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LAND USE

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"Make sure that when we change a place, the change agreed upon nurtures our growth as capable and responsible people while also protecting the natural environment and developing jobs and homes enough for all."

— Tony Hiss

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VISION FOR SUCCESS

This plan envisions land use policies that balance the economic, social, and environmental needs of the city, strengthens the local economy, improves the physical environment and preserves a high quality of life for all city residents.

The vision of success for Land Use includes:

Sustainable Growth

The City will manage growth and change through effective land use policies that sustain Milwaukee’s high quality of life, protect natural resources, and drive economic vitality. As a result, Milwaukee will be a more desirable place to live, work and visit.

Coordinated Planning

Land use and transportation planning will be coordinated to sustain and implement wise transportation planning and construction.

Quality Urban Design

The City will promote good urban design that embraces the creation of places with lasting value and civic meaning.

OVERVIEW AND INTRODUCTION

Located on Lake Michigan, Milwaukee is an attractive urban center that reflects its rich European history, quality neighborhoods, a diversity of cultural experiences, and natural resources. Milwaukee’s development pattern is based largely on an urban street grid system, with more suburban patterns of development on the northwest and southwest sides of the city. This pattern has yielded a city with a strong urban framework and design. Neighborhoods are wonderfully diverse in population, housing options, businesses, retail, arts and entertainment, and historic landmarks, lending the city an unusually high quality of life. Over time, Milwaukee’s diverse mix of land uses has created thriving neighborhoods and resulted in successful development and redevelopment opportunities.

Prior to 1920, there were no land use restrictions in place. At that time, the Board of Public Land Consumption issued a report focused on three components of development – area, height, and use. Inspired by the City Beautiful movement lead by Daniel Burnham in the 1890s, the City Plan Commission began efforts to develop a city plan to help guide development in a way that protected the public welfare and improved quality of life. Zoning was a fundamental part of this plan and continues to be the primary land use tool for guiding development within the city today.

The first zoning code for the City of Milwaukee, passed by the Common Council in 1920, established the rights of the City to control the land uses that were permitted in designated zoning districts. Expansion of the population base and economic activities, particularly industrial production and manufacturing, were the two primary factors driving changing land use across the city. The current Zoning Code, updated in 2002, is one of the City’s primary tools for implementing the Comprehensive Plan by regulating the allowable use of each parcel of land in the city. The code is amended regularly to address technical corrections, changes in land use practices, and changing conditions in the city, which helps to maintain land use standards to meet changing demands and market dynamics.

City of Milwaukee Land Use

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Land Use

Data Source: Department of City Development

City of Milwaukee Zoning

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Zoning

• Single Family
• Duplex
• Multi-Family and Condominiums
• Commerical
• Industrial
• Heavy Industrial
• Open Space
• Institutional
• Transportation, Communications, and Utilities
• Downtown

Data Source: Department of City Development

LAND USE 30

Milwaukee Land Use - Overview

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LAND USE

Milwaukee’s 43,795 acres are divided into roughly eight general land use categories, each of which is subdivided into a number of subcategories. The figure above details the percentage of city land that is within each category. For the majority of parcels within the city, and use is consistent with zoning; however, while zoning indicates the City’s policy in regards to specific land uses in specific areas, land use reflects the actual current use of every parcel of land.

Today, 41% of Milwaukee’s land is used for residential purposes. This is the largest of all land uses comprising over 22,000 acres. Of the residential land uses, 67% are single family dwellings, 22% are duplexes (housing two families), and 11% are multi-family units, which include apartments, condominiums, and much of the publicly supported housing. Milwaukee’s neighborhoods provide a diverse range of attractive, safe, and affordable living environments that are served by public transit, schools, arts and culture, parks, city services, and shopping, all of which help strengthen livability. In order to maintain and improve residents’ quality of life, the City allocates substantial effort and resources into maintaining and enhancing neighborhoods. The 13 Area Plans include goals, objectives, policies and catalytic projects, which will help guide the City’s efforts to achieve and maintain consistently high quality neighborhoods. In recent years the City has begun to target redevelopment efforts that have resulted in the revitalization of several neighborhoods near downtown and in older parts of the central city.

As of 2008, approximately 7% of Milwaukee’s land was designated for industrial use, which includes a wide range of activities such as manufacturing, construction, and warehousing. Much of this area is located near rail corridors which facilitate movement of manufactured goods and supplies. In the past, many of these areas were also located along waterways which provided clean, cool water for brewers and other water-intensive industrial processes. Today, a number of the waterway industrial corridors that were vacant or underutilized have been reclaimed and redeveloped, such as the Beerline B.

Milwaukee, like similar Midwestern cities built on industry and manufacturing, is in the process of recharging its economy around technology and service industries. However, industry provides about 20% of all jobs in Milwaukee (2006), and the city should strive to maintain a strong base of development-ready industrial land to support and attract industrial or business development that contributes direct economic benefits to the city. Industrial land with little potential for productive or profitable industrial use should be considered for other productive uses such as commercial, office, or residential.

Milwaukee has approximately 3,307 acres (10%) designated for commercial use (retail, office, and business) a proportion that is consistent with national trends. Currently, however, office vacancy rates are high in both the suburbs (16.5%) and downtown (19.1%), which has depressed office rents. It is important to recognize the importance of integrating and distributing commercial uses within other districts, so that access to goods and services is available to a broad cross section of the population.

Public lands make up 35% of the city, second only to residential. Public land includes parks and open space, floodplain and other natural resource areas, institutional uses (e.g., schools and hospitals), and City-owned parcels and buildings.

Milwaukee Land Use - Residential

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LOCAL ACHIEVEMENT

• The City of Milwaukee has shown significant success at redeveloping brownfields and industrial areas as catalysts for economic development and neighborhood revitalization. This has been demonstrated in the Menomonee Valley and in the 30th Street Industrial Corridor, where significant City funding is being directed for brownfield remediation, stormwater management infrastructure, and land assembly and preparation. Such public investments help pave the way for development, reinvestment, and revitalized economic productivity of these areas, which is good for the surrounding neighborhoods and the city as a whole.

• The Menomonee Valley Industrial Center and Community Park won three major awards at the 2009 National Brownfields Redevelopment Conference. The project captured the People's Choice Phoenix Award, the Environmental Protection Agency Region 5 Phoenix Award, and a Brownfields Renewal Environmental Impact Award. All three awards recognize excellence in the remediation and re-use of contaminated properties. The Phoenix Awards are the nation's top honors recognizing excellence in brownfield redevelopment.

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• Neighborhood revitalization is being initiated at a number of levels. City-directed reinvestment has helped to reinvigorate the Third Ward, City Homes, and the Martin Luther King corridor. At the grassroots level, Walnut Way, Johnsons Park, Clarke Square, Lindsay Heights, and Teutonia Gardens are five of a number of neighborhood redevelopment initiatives. Two projects include significant philanthropic funding to create quality of life plans that will augment the City's Area Plans. These, will in turn, be expanded to include ten neighborhoods.

• The City recognizes and values its cultural and neighborhood heritage, and has committed to preserving traditional neighborhoods, industrial character, sustainable design, preservation and restoration of open space and waterways, and the redevelopment of essential infrastructure.

DOWNTOWN

Milwaukee’s downtown core has become more vibrant and active over the past decade, a trend that continues today. Downtown has always been and should remain the city’s commercial core and economic engine, providing a disproportionate property tax base relative to its small geographic area, serving as home for major employers and destination venues such as the Bradley Center, Midwest Airlines Center, and the Marcus Center for the Performing Arts. Over 2,400 housing units in new residential buildings have been constructed, significantly adding to the city skyline. Major office development has enlivened Schlitz Park, with the additions of Manpower and Time Warner. The Grand Avenue Mall has been reinvented, through the addition of ASQ and the addition of housing. New and revitalized destinations like the Pabst Theater, Milwaukee Art Museum, Discovery World, and new clubs and restaurants, have enhanced the vitality and number of downtown destinations. The exciting Downtown RiverWalk and associated redevelopment have completely transformed the river corridor, bringing riverfront outdoor cafes and close to three miles of urban public walking trails. This river corridor serves the city well, not only as a source of natural resources but, just as importantly, for attractive commercial business and residential living opportunities.

A second major redevelopment initiative, the removal of the Park East freeway spur, has provided over 60 acres of land available for downtown redevelopment. Park East projects in progress or completed include: The Housing Authority’s Convent Hill senior housing development; North End residential development; the Park East Square Hotel; The Moderne residential building; the Milwaukee School of Engineering’s Kern Center for athletics and health; the Aloft hotel; and the Flatiron residential building. These projects, while only the beginning to complete the total Park East vision of dense, urban mixed-use redevelopment, will continue the upward trajectory of the intensification of land use in the heart of the city.

