[From the U.S. Government Printing Office, www.gpo.gov]



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                                                                                                       aSHLAND
                                                     WATEI!q;                                        0NTr-4wD- IF AN
                                                   -CITYOF cASHLAND, WISCONSIN








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        COMPREHENSIVE-ANAL'YSIS-"AND-GUIDELTNES-'FOR-REDEVELOPMENT--AND-
                                    I
        REVITALIIATI-ON--OF ASHLAND S WATERFRONT



        THIS REPORT-WAS---PREPARED--FOR,-'                     'alf'd



        THIS REPORT-WAS-.PREPARED BY

                                              n         t
                                                  RE   AL



                                                 economic -development -.distr
                                             302 Uk*M ftoet Spooner. Ubconsin -54" 7B 635-OW







                  FINANC1AL ASSISTANCE PROWDED BY THE STATE OF
                  WISCONSIN.,.BUREAU OF COASTAL MANAGEMENTj DE-
                  PARTMENT-OF ADMINISTRATIONj AND-THE COASTAL!
                  ZONE MANAGEMENT IMPROVEMENT ACT@OF 19801 AS
                  AMENDEDj ADMINISTERED-BY-THE OFFICE OF COASTAL
                  ZONE MANAGEMENTj NATIONAL OCEANIC AND ATMOS-
                  PHERIC ADMINISTRATION.



                                            U.S. DEPARTMENT OF COMMERCE NC@
                                            COASTAL SERVICES CENTER
                                            2234 SOUTH HOBSON AVENUE
                                            CHARLESTON , SC 29405-24114


                                       proporty Of CSC Library





                            TABLE OF CONTENTS





              INTRODUCTION




              PHYSICAL SETTING



              PHYSICAL CHARACTERISTICS



              WATER CONNECTIONS



              HISTORICAL DEVELOPMENT
                Decline of Shipping


              EXISTING LAND/WATER USE
                Area Descr'iption
                Existing Harbor Conditions



              PHYSICAL CONSTRAINTS
                Limiting Factors - Land Development




              REDEVELOPMENT OPPORTUNITIES
                Tourism Development
                The'Marina
                Harbor Shipping Potential


              POLICY --IMPLEME,NTAT'IO,N
                Overall Design
                Public Access
                Pedestrian and Bicycle Access
                Street and Highway Access 3 -4-5 Aesthetics






                 TRODUCTIONW                                         111AID
                                                       A
           IN                                            crERU; ONIrCPLAN
                                                    CITYOF c4SHLAND, WISCONSIN






                During the 17th and 18th centuries, Americans built their cities on
                the water's edge.      Water was the primary mode of transportation.
                Changes -as in technolo@gical and market conditions had a significant
                effect for many waterfront communities.              Early emphasis on
                transportation, location and water supply changed to a later emphasis
                on energy, residential use and recreation.             As we focused our
                attention on the highway and rail, waterfronts languished. Today,
                physical barriers, deteriorating conditions, inappropriate land uses
                and fragmented ownership patterns interfere with redevelopment.
                Therefore, planning for waterfront redevelopment requires -c-areful
                analysis, discussion of future alternatives and consideration of
                barriers that still stand in the way.


                The land and water interface has always been and continues to be an
                exciting area to live near.           Planning and implementing its
                redevelopment can be as exciting.' By the early 1970's almost ninety
                cities had waterfront renewal planning or development underway.
                Projects ranged in size and scope from seaport redevelopment at
                Gloucester and Salesbury Massachusetts to New York's Battery Park.
                Baltimore's Inner Harbor project, started in the mid 1960's, is being
                successfully implemented.         The.Inner Harbor, once a severely
                deteriorated and dilapated waterfront where no one ventured, is now
                the most popular area of the City.     That project's success is based on
                planning, municipal commitment. and, effort- as well- as a -public-pr-ivate-
                partnership.     In Baltimore; the City-, the private sector and the
                citizens organized and supported the redevelopment effort.










