aswap@ of right-of-way would allow 1^st Avenue to function as the primary transportation corridor along the waterfront with 2^nd Avenue being a secondary access (same as north side of Michigan Street). If a bridge is constructed on the Maple to Oregon corridor, it could have an impact on switching the right-of-way for these streets.

$ Installing traffic controls at the 1^st Avenue/Michigan Street intersection is one recommended alternative in the Sturgeon Bay Comprehensive Transportation Plan. The need for traffic control will increase if development occurs in the southeast portion of downtown. One option that should be explored is the installation of a roundabout. Roundabouts have successfully been implemented in other northeastern Wisconsin communities and are effective at improving traffic flow (especially for left turn movements), reducing vehicle crashes (and their severity), and enhancing pedestrian safety. They are also usually less expensive to construct than conventional traffic signals. The City should investigate the feasibility of using a roundabout at 1^st and Michigan, including verifying that necessary right-of-way exists and that it won=t hamper movement of large vehicles serving Palmer Johnson Yachts and Bay Shipbuilding Company. A future bridge at Maple to Oregon also impacts this intersection and, hence, must be considered before any improvements are made.

$ Depending upon the results of the master plan effort for the shipbuilding area, a portion of First Avenue may be desired for an additional production facility for Palmer Johnson Yachts. The City should consider vacating all or a portion of First Avenue between Jefferson Street and Iowa Street. This street currently serves Bay Shipbuilding and also acts as a bypass of downtown. Depending upon the traffic and utilities impact, alternative locations for the future production facility, closing this portion of First Avenue may be appropriate. After completion of the master plan effort for the shipyards, this issue should be evaluated.

$ Many of the streets within the east side downtown area are designated one-way. The one-way streets are primarily intended to improve traffic flow particularly for thru traffic. While the paired one-way street system for Third and Fourth Avenues tends to work well for moving traffic, the one-way pattern for the cross streets tend to make routes very circuitous and confusing, especially for traffic heading west on Michigan Street toward the downtown bridge. Consideration should given to converting the cross streets (Michigan, Louisiana, Kentucky, and Jefferson) to two-way streets. Because such conversions potentially impact parking, traffic back-ups due to bridge openings, and pedestrian movements, detailed study of this issue is necessary prior to a decision being reached.

6. Parking improvements. Additional parking will be necessary to serve new activities in the downtown region. There are many possible sites and the total amount of parking necessary will not be known until development proposals are submitted and approved. Of course, significant parking could also be provided by each individual development. The following sites are recommended as potential parking areas.

$ Former substation along Nebraska Street between 1^st and 2^nd Avenues. This property is already city owned and is not as conducive for new development due to industrial/utility uses currently located on three sides. It is also centrally located in the southeast portion of downtown.

$ Existing storage yard at Oregon Street/2^nd Avenue. This site is centrally located in order to serve existing and future development in region, including the recommended waterfront park. The site is also currently underutilized and not aesthetically pleasing.

$ Vacant lot on Nebraska Street between 2^nd and 3^rd Avenues. This property is being split with the portion containing the existing building being converted to a glass studio. The other half contains a small parking lot that could be purchased and expanded. It would provide parking to serve 3^rd Avenue businesses and future development along 2^nd Avenue.

$ Twenty foot strip of PBI property along Oregon Street adjacent to Palmer Johnson service yard. This property is too narrow for any developed use, but could be converted to a single row of parking backing onto Oregon Street. It also would reserve this land for street widening if needed for a bridge landing in the future.

$ Area between Oregon and Pennsylvania Streets adjacent to PBI Stone Basement building. This region on the water side of the Stone Basement building could serve redevelopment of the Stone Basement and or a future waterfront park. One idea put forth is to create underground parking at this location with a public plaza situated above.

$ Former Clark gas station at Michigan Street and Second Avenue. This abandoned gas station is an eyesore along a major transportation corridor. It is adjacent to the existing city parking lot along Second Avenue. The City should acquire this site in order to expand the parking lot. It would also be appropriate for a visitor information center.

West Side Recommendations

1. Downtown Commercial. The commercial area along Madison Avenue and various side streets is the core area on the west side. The following are recommended:

$ Continue to enhance and preserve this commercial district, including filling vacant lots/storefronts, preserving the historic character of buildings, enhancing pedestrian movement, and providing adequate parking.

$ The downtown character of Madison Avenue should be carried along both East and West Maple Street. East Maple Street especially offers significant opportunities for redevelopment with future uses and design mirroring that of W. Maple Street and Madison Avenue.