URBAN DESIGN

Milwaukee’s strong urban form is part of its history and reflects the ongoing development of housing, commerce, and transportation systems that underscore its urban heritage. The city celebrates its unique urban assets and continues to build upon its strengths as the core of a major metropolitan area by creating places with lasting value and civic pride. Good urban design principles combined with the city’s rich architectural heritage will further enhance a high quality of life for Milwaukee’s residents and visitors. The City maintains high expectations for excellent, context-sensitive urban design that will instill a sense of pride and belonging among all its residents, businesses, and visitors. To help preserve and expand good urban form, Milwaukee’s City Plan Commission has adopted four Principles of Urban Design:

• Neighborhood compatibility which considers physical character and scale, linkages, patterns, and context sensitive development.
• Pedestrian friendly design which helps to define street edges, enhance the pedestrian experience and create a memorable place.
• Land use diversity to encourage a mix of uses at the neighborhood scale.
• Transportation diversity to accommodate pedestrians, bicycles, automobiles, and public transit.

RENEWAL PLANS, PROGRAM AREAS, and REINVESTMENT DISTRICTS

The City has demonstrated its commitment to urban revitalization and reinvestment through a number of land use planning, zoning, financing, and redevelopment tools. Renewal plans, redevelopment projects and program areas, and reinvestment districts are three such tools intended to substantially increase the property tax base and to encourage land uses that will provide significant employment opportunities.

The City’s first renewal plan was created in the 1960s for the lower Third Ward.

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The City’s use of renewal plans expanded to include the following initiatives: • Beerline B is a former industrial corridor located along the Milwaukee River from Pleasant Street to Humboldt Avenue. Today it is home to some of the most visually exciting urban development in Milwaukee. Redevelopment of the Beerline B also includes several connections between the Brewers Hill and Riverwest neighborhoods and the Milwaukee River, including Kilbourn and Kadish Parks, Booth Street Stairs and the Milwaukee Rowing Club. • The Park East redevelopment plan identified the elevated Park East freeway as a blighting influence that inhibited development on nearby parcels just north of downtown. The freeway was removed to reconnect city streets, reintegrate neighborhoods, and create more than 24 acres for mixed use redevelopment and new tax base. • The Port of Milwaukee redevelopment plan strives to complement the Milwaukee 7 goal of promoting water industries, assisting in the redevelopment of brownfields, improving public access to the waterfront, and creating jobs. • The Century City redevelopment plan for the former Tower Automotive / A.O. Smith site, will lead to brownfield redevelopment, new housing, opportunities for industrial and commercial use, job training, and educational opportunities. The intent is to provide much needed jobs in the near north area of the city.

The table on the following page provides a brief summary of the variety of revitalization tools used by the City of Milwaukee. Please refer to the City of Milwaukee Department of City Development website for more detailed information.

LAND REUSE

Milwaukee has received a number of awards and accolades for its commitment to redevelopment of underutilized and vacant properties as a strategy to revitalize neighborhoods and districts and to capitalize on reusing existing built infrastructure. Milwaukee was built on a long and productive industrial legacy that was most concentrated along rail lines and water corridors (the Menomonee Valley and the 30th Street Industrial corridor are two notable examples), but also dispersed throughout the city over the years. That legacy, however, has also resulted in brownfield sites ranging from small corner gas stations to huge former industrial plants such as the 84-acre Tower Automotive / A.O. Smith site purchased by the City in 2009. The principal concern with brownfield sites is the potential hazard to human health and the environmental contaminants left by former users. In addition, brownfields are often blights to the surrounding neighborhood and are difficult to redevelop due to liability issues and the high costs of environmental testing and cleanup. On the other hand, many brownfield properties have reverted to City ownership through tax-delinquency, which gives the City leverage and control over what happens with these properties. The City of Milwaukee regularly targets resources to transform unproductive properties into new, property-tax generating uses. The City staffs a specialized environmental team, manages environmental services, seeks funding and financing opportunities through the state, MEDC, and RACM, and provides assistance to private developers who are interested in redevelopment opportunities. The city has also been focused on integrating sustainable practices into redevelopment projects, such as the stormwater management park and sustainable development guidelines in the Menomonee Valley.

Malls and other retail properties that are economically and physically ready for redevelopment and that require significant public and private-sector intervention for revitalization are referred to as greyfields. The City is committed to finding new productive uses for these properties, as exemplified by the successful redevelopment of the former vacant and under performing Capitol Court mall into Midtown Center. Greyfield redevelopment opportunities exist across the city, such as the former Northridge Mall (now Granville Station) and outdated strip malls along major transportation corridors. Redevelopment of these retail districts often benefits the surrounding neighborhood as well.

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Revitalization Tools

OPPORTUNITIES

1. Strong historic development patterns and community assets.

The City of Milwaukee consists of a vibrant combination of engaging and close knit neighborhoods, a diverse population, many opportunities for arts and culture, an integrated transportation system, and a generous network of parks and open space systems. Many community based organizations that have served these neighborhoods provide as an example for the stabilization and strengthening of other neighborhoods. Milwaukee has a rich and varied natural resource base as well as a community of arts, culture, and history supporters that improves the quality of life of the city.

2. Wide variety of land and facilities available for redevelopment.

Vacant and underutilized properties, such as Park East and the 30th Street Industrial Corridor, provide opportunities for redevelopment. The City and Redevelopment Authority (RACM) have demonstrated success redeveloping underutilized or inappropriate uses into new uses that stimulate economic activity, such as the Menomonee Valley, Beerline B, the Third Ward, and the Pabst Brewery. The Housing Authority has shown similar success redeveloping residential properties using traditional neighborhood and sustainable strategies to create better living environments. Further, the City and its community partners are committed to maintaining and revitalizing an industrial land use base, and have had significant success with projects such as the Menomonee Valley Industrial Park that demonstrate a serious commitment to redeveloping vacant, underutilized, and brownfield properties. The successful redevelopment of these parcels also creates momentum for neighborhood and economic revitalization near these projects and in other parts of the city. These properties present opportunities new uses that support strong, sustainable communities including mixed use and transit oriented development projects.

3. The City’s focus on water resources.

Lake Michigan and the three major river systems across the city form a strongnatural resource foundation that the city can capitalize on for economic development and enhancing quality of life. Balancing economic development goals with the preservation and protection of valuable natural assets is critical to a sustainable and prosperous future for Milwaukee. The city’s location on Lake Michigan, coupled with businesses and organizations focused on clean water technology, provides a solid basis for supporting the continued development of water related industries, research and development. Appropriate use and development of the lakefront, such as the Henry W. Maier Festival Park, the Daniel Hoan Memorial Bridge relocation, Municipal Pier and waterfront development, continue to be discussed.

4. Future land use and catalytic redevelopment projects.

The 13 Area Plans covering the entire City of Milwaukee provide detailed land use recommendations and catalytic projects actions for all of the city. Within each Area Plan are recommendations for major districts and corridors as well as catalytic projects intended to stimulate neighborhood redevelopment and investment. The diagram and associated chart on the following pages indicates the locations and descriptions of these catalytic projects which represent anticipated changes to the City of Milwaukee’s future land use scenario.

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City of Milwaukee Future Land Use Diagram

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Land Use

• Single Family
• Duplex
• Multi-Family & Condominium
• Commercial
• Industrial
• Open Space
• Institutional
• Transportation, Communication, and Utilities

Area Plan Catalytic Projects

(00) Recommended Land Use Change [00] No Recommended Land Use Change

Data Source: Department of City Development

Future Land Use

Future Land Use (continued)

Future Land Use (continued)

Future Land Use (continued)

CHALLENGES

1. Accommodating growth and land use change and to adapt to a changing economy and population.

By its very nature, the urban community is constantly in flux through changes in population, economics, the need for and location of land uses, and the natural growth and decline of businesses and neighborhoods. Until recently, the city’s population has been declining, and the region’s population has been increasingly dispersed, which impacts a number of other city resources such as attendance at cultural events, business and home occupancy and ownership, availability of an educated workforce, and tax revenue. Growing Milwaukee will require the city to work diligently to retain existing residents and businesses and attract new residents and businesses by providing a range of housing and transportation options, a vibrant urban environment, a competitive business climate, and opportunities for people at all levels of income, education, ability and economic advantage.

The city is challenged to stimulate economic development while conserving the quality and integrity of existing neighborhoods, commercial districts, and local landmark institutions. The city must adapt to change, address blight, vacancy, at risk neighborhoods and businesses, and the legacy of former industrial land uses for current and future users. The city must also accommodate and promote the need for change within its procedures, regulations, and guidelines to streamline the development process, allow flexibility and creative development programs within its zoning code, and consider easing regulatory disincentives to development while continuing to protect the health and welfare of the population. A diverse and robust set of incentives is also critical to stimulating economic development and investment. These could include updating facilities and infrastructure, making land available for redevelopment in appropriate circumstances, and providing financial support in situations where the market will not support all of the public interest portion of a development.