                 Swimming beaches , municipal parks, abandoned docks and pilings,
                 Ashland's two largest employers, residential use, the waterworks, the
                 sewerage treatment plant and a power plant--these uses characterize
                 the present day form and. shape of Ashland's waterfront.          People 's
                 perceptions of Ashland's waterfron-t are as diverse as are the uses.
                 All local residents- drive. by it; some --recognize i-t and use -it.. - Many
                 use it as a playground, others live or work on it. When asked about
                 it, some reflect on its I@is`tory, its value; others discuss the future.


                 individual land owners plan the use of parcels they own. - They save
                 land, treat land as an investment, build on it.        Often they-do not
                 consider the neighboring use or the greater good of the community.
                 The City must look at land in a different way.      How can land enhance
                 the community's -growth and development?        How can it be efficiently
                 served by sewer  , water, police and fire protection?        The land and
                 improvements the City serves are normally privately owned. This
                 dimension creates an opportunity for and requires public-private
                 cooperation.    Under any circumstances people plan, manage, organize
                 and invest.  The municipality has a similar responsibiity.--By looking
                 at the waterfront as a whole the community has an opportunity- to look
                 at what it might be.



                 Plan Intent-



                 The plan and analysis provides the first comprehensive look at the

                 waterfront and-the issues associated with it.          The first- section
                 provides background discussion; location, climate, history and
                 geology. The next section of the report provides a detailed land use
                 description and analysis, a history 'of the port and its activities as
                 well as documentation-of the 1983 waterfront effort.      The third major
                 section suggests goals and policies, describes what can be done and
                 recommends-methods of implementation.










                The intent of the plan is threefold:



                    - Provide for orderly, sound and reasonable redevelopment of
                      Ashland's waterfront


                    - Forge a partnership between the public and private sector as
                      well as the citizens


                    - Plan implementation will require a       cooperative effort between
                      local, state and federal organizations.        These relationships
                      must be established.


                Cooperation between a state agency and the City has provided benefits
                to the City.   The Wisconsin Coastal Management Program, which is based
                on a state-local partnership for waterfront development issues, has
                assisted Ashland with planning and implementation efforts.              The
                Coastal Management Program has provided planning funds for a pile
                removal feasibility study, a walking trail study and a Prentice Park
                redesign study.      The Prentice Park design study lead to park
                redevelopment and construction of the boardwalk.         Funds were also
                provided for acquisition of easements for a citywide walking trail
                and, in 1983, for construction of the boardwalk in Memorial Park.


                What will Ashland's waterfront be like in 1990?            In 2000?     its
                condition and use will be determined by a number of actors, their
                vision and ability to cooperate in achieving the objectives.





                                             TzNGW                          ASHLAND
                                                             AC
          PHYSICAL SET                                          rERCTRoNcr CPLAN
                                                          CITYOF c4SHLANDo WISCONSIN






                The location of As@hland and its harbor is best described by its land
                and wa ter relationships.  The waterfront lies along the southwestern
                shore of Chequamegon B'ay-.'- The bay is approximately twelve miles long
                and five miles across at its widest point.    Chequamegon Point and Long
                Island provide a protected harbor. Additional protection is provided
                by a breakwater, constructed during the late 1800's, on the east side
                of the City.    An important environmental area, the Fish Creek Slough
                is located at the southwestern point of the bay, on the west side of

                Ashland.



                Chequamegon Bay contains relatively shallow waters where depths rarely
                .exceed 35 feet.  The waters are warmer than the lake, but cold water
                does circulate through the bay.       @The large and shallow bay provides
                good fish habitat with warm water species such as walleye, northern
                and perch. The bay's cold water fishery includes salmon and trout.


                City Location


                The City is located approximately 65 miles east of Duluth-Superior and
                40 miles west of Ironwood, Michigan, 220 miles north of
                Minneapolist-St.. -Paul    -300 -mi,les@ north.-of-- Ma-dis-on and -350 miles-
                northwest of Milwaukee. Ashland is the largest community in Ashland
                County as well as the County Seat.     Next to Superior it is the largest
                city in the 10 county Northwest Regional Planning-Commission irea.