$ The City-owned parcel located at the northwest corner of Pine Street and Madison Avenue should be developed, either sold for commercial use or converted into public parking. If retained as open space, landscaping, benches, and other amenities should be added.

4. Transitional Commercial. E. Oak Street and the portion of Neenah Avenue north of Redwood Street already contain several non-residential uses and vacant parcels. In addition, Neenah Avenue constitutes a major entry corridor into Downtown Sturgeon Bay with the expectation that both traffic and development pressure will increase. Thus, E. Oak Street and Neenah Avenue to the north of Redwood Street should be treated as transitional commercial areas.

$ Allow a mixture of single family, multifamily, and commercial uses along these streets.

$ Provide an additional off-street parking facility for E. Oak Street.

$ Rezone the west side of Neenah Avenue as new developments or conversions of existing structures are proposed.

4. Tourist Commercial. Much of the waterfront near the Michigan Street bridge has already been redeveloped into recreational commercial uses. The Door Co-op property and the city-owned parcel between the Co-op and Sawyer Park offer additional opportunities for tourist related commercial activities. Recommendations include:

$ A variety of commercial land uses are appropriate, including lodging (hotels, B&B=s), dining (restaurants, cafes), galleries (artist co-op), and shops. Alternatively, multifamily residential uses could be considered.

$ Landscaping and parking improvements need to be coordinated with future development. The waterfront walkway should be extended through this region.

$ Efforts should be made to retain the existing water based activities, particularly the U.S. Coast Guard presence. However, options such as relocating the buoy storage facility should be considered as it would open up a view corridor and provide greater flexibility for development options.

$ Seek and maintain year-round uses in order to enhance downtown vitality.

5. Single Family Residential. The portions of W. Oak, W. Pine, and W. Redwood Streets nearest to Lansing Avenue currently comprises a fairly stable residential neighborhood with mostly single family homes. The same is true for E. Pine and E. Redwood Streets (except for the frontages along Madison and Neenah Avenues). The Comprehensive Plan designates a portion of each area for commercial expansion. Rather, the City should encourage these neighborhoods to continue in order to contribute to a healthy and diverse downtown waterfront area. In order to maintain the existing predominantly single family residential character of these areas, the City should initiate a rezoning to the R-2 district for that portion which is not already classified R-2.

6. West Side School. The former West Side School is rather unique in downtown given its size, location, and history. Although no longer used as an elementary school, the building remains a prominent community icon and still houses the Challenge Program and other miscellaneous uses. Recommendations for the City include:

$ Work with the Sturgeon Bay School District to explore possible future uses of the facility. As long as the building is structurally sound, reuse is promoted over removing the building for new development.

$ Intensify the use of the building to include offices, residential apartments, or additional institutional uses such as a youth club.

$ If the building were to be demolished, the site should be redeveloped with multifamily residential or open space uses.

4. Door County Co-op site. The Door County Cooperative is in the process of relocating its retail facilities to another part of the City. If the grain facility is also relocated in the future, the site is ideal for redevelopment. Because of its prominent location and potential for mixed redevelopment, the following are specific recommendations in addition to those cited in the general land use areas listed above.

$ The southern portion along Maple Street should be developed as traditional downtown office/retail with new storefronts having narrow setbacks and parking to the rear (same as Madison Avenue and W. Maple Street).

$ A portion of the rear side of the site should be considered for Maritime Museum expansion or additional downtown parking. The water side of the site is also appropriate for recreational commercial use (e.g. restaurant, lodging, etc.), residential use (e.g. condominiums), or open space.

$ A mixed use development, with first floor commercial uses facing Maple Street and residential apartments located above would work well on this site.

$ Development on the Co-op property should be coordinated with the adjacent city-owned parcels in order for efficient development to occur. As stated previously, the public waterfront walkway should extend through this site to connect with Sawyer Park.

5. Roen Salvage property. The City should seek to maintain the viability of this key waterfront industry. However, the company does own much property and if Roen Salvage desires, it may be possible to develop a portion of it, particularly the frontage along Neenah Avenue.

$ As stated above, Neenah Avenue should be planned as a transitional commercial area. New commercial uses would be appropriate fronting along the Neenah Avenue portion of the Roen property.

$ Multifamily residential uses could be situated either above first floor commercial uses or to the rear of Neenah Avenue, if adequately designed to buffer such use from the industrial activity occurring along the waterfront.

$ If redevelopment of the waterfront portion is sought by Roen, either recreational commercial uses such as hotel/marina or multifamily residential uses such as waterfront condominiums is envisioned.