A brownfield is real property, the expansion, redevelopment, or reuse of which may be complicated by the presence or potential presence of a hazardous substance, pollutant, or contaminant. - United States Environmental Protection Agency (USEPA)

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Strengthening and enhancing commercial and industrial districts is also critical to city development. Several neighborhoods are facing an increase in vacancies in vital commercial districts and corridors, including big box retailers, former automobile dealerships, former manufacturing facilities, and retail malls. ‘Surplus’ schools present a different but related challenge of finding creative, productive uses for underutilized space. While these vacancies present significant challenges for the city, they also offer redevelopment opportunities for new uses that can enhance tax base, provide jobs and promote new and emerging industries. At the neighborhood level, balancing national enterprises, such as big box and national chain retailers, with smaller, locally owned businesses can help create the right mix of commercial uses while still providing a substantial local market for homegrown businesses.

2. Creating and sustaining vibrant, healthy, and safe neighborhoods.

As with most cities, Milwaukee’s community fabric is a mix of neighborhoods with varying degrees of stability, vitality, safety, and quality. Some neighborhoods thrive with new development, successful businesses, and stable housing stock and ownership. Others struggle with significant blight, crime, unemployment, vacancies. The once thriving 30th Street Industrial Corridor, for example, now requires significant reinvestment from the City and community partners to retain and attract new businesses and jobs, to increase safety and security, and to train and stabilize the local workforce for existing and future jobs.

Careful context-sensitive integration of land uses that supports the social and economic fabric of the community is critical to achieving successful neighborhoods that provide a high quality of life for a diversity of people, businesses, and visitors. An appropriate land use program can help foster job growth, provide needed goods and services within a reasonable distance of residents and businesses, achieve densities and mixes of land use that support public transit and active neighborhood centers, and provide a high quality of life for all residents.

Appropriate city land use and development practices must allow and encourage development that will strengthen neighborhoods and create synergies to achieve these goals. For example, new development with higher residential density can provide the customer base necessary to support a healthy neighborhood retail district. A functional and fiscally stable public transit system requires higher density development around public transit stations, which is not currently supported by the City’s

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zoning code. This may require the city to allow a mix of densities and uses, more compact development, rezoning, and reinvestment. The City should also consider changes to the current zoning ordinance, to support a mix of uses and compatible forms within neighborhoods.

Creating desirable, sustainable neighborhoods requires the development of strong, high quality planning and urban design standards that protect the character, integrity, and qualities that make Milwaukee neighborhoods great. It also requires cooperation and collaboration between the public and private sectors.

3. Coordinating land use, transportation, and infrastructure planning.

Coordination of land use with transportation investments is necessary to strengthen the connections between jobs, housing, and transportation that are critical to a vibrant urban environment. Placing public transit stops near jobs and housing to shorten travel distances to employment centers requires a coordinated effort by public and private entities. Connecting people to jobs that are farther away is equally challenging, and requires the provision of transportation options that are accessible, efficient, and attractive to users. While strong street and highway infrastructure remains essential to the city’s success, transportation goes well beyond providing streets and parking lots, since driving is a luxury not available to everyone and since there are indirect costs to the urban environment assumed by everyone, as well as the impacts of auto emissions on climate change. Providing multiple options for getting from place to place requires significant investments in infrastructure, as well as a land use program that supports and is in turn supported by that infrastructure. The City must realistically evaluate and support transportation options to foster positive development even as additional transportation options are in the process of being developed.

CHARACTERISTICS OF GREAT NEIGHBORHOODS

1. Convenient access to goods and services for daily needs, such as groceries and child care
2. A variety of transportation options and routes for people of all abilities
3. A diversity of housing choices to meet the needs of a diverse population
4. Public spaces that are clean, safe, and engaging, including parks, open space, the natural environment, trails, play lots, and public plaza
5. Equitable and convenient access to public services and facilities, including safe schools, libraries, recreation and community centers, police and fire protection, and public maintenance, cleanliness, and investmen
6. Distinctive neighborhood character, diversity, and a “sense of place”, which includes historic, cultural, and natural resources, trees and landscaping, and safe and attractive streets and other public spaces
7. A sense of pride, ownership, stewardship, and responsibility for the community, its residents, and the future City of Milwaukee.

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POLICIES

I. USE A TARGETED CATALYTIC APPROACH TO PLAN LAND USE AND DEVELOPMENT TO MEET AND STIMULATE EXISTING AND FUTURE MARKET DEMAND FOR RESIDENTIAL, COMMERCIAL, AND INDUSTRIAL USES AND TO STRENGTHEN THE LOCAL AND REGIONAL ECONOMY. The location and relation of the city’s land use combined with the details of its land development program significantly impact economic activity, strength, and competitiveness. Land use and development can help strengthen the city’s position as the economic and cultural center of southeastern Wisconsin.

A. Use the city’s land control and development review process to encourage new sustainable development, investment, and economic activity

1. Provide a central location for information and a regularly updated map showing land use and areas that are targeted for reinvestment and development

2. Continue to streamline the development review and permitting process and enhance the e-permit program to be accessible, understandable, and easy to use

3. Examine city standards that may act as disincentives for redevelopment of industrial and commercial lands. Modify disincentives and adopt positive incentive measures, such as density or floor area ratio bonuses

4. Improve marketing of city owned property for redevelopment and commercial real estate opportunities, and promote the competitive advantages of Milwaukee sites

5. Provide incentives and flexible zoning in designated areas to encourage denser, more compact development near public transit stations and commercial hubs, along major transportation corridors, and near downtown. Manage the transition between these higher density areas and lower density residential neighborhoods

6. As feasible, work with developers to contribute to open space, affordable housing, sustainable practices, historic preservation, or other community benefits in exchange for additional development density or other benefits

7. Continue to strengthen and utilize the capabilities of HACM, RACM, MAWIB, MEDC, and NIDC to implement City priorities and to improve city resources

8. Expand or create additional neighborhood investment zones (BID, TIF, TIN, etc.) and tap into Community Development Block Grant (CDBG) funding to encourage and help finance priority redevelopment efforts

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B. Balance and coordinate land use, development and infrastructure investment decisions to make efficient use of existing city infrastructure, utilities, services, and resources

1. Plan land use to create neighborhoods with a balance of jobs and housing, encourage people to live close to where they work, and connect jobs and housing via efficient, accessible, and affordable transportation systems

2. Dedicate resources to provide land use opportunities that are consistent with area plan recommendations for districts, corridors, and catalytic projects

3. Plan land use, infrastructure, utilities, and public services together so that one does not outpace the capacity of the other. Provide adequate facilities to support new development, and maintain, upgrade, and maximize use of existing utility systems, infrastructure, services, and facilities before extending or expanding these systems

4. Encourage “infill” development in areas where adequate utilities and services are already in place, that offer opportunities for increased density and more amenities, and that broaden the variety of compatible uses. Accommodate the reuse and redevelopment of underutilized, closed, decommissioned, or obsolete institutional, commercial, and industrial spaces as walkable, mixed use developments or other uses appropriate to the surrounding community

5. Coordinate land use planning with transportation, public utility and infrastructure construction and improvement. An appropriate spatial distribution of land uses will maximize the economical provision of transportation, utility and public facility services

6. Direct new development to enhance the tax base and stimulate economic development while minimizing adverse impacts on residential areas, neighborhood integrity, and open space

7. Discourage disinvestment practices that harm neighborhoods and commercial districts, i.e. vacant storefronts, code violations, excessive security measures, litter, debris, unmaintained landscaping, or improper use of parking areas and yards

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C. Strengthen commercial and industrial centers, districts, and corridors and expand commercial and industrial activity

1. Strengthen commercial and mixed use districts, quality retail developments serving neighborhoods, and key intersections as centers of economic activity through the use of planned development and overlay zones, infrastructure improvements, and reinvestment zones. Expand the use of ‘Main Street’ practices as an organizing concept for strengthening neighborhood commercial districts and integrate both positive day and evening activities into commercial centers

2. Preserve industrial land uses and revitalize the industrial economy for a changing global and regional economy. Consider clean and green industries, clean water technology, research and development, and eco-industrial parks as redevelopment options for vacant and underutilized industrial property. Support the industrial employment base by allowing and encouraging limited commercial development near industrial districts that complement the needs of employees and businesses

3. Assemble, update facilities and infrastructure, remediate, and retrofit industrial parcels for new commercial and industrial business and employment

4. Enhance the image and aesthetics of industrial districts, as feasible, with appropriate, uniform signage, landscaping, and streetscape enhancements. Consider using the industrial legacy of the area as an icon and a point of pride for district character

5. Consider the campus, park, main street, and town square style of development for industrial, business, and commercial districts. Characteristics include a mix of uses, a connected and walkable street grid, landscaping, smaller parcels, interior atriums or courts, seating areas, and attractive streetscapes. Where feasible and appropriate, integrate these districts into the surrounding community through appropriate land use and design

6. Integrate residential, office, retail, civic, institutional, cultural, and open space uses into commercial areas to accommodate current and future needs of the neighborhood. Consider creative combinations of uses within the mixed-use designation rather than the typical ground floor retail with residential above

7. Allow flexibility within commercial and industrial land uses to allow non-traditional forms of business such as home offices and live-work spaces, to encourage existing businesses to branch out into new areas of activity, to encourage development and concentration of economic activity, and to facilitate firms with functional linkages to locate in close proximity to one another

8. Support context sensitive and sustainable parking strategies that support businesses while encouraging alternative modes of travel and the most effective and efficient use of land. Examine the market and economies of parking in relation to locational choices for businesses

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II. COORDINATE LAND USE, TRANSPORTATION, AND PUBLIC INFRASTRUCTURE PLANNING.