                Ashland is located within an hour's drive of significant       recreational
                resources: the Apostle Islands -National Lakeshore, the Chequamegon

                National Forest and numerous northern Wisconsin. -inland lakes.- of

                course, it is.located next to the cold,-clear-waters of Lake Superior.





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                                                     TABLE ONE
                                           REGIONAL POPULATION CENTERS


                              Location         Distance from Ashland        Population

                            Duluth-Superior             70 miles               135,000

                            Eau Claire                 165 miles                45,000
                            Hayward                     60 miles                 2,0-00

                            Ironwood-Hurley             40 miles                12,000

                            Medford                    150 miles                16,000

                            Spooner                     90 miles                 2,500





                  Regional Economy


                  The economy of     the region is based on natural resources.- The -forest.
                  supports a good    wood products and lumbering --indu-st.ry. - Scen.ic-and
                  water resources    support a growing tourist industry, but manufacturing,
                  retail trade and    services employ the majority of the region's workers.


                  Fishing, lumbering, mining and shipping of the products supported
                  thriving communities in Ashland, Bayfield, Washburn and Hurley.                The
                  cutting of virgin timber ended in the.1920's.               Th-e processing of
                  Canadian timber floated across Lake Superior to Ashland ended during
                  the 1960's.       The region still -s.uppo.r-t.s. -a.--.st.rong forest and -w.ood
                  products industry, with the largest sawmill located in Ashland.               Iron
                  mining and shipment of iron ore f           rom Ashland ended in the early

                  1960'-s.










                 Transportation Network


                 Ashland is served by three major highways.      U. S. Highway 2 connects
                 Ashland with Ironwood and. Escanaba to the east and Duluth-Superior and
                 northern Minnesota to the west; U. S. Highway 13 connects Ashland with
                 Bayfield:and-Washburn7to the north-and Marshfield to the south. U. S.
                 Highway 63 intersects with Highway 2 ten miles west of Ashland and
                 connects with Hayward     5pooner, Eau Claire and Minneapolis.          No
                 interstate highways serve Ashland.       The closest connection with an
                 interstate is at Rice Lake, 110 miles south.


                 Two railroads serve Ashland: the Burlington Northern transports some
                 western coal to Ashland, the Soo Line provides all the rail fr      eight
                 service to and from the City.        The Burlington Northern (BN) has
                 connections to   the western coal fields.      The tracks connecting
                 Superior and Ashland are not capable of carrying unit trains nor are
                 there facilities to handle significant amounts of coal, or other bulk
                 cargo,- in Ashland.   The Burlington Northern tracks pass through the
                 heart of the City, south of the b-usiness district- and -six blocks south

                 of the waterfront.    The Soos.L-ine-tracks connect Ashland with central---

                 and southern Wisconsin cities.



                 Ashland is served =by a regional--airport -owned-by--the City and-County.
                 The paved bituminous strips, 5,200 feet and 3,500 feet long are in
                 excellent condition. Instrument landings can be completed.


                 Climate



                 The climate of Ashland area is classified as modified continental.
                 Prevailing winds are from-the east during late spring and summer and
                 from the west and northwest during the remainder of the year. Cool.
                 summe-r--temperatures--are -the rtkle--an-d-dail-y-temperatures- --ex ceeding- 900F--
                 rarely occur.    The temperature exceeds 90OF -only seven days of the
                 year while the temperature slips below OOF 40 times a year.            The

                 coldest days of the year occur between December and March.







                                   Lake SuperiOr.          Ashland Location

                     DULUTH



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                                                                                          CHICAGO











                 The average   date of the last spring frost is May 13 and the average
                 date of the   first fall frost is October 3.        The grQwing season'
                 averages 145 days. The average annual snowfall has been 53 inches per
                 year; during  the past teri year period the average has increased by 13
                 inches-to 65 inches per year.       Average annual precipitation is 30
                 inches- per year.