$ Depending upon the type and scale of any future development, street access should be provided by extending E. Pine and/or E. Redwood Streets into the property. Additional public access to the waterfront and open space should also be incorporated into any new development, including an extension of the public waterfront walkway concept.

$ The City and property owner should consider leasing a portion of the currently unutilized area for additional parking for the Sawyer Park boat launch facility.

6. Transportation Considerations. The following transportation improvements are recommended.

$ Realign Neenah Avenue to eliminate the jog. Since Neenah Avenue forms an important transportation link between Highway 42/57 (and the Industrial Park) and Downtown Sturgeon Bay, the jog in the road right-of-way should be removed to create a better flowing street. This might involve taking a strip of right-of-way from Sawyer Park. The importance of Neenah Avenue for transportation will increase if the potential bridge corridor to Oregon Street becomes a reality.

$ Improve the pedestrian crossing on Madison Avenue between the Maritime Museum and Bay View Park/Applebees Restaurant. Currently the west side waterfront is split by Madison Avenue and the bridge landing, with heavy traffic and poor sight lines making it difficult for pedestrians to cross. This situation is worsened by the fact that much of the parking serving Applebees, the marina, and Bay View Park is located on the opposite side of Madison Avenue. An underpass at the bridge would be ideal and would greatly ease parking and pedestrian problems. But the fact that clearance under the bridge is minimal makes this project less feasible. Thus, the recommended option is to create a permanent safety island (median) in the center of Madison Avenue at the current pedestrian crossing location. The City recently striped a temporary island, which should be converted to permanent as soon as budgeting and other constraints permit.

Implementation Considerations

Tax Increment Financing - In 2001 Tax Increment District #2 was expanded to include the former PBI shipyard and adjacent properties. Much of the Downtown Waterfront region is now located within TID #2. Tax increment financing (TIF) is an economic development mechanism created by the Wisconsin Statutes as means to spur redevelopment of blighted, deteriorated, or underutilized areas of a city. The city spends money on activities such as land acquisition, infrastructure improvement, and site preparation, in order to assist development. The taxes created from the new development (increment) is then used to pay back the funding spent by the city before going into the general tax base. The theory is that without the city Apriming the pump@ with TIF expenditures, redevelopment (and the tax base that comes with it) would not occur as desired or would not occur at all.

Based upon the requirements of State Statutes, the City has only until September 2004 to fund expenditures using TIF. This is a short amount of time to identify, design, and construct projects. Thus, the City must decide if it wants to proceed with any improvements. In order to minimize risks, many communities will not fund projects unless a specific development with a known tax value is lined up and ready to go.

In addition to time constraints, another concern with using TIF is that the amended project plan for TID #2 limited projects generally to city infrastructure and public property. The inability to use TIF funds for activities such as clearing development sites will make it more difficult to lure developers, particularly if a developer could build the same project less expensively on a Agreenfield@ site elsewhere. Redevelopment and revitalization project often face an uphill financial battle when compared to new development on open land. Hence, the City needs to be as creative as possible in providing the necessary financial incentives to ensure future development consistent with the goals and vision of the City.

It is recommended the Waterfront Redevelopment Authority initiate discussions with the property owners of the two prominent redevelopment opportunities - former PBI shipyard and Door County Co-op. Negotiations should occur regarding future land uses and design, green space acquisition, environmental remediation (if any), and the City=s participation in redeveloping these sites. An agreement for the Common Council=s consideration should be worked out that balances the requirements and goals of TIF Project Plan with the desire for new development consistent with City plans.

Zoning Amendments - As stated within the recommendations, there are specific zoning map amendments that should be initiated by the City to conform with the land use goals of the Downtown Waterfront region. In addition, there are other areas where the use of property doesn=t match the zoning district or where the site does not conform to the various zoning design requirements. For those areas where the desired long-term uses do not match the current zoning district, additional zoning map amendments should be undertaken. Zoning text amendments should be drafted and implemented in order to promote the desired downtown character. As an example, street yard setbacks for downtown commercial uses should be reduced or eliminated to allow for buildings to be built close to the street. Such changes to the zoning code will also reduce the number of nonconforming uses and structures within this planning area.

Solicitation of Grants - Funding sources such as historic preservation grants and community development block grants should be pursued as a means to promote rehabilitation of buildings in the downtown waterfront area. Low interest loans and other programs should be explored to allow property owners incentives to upgrade existing buildings in the downtown region.