Land use patterns that complement and support a multi-modal transportation system will improve the movement of people, goods and services, reduce dependence on the automobile, improve air quality, and improve the city’s resiliency.

A. Develop a coordinated land use and transportation plan for the city that considers the location, density, and access to housing, commerce and industry, daily needs and services, parks and open space (including community gardens), and community, institutional, and civic facilities

1. Allow flexibility in land use that can be supported by and in turn support a comprehensive transportation system designed to efficiently move people, goods, and services

2. Plan land use to support alternative transportation services and choices, such as bus rapid transit, walking and bicycling, and light, heavy, and commuter rail

3. Promote a safe, comfortable bicycle and pedestrian friendly environment that encourages bicycling and walking within and between neighborhoods and other destinations

4. Adopt the updated Citywide Bike Plan and ensure that natural, cultural, arts, civic, and institutional destinations are reflected within the planned system

5. Maintain, expand and enhance the integrity of the city’s walkable, well-connected street grid

6. Support current uses and consider possible future uses of the city’s rail lines in land use plans and decisions

7. Identify, preserve, and enhance the city’s green infrastructure system of parks, waterways, and open space as a pedestrian and bicycle transportation network. Focus on completing the network for the Lake Michigan lakefront, the Milwaukee, Menomonee, and Kinnickinnic Rivers, and Hank Aaron State Trail

8. Recognize that easily accessible and affordable infrastructure for automobile and truck traffic, including necessary parking and loading facilities, remain essential components of successful developments

B. Encourage mixed-use, higher density land use around public transit stations and networks

1. Design high traffic public transit station areas as neighborhood centers supporting higher densities and a mix of residential and commercial land uses, employment opportunities, and other uses such as institutions, educational facilities, and civic uses

2. Encourage the concentration of jobs and housing in areas well served by multiple transportation options

3. Encourage mixed-use, transit-oriented development that makes effective use of existing transportation infrastructure, supports public transit stations, increases public transit patronage, promotes walking, reduces impact on the environment, and encourages vibrant neighborhood centers

4. Create a Transit-Oriented Development (TOD) zoning district around public transit hubs that support higher residential and commercial densities and a greater diversity of housing types, including both market-rate and affordable units and housing for seniors and others with mobility impairments

5. Integrate public transit shelters and other transit-oriented services and amenities near public transit stops to encourage their expanded use

III. SUSTAIN, RESTORE, AND ENHANCE THE LIVABILITY, CHARACTER, AND STABILITY OF MILWAUKEE'S NEIGHBORHOODS.

Strong neighborhoods are the hearts and minds of the community. A balanced diversity of land use helps provide the social, physical, and economic needs of different income levels, ages, life stages, and backgrounds within the community. Neighborhood centers and corridors provide focal points for commercial investment, employment, and community activity. Urban design standards can help articulate the unique physical character of Milwaukee’s traditional neighborhoods, promote development compatible with existing structures and the natural environment, and improve the vitality, appearance, and security of streets and public spaces.

A. Adopt citywide standards and guidelines that enhance the health, safety, convenience, stability and quality of neighborhoods and improve the quality of life for residents and stakeholders

1. Clarify and update the Zoning Ordinance and related ordinances, regulations and procedures to be consistent with the goals and objectives of the Citywide Policy Plan and Area Plans and the diverse and changing needs of current and future residents and visitors

2. Consider the inclusion of non-Euclidian approaches to land and development guidelines. Consider form-based or hybrid codes that zones areas by building type and site design as well as use, and flexible zoning that allows use to change with demand. Allowing owners to determine use allows for uses to change over time as the needs of the community change

3. Illustrate zoning regulations and design goals to provide clear visual representations of development goals

4. Adopt and implement Area Plans and recommendations for districts, corridors, and catalytic projects. Update these plans regularly in partnership with residents and other stakeholders

5. Promote land use patterns and traditional neighborhood designs that support the economic health and stability of neighborhoods and easy access to employment, education, social gathering places and services. Encourage people to live near where they work through incentives and land use planning

6. Allow a limited number of compatible non-residential uses within residential districts or mixed use commercial districts, as appropriate. These uses may include the establishment of small scale, neighborhood retail such as corner stores offering healthy food choices, live-work units, home offices, and studios that can be operated in a way that does not have a negative or detrimental impact on the surrounding neighborhood

7. Ensure that all residents have a safe, secure, clean, and healthy living environment that provides well maintained streets and sidewalks, visual and physical access to air, light, and open space, and an environment free from the adverse effects of noise, vibration, traffic, and odors and other contaminants

8. Ensure that all residents have convenient access to healthy food options (restaurants, groceries, and produce) within residential districts, and encourage the development of community gardens, urban agricultural initiatives, urban orchards, and local farmers markets

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B. Encourage the development of community focal points around key neighborhood assets

1. Identify key neighborhood assets and strengths and use a multi-faceted approach to address the assets and strengths of struggling neighborhoods, such as those employed by Neighborhood Improvement Districts, Target Investment Neighborhoods, and other assistance programs

2. Preserve, enhance, and incorporate educational facilities, institutional uses, and services as key neighborhood elements and centers of public activities

3. Consider the establishment of School Improvement Districts (SIDs) to revitalize physical, programming, and curriculum needs of neighborhood schools as social centers of the community

4. Consider reusing underutilized institutional or industrial facilities for new institutional, civic, or other neighborhood-compatible uses or services such as community centers and health facilities

C. Ensure that neighborhoods are unique, beautiful, and engaging for a diversity of residents, businesses, and visitors

1. Encourage the planning and development of land uses that create or preserve varied and unique urban neighborhoods with a distinct sense of place. Consider marketing and branding neighborhoods to promote them

2. Prioritize the preservation and development/redevelopment of beautiful and vibrant neighborhoods, boulevards, major transportation corridors, and community gateways through appropriate streetscaping, landscaping, façade improvements, maintenance, and other practices. Control the size and character of billboards, signage, communication towers, and other elements that may have a detrimental effect on the visual qualities and character of neighborhoods

3. Design and manage public sidewalks, parks, and streetscapes so that they enhance the function and aesthetics for businesses and pedestrians and encourage shoppers in commercial districts. Locate and design utilities within the street right-of-way to minimize negative impacts on the physical and visual pedestrian environment. Ensure that pedestrian routes are safe, attractive, and convenient, and incorporate traffic calming streetscape designs, particularly in commercial districts

4. Promote the provision, equitable distribution, and access to well designed, programmed, and maintained public open spaces and recreational facilities. Consider establishing community greens, parks, and gardens as focal points within residential areas

5. Allow creative temporary or permanent reuse of the city's vacant and underutilized land for productive uses such as community gardens, urban agriculture, stormwater management, energy generation, and neighborhood greenspace, provided there is reasonable oversight by a responsible party, such as Milwaukee Urban Gardens or Growing Power. Encourage neighborhoods to share responsibility and take ownership over care and maintenance of vacant land and structures

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D. Strengthen and highlight the city’s downtown central business district as a regional center of activity, economy, and social gathering

1. Continue to reinvest, revitalize, and improve the central downtown and lakefront area as the thriving heart of business, government, hospitality, and entertainment for the City and the region

2. Encourage a full range of housing opportunities to be located in or near downtown

3. Support the continued restoration, revitalization, and redevelopment of the Lake Michigan waterfront and river corridors as a focal point for Milwaukee’s recreational, entertainment, environmental activities. Include active and passive recreation, open space, habitat, entertainment, social gathering space, natural beauty. Balance residential and commercial development with public use and natural resource preservation

4. Strengthen connections and access between the lakefront, Maier Festival Park, and downtown neighborhoods

5. Maintain a regulatory environment that is friendly to business, entertainment and recreational venues downtown and along the lakefront