                 Lake Superior and Chequamegon Bay modify the Ashland climate.          Both
                 winter and spring arrive a few weeks later in Ashland than they do
                 seven or eight miles inland.       Summers are comfortable in Ashland
                 because- of the moder-ating-effects of breezes from Chequamegon -Bay.
                 Ice begins to form on Chequamegon Bay in late November and normally
                 breaks up the third week in April.



                 Geology


                 The City of Ashland is located in a geological province known as the
                 Lake Superior Lowlandi---one of the five m-ajor provinces -in Wisconsin.
                 The Lake -Superior -Lowland -Province is part- -of a larger -geological
                 district, the basin of Lake Superior.        This province occupies the-
                 northern- portions -of Douglas county, small segments of Bayfie1d
                 County, and portions of Ashland County, including the City, the Bad
                 River. Indian Reservation -and--several towns south- and west of Ashl-and.-
                 Ashland's segment'of the Lake Superior Lowland is surrounded by
                 highlands to the west, the Penokee range south of Ashland and the
                 Gogebic Range located east@southeast of Ashland -in. Iron. County. - While
                 most of the Lake Superior shoreline is composed of rugged shoreline,
                 the Lake Superior Lowland areas do      not have this characteristic.
                 Hills -that form. -the, -boundary bett;een the Lake Superior Lowlands and
                 the Northern Highland geological province can be seen from Sanborn,
                 twelve miles south of Ashland.       This low range of hills once was a
                 shoreline for a glacial Lake Duluth, a predecessor of L-ake-Superior.










                 The Lake Superior lowland, once a high and mountainous area, was worn

                 down to a plain by the elements.        This area submerged under a
                 predecessor of Lake Superior known as glacial Lake Duluth.          Changes
                 and modifications.of modern day Lake Superior occurred continuously in
                 geologic history resulting in continuous submergence and re-emergence
                 of the Ashland area.        The present land config,uration and
                 characteristics of the area were formed about 10,000 years ago with
                 the retreat of the last'"of the four glaciers that covered the area.
                 Red clay-, which is a characteristic soil type in the area, -is a result
                 of deposition of materials during the last glacial retreat.


                 Topography


                 The Lake Superior lowlands in the Ashland area rise gently from the
                 Lake (600 feet above sea level) about 400 feet (to 1000 feet above sea
                 level) south and southeast of Ashland.        The shoreline is sandy and
                 fairly level, starting along the west side of Chequamegon Bay going
                 east until the Red Clay bluffs on the extreme east side of the Bay. A
                 bluff first appears along the shoreline in Ashland at Sanborn Avenue.
                 This bluff, which is about 40-50 feet: in.heightl-is a short distance
                 back from the waterline and is continuous between Sanborn Avenue and
                 the eastern city limits.        On top of this small bluff rests the
                 developed segment of Ashland.   The topography in this area is a worn
                 down plain providing a good city location. Lands located east of the
                 corporate -limits are the Bad River-Kakaogan Sloughs, probably the most
                 significant estuarial wetland in Wisconsin. The Fish Creek Slough,
                 also an important wetla*nd, borders Ashland on the west.


                 Fish Creek (slough)-and Bay City q;reek are two major streams that have
                 influenced development of the City.    Bay City Creek passes through the
                 cente-r. @of Ashland; on -a -nor th-south --axis-and physically -divides Ashland
                 into two major segments.   These two streams were not overcome during
                 development of the-City.      Both have--strongly influenced development,

                 and will. continue--to - do- so. in-- the f uture-.