E. Develop and adopt illustrated urban design standards that promote high quality, context sensitive, sustainable, market-competitive, and traditional neighborhood designs

1. Develop and adopt illustrated design guidelines and pattern books for selected residential areas and commercial districts that ensure a consistent character while allowing flexibility and creativity

2. Preserve neighborhood character and integrity, development densities, street grid, block size, development pattern and land uses where these are compatible with the neighborhood vision and context. Changes in land use and density that contribute to the positive development of the neighborhood should blend with the surrounding neighborhood and land use

3. Encourage preservation and development that is sensitive to the city’s history and culture. Include the preservation and enhancement of significant historic and cultural features, spaces, landscapes, structures, and resources

4. Ensure that quality and excellence are demonstrated in the design of public spaces and buildings. Use redevelopment opportunities and capital improvement projects, particularly those that are highly visible, widely publicized, or catalytic projects, as opportunities to demonstrate sustainable practices and high quality urban design. Establish minimum design and sustainability standards for projects receiving City financial assistance

5. Establish a high quality public realm featuring public squares, parks, and public art

6. Coordinate programing and project design efforts with other City departments and agencies such as the Housing Authority, the Redevelopment Authority, and local community development corporations

7. Continue and expand the Mayor’s Design awards to provide recognition for outstanding urban design, preservation of neighborhood integrity, and sustainable design

8. Employ Crime Prevention through Environmental Design (CPTED) strategies in development and redevelopment projects

CITY OF MILWAUKEE PRINCIPLES OF URBAN DESIGN

Good urban design guidelines can reinforce and protect those unique qualities that characterize Milwaukee’s neighborhoods. The following principles are meant to promote development and redevelopment that reinforce and preserve the best characteristics of the city. Urban design guidelines typically consider a range of issues from neighborhood character, pedestrian-friendly design, transportation, public safety, and context-sensitive design. The City should adopt and encourage the application of urban design guidelines citywide, while allowing flexibility within districts, neighborhoods, and corridors for local organizations to develop their own unique identity and additional guidelines as needed. The Department of City Development has developed a set of four Urban Design Principles to help guide development.

PRINCIPLE #1: NEIGHBORHOOD COMPATIBILITY

A cohesive neighborhood environment depends on buildings that complement one another. The size, shape and location of buildings as well as the uses contained within them, create “patterns” that define neighborhood character. New development should be compatible with the pattern of its surrounding context.

Development that adheres to this principle will: A. Relate to the physical character and scale of the neighborhood B. Enhance linkages to surrounding uses, especially public services and amenities (schools, parks, public transit)

PRINCIPLE #2: PEDESTRIAN FRIENDLY DESIGN

Cities are for people, and an environment designed to accommodate the pedestrian heightens human experience and sense of place. New development should be designed to create attractive, comfortable and safe walking environments.

Development that adheres to this principle will: A. Locate buildings to define street edges and corners B. Enliven street frontages to enhance the pedestrian experience C. Create memorable places for people

PRINCIPLE #3: LAND USE DIVERSITY

Many Milwaukee neighborhoods are comprised of a rich mix of land uses. Such diversity uses land efficiently, provides for neighborhood convenience and contributes to unique urban experiences.

Development that adheres to this principle will: A. Encourage a compatible mix of uses at the neighborhood scale B. Identify opportunities for shared uses

PRINCIPLE #4: TRANSPORTATION DIVERSITY

Milwaukee’s neighborhoods are connected by a functional circulation network of streets and blocks. This system should be maintained and improved in ways that accommodate various modes of transportation balanced with needs for pedestrians.

Development that adheres to this principle will: A. Create a balanced circulation system that accommodates mobility choice (pedestrians, automobiles, bicycles and public transit) B. Enhance public transportation by making it more comfortable and convenient to use

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TRANSPORTATION

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“Every time I see an adult on a bicycle, I no longer despair for the future of the human race.”

— H.G. Wells

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VISION FOR SUCCESS

This plan envisions providing all residents and businesses with a high quality, well-maintained, multi-modal transportation system that efficiently integrates multiple transportation options across the region, while strengthening the local economy and reducing environmental impacts.

The vision of success for transportation includes:

Planning and Connectivity

Land use and transportation planning will be integrated with diverse housing and reliable transportation options connecting people to jobs, educational institutions, health care providers, shopping, and recreational outlets. Unified planning and operations will result in simple and seamless transitions from one public transit system to another with connections to destinations throughout the region, state, and country.

Transportation Options

Emphasis will be placed on moving people between destinations rather than moving automobiles. Streets will be designed for multiple transportation options, including automobiles, dedicated public transit lanes, bicycle lanes, and wide, streetscaped sidewalks to encourage walking. In addition, multiple public transit systems (bus, streetcar, commuter rail, high speed rail) will serve the mobility needs of the city and region.

Economic Development

The transportation system will support the local economy by efficiently and conveniently connecting residents to their workplaces, as well as facilitating the movement of goods and services. Fixed route public transit will serve as a framework and catalyst for future economic development.

Improved Health

Due to increases in pedestrian and bicycle traffic, and growing use of public transit options, the health of the population will improve substantially and air pollutants will be reduced.

Intergovernmental Cooperation

Transportation system benefits and costs will be shared by the region, with ongoing cooperation between local communities, governing entities, and public transit system operators.

OVERVIEW AND INTRODUCTION

The transportation potential of a strategic location on the shore of Lake Michigan and three major rivers drew settlers by the thousands to live, work, and raise families in Milwaukee. Today, Milwaukeeans may not fully appreciate the variety of transportation options already available for moving people and goods: an international airport, a deep water shipping port on the Great Lakes, cross lake ferry service, freight rail, passenger rail, a street and freeway system, an enviable parkway and boulevard system, local, regional and national bus service, miles of bicycle lanes, and millions of square feet of sidewalks. This is an excellent foundation for expanding transportation mobility options, supporting economic development, and continuing to provide a high quality of life.

STREET GRID

Milwaukee has an excellent street network with 1,450 miles of streets and an efficient arterial grid that is clearly a transportation asset. The street grid was well laid out and planned. Streets are not only safe, but also spacious enough for multiple modes of travel (pedestrian, bike, auto, bus) and inclusion of excellent pedestrian and bicycling options. Since the arterial grid system offers many good alternative routes, the need for freeway expansion in and around the city is minimized. However, the freeways and Milwaukee street grid have major maintenance needs.

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PEDESTRIAN/BICYCLING

Walking and bicycling, great transportation options for short trips, are a major component of the urban living experience in Milwaukee. These activities are affordable and accessible to most residents, have a positive effect on the environment, increase the vitality of an area, contribute to public health goals, and ease congested streets. With 50 miles of bike lanes, 66 miles of signed bike routes and 52 miles of signed trails in the city, it's understandable that 49% of Milwaukee residents 16 and older reported riding a bike during the summer of 2007. The City has plans for 125 additional miles of bike lanes to complete the bike lane network and is in the process of updating its Bicycle Master Plan for the City of Milwaukee. The updated bicycle plan looks to Europe and other bike friendly communities in the United States for inspiration and seeks to add innovative facilities that will be attractive to more people. Since the City started aggressively adding bike lanes to street projects in 2005, commuter bicycle use is up almost 300% (according to the US Census) and the bicycle crash rate is down 75% in the past five years.

Pedestrian corridors are also getting attention. The city has an excellent pedestrian network, with sidewalks on more than 97% of the street grid. The City continues to expand its network of riverwalks and trails; area plans promote walkability; walk to work neighborhoods; and walking corridors are also being planned and developed along Wisconsin Avenue, Water Street, and Kilbourn Avenue as part of the downtown streetscaping project. The predominance of motor vehicles, however, can make it difficult for pedestrians to cross busy streets. Engineering alone cannot solve this problem. Increased enforcement and education programs are also needed, as well as traffic calming measures to promote a better pedestrian environment. The City's StreetShare program is one effort to encourage and educate more people about pedestrian safety, and if expanded, could influence change in driving culture.

PUBLIC TRANSIT

Public transit has been a vital component of Milwaukee's transportation infrastructure and economy since horse-drawn streetcars began providing service in 1860. The Milwaukee Electric Railway, which ran from 1896 to 1949, became synonymous with the golden age of electric street railways. That system was eventually replaced with rubber-tired buses. Since 1975, public transit service has been provided by Milwaukee County through a contract with Milwaukee Transport Services, Inc. The Milwaukee County Transit System (MCTS) operates year round service on 43 local routes and 14 Freeway Flyer routes. These services generated 43 million rides in 2008 or approximately 150,000 passenger trips daily. Approximately 85% of all households in Milwaukee County are within walking distance (1/4 mile) of a bus stop. MCTS also manages Transit Plus which offers paratransit service to 18,000 people with disabilities, providing over 1.1 million accessible van and bus rides in 2008. The Bikes on Buses program added bike racks to every bus in 2009. MCTS regularly outperforms its peers in terms of efficiency and costs and, until recently, ranked as one of the best systems in the nation. Yet rising fuel costs, labor costs, and lack a of a dedicated funding source have led to a nearly 20% reduction in service since 2000 and a 30% increase in the cash

fare. The County’s current plans to improve mobility and provide increased public transit options include investment in new buses and development of bus rapid transit routes. The City of Milwaukee is moving forward with plans for a fixed guideway streetcar system connecting the Intermodal Station to jobs and activity centers downtown. The regional transportation plan recommends a doubling of public transit service with an emphasis on developing express and rapid transit system elements.

RAIL

A newly renovated Intermodal Station in Milwaukee is home to Amtrak, intercity buses, and limousine service. Amtrak rail service includes the Empire Builder, between Chicago and the Pacific Northwest, and the Hiawatha service featuring 7 daily trips between Chicago and Milwaukee with a stop at Mitchell International Airport. Milwaukee is currently participating in a feasibility study to develop a commuter rail system linking Milwaukee, Racine, and Kenosha with Chicago's Metra rail system to create a much needed commuter rail link between Milwaukee and Chicago. Over 900,000 jobs are accessible within one mile of train stations in the KRM-Metra corridor with an expanded potential for economic growth by linking southeastern Wisconsin and northeastern Illinois. Wisconsin is partnering with other midwest states proposing a modern high-speed rail network connecting Chicago and Minneapolis with stops in Milwaukee and Madison. Railroads also remain a force in moving freight in and out of the region, especially heavy commodities. Wisconsin & Southern Railroad handled over 50,000 rail carloads of freight in 2005, and expects that number to climb to over 73,000 carloads in the near future.

FREEWAY

Milwaukee built its first segment of freeway in 1953. There are now 270 miles of freeway in southeastern Wisconsin, of which 40 miles lie within the city limits. According to a SEWRPC study, the system carries virtually all vehicle traffic traveling through the region on an average weekday and about 33% of all travel by Milwaukee County and Southeastern Wisconsin residents. But the system is reaching the end of its 40-50 year lifespan and has many design deficiencies. Within Milwaukee County the accident rate is more than double that of the other six southeastern Wisconsin counties due to a greater concentration of design deficiencies and more severe traffic congestion. WisDOT has recently completed renovations to the Marquette Interchange in the heart of the city and has committed to updating the Zoo Interchange and I-94 south, providing necessary safety improvements and increasing capacity in those critical transportation corridors.

AIRPORT

General Mitchell International Airport (GMIA) is owned and operated by Milwaukee County. Originally built in 1927, it expanded and was designated General Mitchell International in 1986. By 2008 it was served by 12 airlines and handled a record 7.7 million passengers including 54,000 international passengers. The airport primarily serves passengers from the region and increasingly from Illinois. According to the US Department of Transportation, average airfares out of Mitchell were lower than 58 other US airports. More than 183 million pounds of freight also came through Mitchell. The airport is one of only four in the country that is served by an Amtrak station.

Milwaukee County also owns Lawrence J. Timmerman Airport on the northwest side of the city. This field is primarily used for small private and general aviation.

PORT

The Port of Milwaukee had its first commercial cargo vessel in 1835. In 1912, the port grew from its inner harbor location to Jones Island which offered the only remaining opportunity for the City to acquire water frontage capable of comprehensive terminal development. Located on Lake Michigan in the heart of the city, and surrounded by thriving neighborhoods, the City-operated Port remains a revenue generator. The Port offers key logistical advantages for moving goods. It is served by two first class railroads - the Union Pacific and the Canadian Pacific; it has water access to the Mississippi and other inland rivers via barges; it has no limitation to any size vessel that can transit the Great Lakes St. Lawrence Seaway system; and it has direct interstate highway access. In 2008 the Port of Milwaukee handled more than 900,000 tons of salt to keep winter streets and sidewalks safe, 500,000 tons of cement product for construction, and one million tons of coal for the state’s power plants. In June of 2004, the Port welcomed the Lake Express, a high speed ferry linking Wisconsin and Michigan from terminals in Milwaukee and Muskegon. Milwaukee’s port is the third largest exporter of grain on the Great Lakes and is looking to the future through exploration of emerging markets in renewable fuels handling, storage, and distribution.

TRANSPORTATION PLANS

Transportation policies in the Citywide Policy Plan were informed by State, Regional and County Plans, which include: 2035 Regional Transportation Plan, Connections 2030, Regional Freeway System Reconstruction Plan for Southeast Wisconsin, Regional Transportation Improvement Program, Milwaukee County Transit Development Plan (in progress), Kenosha – Racine – Milwaukee Commuter Rail Reports for Transit Now, Milwaukee to Madison High Speed Rail Environmental Assessment, Milwaukee Downtown Transit Connector Study (in progress), Tri State High Speed Rail Study for the Chicago – Milwaukee – Twin Cities Corridor, and the City of Milwaukee Bicycle Plan.

OPPORTUNITIES

1. Milwaukee’s existing street grid system provides a strong urban foundation.

Street connectivity, specifically well-connected networks of traditional street grids, are essential to good urbanism. The grid provides good local mobility options for travel: cars, public transit, pedestrians, bicycles, and is accessible for people of all abilities. Many one-way streets have been returned to two way, calming traffic and supporting adjacent retail and local businesses. Buildings tend to face sidewalks and streets, rather than parking lots, which tends to improve pedestrian safety.

2. Funding for transportation options.

There are new and potentially expanding federal and state funds available for bike and pedestrian facilities than can complement and enhance the city’s transportation network. In addition, the City has recently updated its bike plan and plans to develop a pedestrian plan in the near future.

Freeway reconstruction may provide an opportunity to create multimodal corridors and include features that focus on moving not only more vehicles, but more people. Potential savings from less freeway expansion could be used for safety improvements, access management, and public transit options resulting in a better balance between public transit and highway spending; providing better service to transit-dependent people or those who choose not to drive; reversing the trend of more highways, more cars, more land consumption and more sprawl; and curbing our reliance on fossil fuel.

New funding opportunities exist for the development of bus rapid transit, commuter rail and streetcar systems – Wisconsin has never received any funding such as Federal New Starts, Small Starts or Very Small Starts. Federal stimulus funds are currently available for public transit projects that create jobs. Transit oriented development can generate additional resources through the use of TIFs, development fees, and savings in areas such as construction of parking structures and spaces.

3. Increased public support for public transit.

There has been a marked change in the dialog in Milwaukee County regarding support and expansion of public transit options. The majority of voters in a county-wide advisory referendum favored removing public transit funding from the property tax and exploring dedicated funding for transit, including creation of a Regional Transit Authority (RTA) and use of additional sales tax to support and expand existing public transit options. SEWRPC’s regional transportation plan recommends a renewed state commitment to public transit, a dedicated funding source for local public transit funding, and creation of a RTA. More people are amenable to supporting alternatives to the automobile such as light rail, bus rapid transit, and streetcars, especially as congestion and fuel costs increase. Demographic groups growing most quickly nationwide and reflected in Milwaukee’s population trends (older, non-family, non-white households) have historically used public transit in higher numbers. This creates a ready market for expanded public transit options and dense Transit Oriented Development (TOD) that includes affordable housing near multi-modal public transit stations and stops. Real estate trends indicate the hottest development markets in the US are higher density housing near public transit, according to a study done by Reconnecting America. Transit oriented development provides new real estate development opportunities for Milwaukee. Milwaukee already has transit oriented development along many of its former streetcar routes, which makes the success of new public transit options even more feasible.

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City of Milwaukee

Street Classifications

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Principal Arterial Freeway

Principal Arterial

Minor Arterial

Collector

Local Street

Railway

Data Source: Department of City Development

TRANSPORTATION 78

4. The existing rail system.

Existing rail systems support economic development. Milwaukee has an opportunity to expand its passenger rail service to include commuter and high speed rail using existing rail lines without adversely affecting freight service. Milwaukee has also retained many unused rail corridors that can be reused for new service or converted to other transit modes such as biking or pedestrian trails.

5. Potential airport expansion and development of “Aerotropolis.”

Potential airport expansion provides an opportunity to foster economic development while creating better transportation connections in an environmentally responsible manner. Surrounding businesses and the City of Milwaukee support the creation of an “Aerotropolis”, or planned development emphasizing aviation-oriented businesses in the area.

6. The Port of Milwaukee.

It is energy efficient and cost effective to move goods by water on boats and barges, compared to rail or truck. The Port of Milwaukee is well positioned as a deep water port to grow and expand, especially in the alternative energy industry capturing wind, solar, and other alternative fuels business and creating jobs.