                 WATER                                                 ASHLAND
               CONNECTZONS W
                                                         A
                                                           ,rE                WLANUa
                                                      CITYOF cASHLAND, WISCONSIN






                  Lake Superior, 350    miles long and 160 miles wide, covers 31,700 square
                  miles -:and --contains 2,.93,5- cubic@_miles -of water.- -one-tenth-of the-
                  world's flowing surface water. Lake Superior basin lands are drained
                  by short and turbulent rivers or- streams. - The 1-and- basiry -is sma 11 for
                  a lake of this magnitude, containing 81,000 square miles.          In surface
                  area Lake Superior is the largest body of fresh water in the world.
                  In volume it is only exceeded by Lake Baikal in Russia. Lake Superior

                  contains more than one-half of the total volume of water in the Great
                  Lakes Basin.     It is an extremely important fresh water resource, an
                  important trade route, and a potentially significant recreational
                  resource.    Ashland's-history and its future are strongly linked to the

                  lake.



                  Lake Superior is one of five of the Great Lakes. These lakes form the
                  eastern half of the 3,000 mile -Canadian-United States border.              By
                  virtue of an on-lake location, Duluth Minnesota, located near the
                  center of the continent, has direct shipping access to world ports.
                  Lake Superior ports, like Dul uth- Superior, Thunder Bay, Ashland and
                  others have shipping opportunities unequaled by similar sized
                  communities in other:, locat ion s.,- . ,



                  Early in the development of the North American Continent the Great
                  Lakes-were important       -.-for- shippent. of animal-pelt.s -from. the-
                  upper-raidwest and Canadian northwest to European markets. These furs
                  entered the Great Lakes system via the Pidgeon River on western Lake
                  Superior, were shipped by canoe and transhipped. to Europe by
                  ocean-going craft at Montreal.








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                 Later, agricultural products and iron ore were shipped on the Lakes
                 from the Lake Superior region to processing areas in Chicago, Detroit,
                 Toledo, Cleveland, Erie and Toronto. Some of the materials were
                 transhipped to barges at eastern Lake Ontario going up the St.
                 Lawrence River to Montreal.         Agricultural products were again
                 transhipped to ocean going vessels "salties" at Montreal for. European
                 shipment.


                 Completion of the St. Lawrence seaway in 1959 permitted direct access
                 to Great Lakes -Ports -by ocean---going "salties."' Shipment of grain, the
                 most important commodity moving out of the Great Lakes system
                 increased from about a million tons in 1958 to 8 million tons in 1965.
                 During -the 1980 shipping season over 28 million tons of grain moved
                 through the Great Lakes system.      Grain accounted for 29% of all
                 shipments through the Welland Canal during 1959. By 1980, grain
                 accounted for 43% of total shipments.


                 The Great Lakes has similar grain shipping -movements as do the
                 Atlantic and Pacific ports.   These three port regions are eclipsed by
                 the fourth, the Gulf.   European grain trade is a relatively stable and
                 a dependable market with the Great Lakes, Atlantic and Gulf systems
                 orientated in that direction.     (The less stable Asian grain market is
                 dominated by Pacific ports.)


                 Weather conditions and shipping rates combine to give Gulf Ports an
                 advantage-over Great Lakes ports. - When Great.Lakes -shipping closes in
                 December -grain moves by rail to Gulf ports for shipment to Europe.
                 The late summe r and fall harvest must move quickly to Lake      Superior
                 ports.   Bottlenecks (and-delays) result at major -Lake Superior grain
                 ports with grain trucks and trains converging late in the -year at the
                 same time.










                                                                                                                                                                                                      OUSAND fSIANOS SECTION
                               PROFILE OF GREAT LAKES -ST. LAWRENCE SEAWAY SYSTEM                                                                                                                                   _@@CL
                                                                                                                                                                              EAR 111"Ll                       68 ILE.       t7::j
      SOURCE:          International Great I.Lkes Levels Board. Regulation of Great Lakew Water                                                         'IV          F
                       Lntft Appendix E         '    mmarcial Navigation. Report to the International                                    P!:IVYLS.,                      DEFROlt RIVER                                       I.TtKNANONAI RAPIDS
                       Joint Commission. 1973, p. E-7;                                                                                                                                                                                SECTION
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                                                                                                                                                                                                                             IMR(t    LDC"S  AND DAMS
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                                                                                                                            LO   All
                                                                        IN 0 1 A It 1%                                                                                                                                                       Syste










                  Rail movements from grain producers areas are consistent giving
                  shippers a certain market for their product. While rail is
                  considerably more expensive the supplier knows he can get the product
                  to market during the winter months., As soon as the barge-ship system
                  opens in the spring shippers go back to lower-cost water
                  transportation.