7. More people live in cities.

Both nationally and in the Milwaukee area, there is a growing appreciation of urban living. Milwaukee’s dense urban neighborhoods offer walkability, easy access to arts, cultural amenities, shopping and services. These assets are particularly attractive to young professionals, empty nesters, and urban-minded people who prefer to live and work in the city and use safe, affordable public transit, and will support the long term development of a more robust and diversified transportation system.

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CHALLENGES

1. Inadequate resources to maintain aging systems and expand transportation options.

Across the country, federal, state, and local governments are facing difficult budget decisions, rising deficits, and challenges to maintain basic levels of service. While transportation needs have increased, aging fleets, rising operating costs, legacy costs such as employee pensions, health care premiums, and cost increases for fuel have all resulted in deferred maintenance of systems and reductions in public transit service at a time when those services are needed most.

• SEWRPC has recently proposed a $20.3 billion, 30 year regional transportation plan to maintain, add capacity, and operate the highway and public transit systems in the seven county Milwaukee region. Without additional dedicated funding sources, the plan predicts an annual financial shortfall of $65 million.

• A recent study by the Public Policy Forum (PPF) found MCTS, one of the only systems of its size that relies solely on local property tax funding, has already been forced to cut service by 15% since 2000. MCTS buses carried 10.3 million fewer riders in 2007 than just seven years earlier, ranking it first among 13 peer public transit systems in lost ridership during that time frame. PPF states projections show a potential overall shortfall of $1.6 million in 2009, $18.3 million in 2010, $23.7 million in 2011 and $21.1 million in 2012. SEWRPC estimates an additional 37% cut in public transit service may be necessary by 2011 unless additional funding is secured.

• More than 60% of City of Milwaukee streets will need reconstruction over the next 10-15 years. While 12% of Milwaukee’s bridges are considered functionally obsolete or structurally deficient, it is better than the national average, but still very costly.

• The new high-speed Midwest rail initiative is estimated to cost over $500 million, KRM commuter rail $200 million, and the Milwaukee Connector streetcar and BRT $100 million.

• The freeway system is nearing the end of its 40 to 60 year service life, has numerous design deficiencies, high accident rates and will require complete reconstruction over the next 30-40 years. Estimated cost in 2009 dollars is approximately $10 billion.

• The Port of Milwaukee cranes, with the largest lifting capacity west of Erie, PA, give the port a competitive edge among Great Lakes ports in handling large cargo. Port cranes have more than doubled their average yearly work hours the past two years by handling large energy equipment pieces. The cranes have exceeded their life expectancy and maintenance is a challenge. Capital funds for replacement are limited.

2. Disparities between public transit service, housing, jobs and destinations.

The city’s population is changing and delivery of public transit service and options must adapt to the changing needs of Milwaukeeans.

• People over age 65 will comprise over 20% of the total population in 2035, compared to only 13% in 2000, according to SEWRPC. As people age and their ability to maintain and operate a car decreases, more will seek safe, efficient public transit options. Baby boomers expect greater mobility than previous generations, even as they transition from using personal vehicles to other forms of travel, according to a WisDOT study.

• 25% of all households in the City of Milwaukee did not have access to a car compared to only 8% statewide, according to the 2000 census.

• 43% of public transit riders in Milwaukee use public transit to get to and from work. 75% of those are considered captive because they do not have a car. Without a good public transit system, many people may not be able to keep their jobs. Net job growth has occurred in the suburbs since 1995, according to the Center for the Study of Jobs & Education in WI. While job opportunities remain in Milwaukee, more new jobs are located in the surrounding counties, areas inaccessible or outside of the current public transit system. This denotes a serious mismatch between where job seekers live, what can be accessed by public transit, and where jobs are located. With a concentration of unemployed and underemployed in Milwaukee, traveling to and from jobs, and seeking new opportunities within the region has become a major challenge.

Little cooperation exists among public transit system operators in the communities in and around Milwaukee County. The result is limited connectivity across county lines and between cities. Without a seamless transition of public

transit modes, fares and schedules, commuters have limited ability to access jobs, education, and health care across jurisdictional boundaries, resulting in lost work hours, lost wages and reduced productivity.

The current public transit system (buses that make frequent stops) is not well suited for longer trips. Express buses, streetcars, commuter or light rail which serve long distance commutes would greatly increase the feasibility of choosing public transit for work related commuters.

Another challenge is to get people to existing and expanding employment centers, such as downtown, the Menomonee Valley, or the 30th Street Industrial Corridor. Outlying employment areas, such as the County Grounds, should also be better served by public transit. Public transit can help to strengthen employment across the region.

3. The region currently lacks an entity with authority and a dedicated revenue source to implement public transit solutions.

Only recently has Milwaukee decided to pursue a three county Regional Transit Authority (RTA). The RTA members consist of Milwaukee, Racine and Kenosha counties, in coordination with SEWRPC, as well as state and federal authorities. Dedicated funding for the RTA could come from a variety of sources: sales tax, rental vehicle tax, property tax, and local vehicle registration fees. This fledgling organization faces significant challenges as it attempts to foster greater public transit.

4. Decentralized land use patterns have resulted and continue to result in increased automobile usage.

The pattern of sprawl continues to effectively shift population in the region outward, resulting in increased vehicle trips and vehicle miles, and a decline in occupancy per vehicle. Commutes are longer; accidents and congestion are increasing.

Between 1963 and 2001, the region experienced:

• 58% increase in households, mostly outside of the City of Milwaukee
• 113% increase in the number of vehicle trips
• Decline in vehicle occupancy from 1.42 persons to 1.05 persons per vehicle
• 203% increase in vehicle miles of travel
• 149% increase in the number of personal vehicles available to residents

Sprawl results in inefficient use of personal resources, but also results in inefficient use of state resources, by improving infrastructure which serves low density, decentralized areas.

5. As a region, we are heavily overinvested in transportation choices that pollute, contribute to a sedentary lifestyle, and negatively impact the environment.

Automobile dependence may lead or lead to less exercise, especially compared to walking and bicycling which improves health and reduces emissions. Preventable public health issues such as obesity, heart disease, diabetes and respiratory ailments are on the rise. A transportation system that necessitates hours of automobile commuting over walking, bicycling or public transit ride-sharing, impacts these issues. Vehicle exhaust is the leading cause of air pollution that contributes to asthma and cancer. On a global scale, emissions of greenhouse gases from vehicles are a major contributor to climate change.

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COMPLETE STREETS LEGISLATION

Wisconsin is one of only a few states that has passed Complete Streets legislation. This important legislation provides for accommodation of bicycle and pedestrian facilities in reconstruction or new street projects.

What are Complete Streets?

Complete streets are designed and operated to enable safe access for all users. Pedestrians, bicyclists, motorists, and public transportation users of all ages and abilities are able to safely move along and across a Complete Street.

The Many Types of Complete Streets

There is no one design prescription for Complete Streets. Elements may include: sidewalks, bike lanes (or wide paved shoulders), special bus lanes, comfortable and accessible public transportation stops, frequent crossing opportunities, median islands, accessible pedestrian signals, curb extensions, and more. A complete street in a rural area will look quite different from a Complete Street in a highly urban area, yet both are designed to balance safety and convenience for all users.

Menu of Options

A large part of the complete streets movement is the documentation of good design options that may apply to a range of urban to rural settings.

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POLICIES

I. MAKE TRANSPORTATION DECISIONS TO SUPPORT ECONOMIC DEVELOPMENT, ENVIRONMENTAL SUSTAINABILITY AND COMMUNITY GOALS. Planning, locating, building, and maintaining transportation infrastructure involves critical decisions that significantly impact other aspects of Milwaukee’s urban fabric and function. Wise, informed decision making with a long term vision can result in vast improvements in the quality of life for people, businesses, and whole communities within the Milwaukee region.

A. Coordinate regional transportation planning with land use planning

1. Support compact development patterns that are readily served by public transit

2. Encourage development of job and activity centers on public transit lines through incentives such as density bonuses and flexible zoning

3. Continue to support freeway upgrades which do not require increases in width and do not require double decking, while supporting freeway upgrades that provide space for future multi-modal options

4. Reuse and redevelop existing facilities, brownfields and greyfields within the city already served by public transit connections and transportation infrastructure

5. Review parking policies and development of new parking lots to reduce areas devoted to surface parking

6. Encourage people who have long, single destination commutes to consider public transit

B. Assure city zoning codes and policies support multi-modal transportation

1. Provide zoning and incentives for Transit Oriented Development (TOD)

2. Plan parking to support public transit options

3. Continue to promote industrial development along rail corridors, near the port, and near airport freeway interchanges

4. When creating site design standards or approving site plans for new industrial or office parks, consider access by all modes of transportation. These areas should have sidewalks, well designed parking lots, pedestrian connections, and provisions for multi-modal transportation

C. Promote transportation improvements that enhance health and quality of life

1. Promote public awareness of available transportation options and the impact travel choices have on household finances, personal quality of life, health, society and the environment

2. Promote incentives that encourage the use of more efficient commute modes including free or discounted public transit fares; company travel reimbursement for bicycle or public transit mileage for business trips; commuter savings accounts; preferred parking for car pools; and providing a transportation allowance as an alternative to free parking for employees

3. Promote multi-modal transportation options as part of an urban lifestyle

4. Identify, evaluate and mitigate environmental impacts of transportation investments and operations including impacts on air and water quality, noise, climate, environmentally critical areas and endangered species

5. Consider requiring street reconstruction projects to include a basic health impact analysis that rates a project based on public health impacts

II. CONNECT MILWAUKEE TO THE COUNTRY AND THE WORLD FOR TRADE AND TRAVEL.

Capitalize on Milwaukee’s location and infrastructure assets to enhance its position as a destination and hub in the global marketplace.

A. Preserve and improve mobility and access for the transport of goods and services

1. Design street improvements on designated streets to balance trucking needs and access to businesses with pedestrian and neighborhood safety

2. Maintain and improve rail lines and multi-modal facilities to safely and efficiently accommodate use and movement of freight as well as passengers

3. Maintain infrastructure of the Port of Milwaukee, and preserve and enhance multi-modal connections

4. Coordinate the review of potential operational or legislative changes that may impact the movement of passengers and freight

5. Promote a multi-modal freight transportation strategy, including rail, truck, air and water transport for the efficient movement of goods to support economic development. Work toward improved inter-modal connections between rail yards, industrial areas, airports, the port, and regional roadways.

6. Support and promote the midwest high speed rail system linking Chicago, Milwaukee, Madison, and Minneapolis

B. Maintain and expand passenger multi-modal transportation options and facilities

1. Continue developing the “Aerotropolis” to support economic development around the airport.

2. Encourage greater use of Milwaukee’s Inter-modal Station through expansion of existing services and the addition of commuter and high speed rail, as well as strengthened connections to major downtown destinations and the Port of Milwaukee

3. Support the existing high speed ferry service and a stop or a connection to Great Lakes cruise ship service at the Port of Milwaukee or Municipal Pier

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III. SUPPORT THE EXPANSION OF PUBLIC TRANSIT AND PROMOTE OPTIONS THAT CONNECT THE GREATEST NUMBER OF PEOPLE TO THE GREATEST NUMBER OF DESTINATIONS.

A focus on moving the greatest number of people efficiently rather than the greatest number of automobiles (most with only one person per vehicle for journey to work) will enhance the quality of life and mobility of the city, reduce the environmental impact of the transportation system, and improve the economic position of many households.

A. Support the expansion of public transit options and service

1. Support expansion of local public transit service hours and frequency
2. Support the development of bus rapid transit, streetcar, or an express bus network
3. Develop a sustainable fixed guideway transit system, such as a streetcar, to initially circulate people in downtown and nearby neighborhoods, with a plan to fund the initial segment, guide future expansion and allow Milwaukee to be more competitive in receiving federal transportation funds
4. Support commuter rail initiatives connecting Milwaukee to other urban centers in the region
5. Support rail initiatives connecting Milwaukee to other large urban centers in the state and country, like the midwest high speed rail initiative

B. Explore funding and governance options for the maintenance and operation of new and existing modes of public transit

1. Maximize the return of federal and state funding to the city and county for public transit
2. Support policy changes that balance transportation funding between highways and public transit
3. Support policy changes at all levels of government which emphasize fix it first or the maintenance of existing streets and freeways prior to major expenditures on redesign and reconstruction
4. Support the efforts of a regional transit authority (RTA),with a dedicated funding source, and its authority to coordinate and implement public transit services across jurisdictional boundaries within the region
5. Explore alternatives to fund public transit expansion such as development fees, parking, tolls, congestion pricing, and TIFs

C. Provide amenities which enhance the experience of public transit users

1. Provide stops that are easily identifiable, comfortable and safe, with schedules posted
2. Support adding amenities at stations such as user friendly routing information, ticketing, and real time schedule information
3. Make public transit services and amenities available for people of all abilities, especially those who depend on public transit for mobility
4. Implement the city's downtown parking plan and park once concept and expand the concept to other retail corridors and neighborhood centers

IV. MAINTAIN A SUSTAINABLE AND WELL BALANCED STREET AND HIGHWAY NETWORK THAT SAFELY AND EFFICIENTLY MOVES PEOPLE AND GOODS AND SUPPORTS THE ECONOMY. As the primary circulatory framework for transportation, streets must continue to be improved structurally and functionally to be used as efficiently as possible. Where feasible, rights-of-way can be restructured to accommodate a greater diversity of transportation options and to minimize the impact on the environment.

A. Maintain the existing system of streets and bridges

1. Improve the quality of pavement through regular and adequate maintenance of city streets

2. Continue the practice of designating a system of streets to accommodate heavy vehicles and trucks

3. Improve the safety and operational conditions at freight rail and street crossings

4. Continue to support freeway upgrades which do not require increases in width and do not require double decking, while supporting freeway upgrades that provide space for future multi-modal options

5. During routine maintenance, consider necessary infrastructure adjustments which support future public transit options, for example relocate manhole covers and underground utilities to accommodate future streetcar routes

6. Ensure bicycle lane markings are maintained, and consider separated bike lanes on heavily trafficked routes

B. Continue to encourage integration of Complete Streets principles and sustainability into street design and reconstruction projects

1. Continue the practice of designing for multi-modal transit options for new or reconstructed streets. Complete streets ensures comfortable capacity for pedestrians, bicycles, public transit and automobiles. Also consider placement of utility infrastructure as it impacts Complete Street design

2. Include stormwater facilities and sustainable boulevards with street design where feasible

3. Consider pedestrian islands and other features to improve pedestrian safety

4. Include bike lanes where feasible

5. Consider narrowing rights-of-ways that are unnecessarily wide and use the space gained for extra sidewalk width, landscape, or bike lanes

C. Provide transportation demand management, also support programs and strategies aimed at reducing car trips, minimizing miles driven and increasing occupancy

1. Encourage efficient street usage by means of progressive traffic signals

2. Support and encourage car sharing programs especially in dense areas of the city.

3. Develop education programs to provide information about the real cost of commuting via automobile

4. Encourage the adoption of incentive programs for employees that recognize and reward car pooling, public transit use, or alternatives to automobiles

V. INCREASE OPPORTUNITIES FOR WALKING AND BIKING AS PRACTICAL OPTIONS THAT CONTRIBUTE TO NEIGHBORHOOD VITALITY AND PUBLIC HEALTH. The transportation infrastructure of the city can be improved by expanding facilities and infrastructure to support transportation options for people of all abilities.

A. Create attractive and convenient pedestrian and bicycle routes and facilities

1. Expand opportunities to bike with more on-street bike lanes, shared-use paths, bicycle boulevards, cycletracks, and raised bike lanes, and seek out innovative ideas that go beyond lanes and trails to encourage even more people to bike

2. Expand opportunities to walk with more shared-use paths, riverwalks and pedestrian corridors, and seek out innovative ideas to encourage even more people to walk, while ensuring accessible routes for people of all abilities

3. Provide well designed pedestrian crosswalks and islands; especially near schools, parks and access points to other transportation facilities

4. Implement designs that foster safety for all street users

5. Increase law enforcement measures that improve safety, such as yield compliance and camera-monitored or other speed enforcement for motor vehicles. Support public service announcements to increase motorist education on bicycle and pedestrian rights and laws

6. Continue to support police presence on foot, bike, and horse

7. Continue to use Complete Streets design concepts

8. Continue to update the City's Bike Plan and develop a Pedestrian Plan

9. Promote Safe Routes to Schools concepts within the city and region

B. Provide amenities for bikes and cyclists

1. Increase covered and secure bike storage options especially at multi-modal connections

2. Encourage employers to provide access to showers and rest rooms for people biking to work

3. Increase the quantity of bike storage racks at activity centers, commercial areas, and public transit stations

4. Integrate bike transit with new forms of bus rapid transit and rail

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C. Ensure accessibility for people of all abilities

1. Maintain sidewalks especially along major arterials
2. Continue to comply with ADA standards and use universal design for all new and reconstruction street projects
3. Develop creative pedestrian and bicycle options and incorporate access across barriers such as rivers and freeways

D. Utilize streetscaping to create safe and engaging pedestrian and bicycle friendly spaces

1. Plan and implement pedestrian and bike friendly lighting improvements
2. Invest in wayfinding for directions and ease of use on major thoroughfares
3. Incorporate public art and street furniture in street reconstruction projects as funds will permit
4. Provide landscaping with trees and generous planting strips between the street and sidewalk where feasible

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