                  The -Misaba --an-d --Ve-rmift-l"on @Iron -Ranges of northea:s-terry Minnesota are
                  the principal sources of a lower grade, surface mined product known as
                  tacorrite.* ---Tacorrite is shipped from Thunder Bay,--Silver Bay, Taconite
                  Harbor, Two Harbors and Duluth-Superior by lake bound vessels to the
                  nation's steel.mills in Indiana, Ohio and Pennsylvania.             Taconite
                  replaced underground shaft mined iron ore during the 1950's and early
                  60's as the most important raw material in the production of steel.
                  Ashland's harbor transhipped over 200 million tons of high quality
                  iron ore from mines forty miles east on the Gogebic Range. No iron
                  ore -was shipped -from Ashland after 1965.     The'loss of this activity
                  had a signif-ic.ant --effect on the--local- economy.








                           Figure 3.2: Summary of PSDDA Bioassy Reuirements






                                        TABLE 1 Control Limits, Amphipad and Juvenile infaunal Species mortality 10% absolute. Larval Sediment
                                                    Test T final mortality plus abnormality in Seawater Control must be  50% of T initial Seawater Control.
                                        TABLE 2 Reference Limits, For all Tests;  20% Over Control. in the Case of the Amphipod, >20% may be Accepted
                                                    by the PSODA Agencies on a Case-by-Case Basis for Sediments with High Fines.



                                        

                                        NOTE 1 At this Step in the Flow Chart, the 404 Bioassays are Amphipod and Juvenile Infaunal Species; the
                                                    401 Bioassays include Those Tests Plus the Sediment Larval Bioessay. The 404 Water Column Bivalve
                                                    Larval Bioassay is Not in This Flow Chart [Microtox, a 401 Test, Entem in a Later Step (Two Hit)].
                                        NOTE 2 If any Bioassay Fails QC Limits, it Generally Must be Rerun, Unless the PSDDA Agencies Decide to
                                                    Interpret Suitability Based on Remaining Test Results.
                                        NOTE 3 Generally a Single-tailed Student's T comparison of Mean Test Sed. response versus Mean Reference
                                                    Sed. response (Ho: they are equal).alpha level of .05
                                        NOTE 4 This decision block refers to Nondispersive Sites (Commencement Say, Port Gardner. Elliott Say,
                                                    Anderson-Ketron Is. and Bellingham Say). For Dispersive Sites (Port Angeles, Port Townsend and
                                                    Rosario Straits).The Single Hit rule is >10% over Reference and Statistically Significant for the Amphipod
                                                    and Juvenile Infaunal Species Test, and >15% over Reference and Statistically Significant for the
                                                    Sediment Larval Test.
                                        NOTE S(This applies to Nondispersive Sites and the Two Hit case)-Microtox is an additional 401 Test that Must
                                                    be Considered at This Point. Microtox Results of the Test Sediments Must be Statistically Significant from
                                                    Reference Results and >20% Below Control Response to Count as a Hit.
                                                                   










                            Source: U.S. Army Coprs of Engineers, 1989c

                                                       3-41




















                                                             TABLE


                            WATERBORNE__SHIPHENTS --TO    AND -FROM ASHLAND    BY-- COMMODITY XYPE
                                                         (short tons)

                                       Wood, Timber, Paper             Coal and Brownstone
                          Year       Receipts -.,Shipments            Receipts-      Shipments    Year

                          1899                      3,727,000        3,861,000       2,755,000    1909
                          1909       1,606,000                       5,120,000           28,000   .1919
                          1919         704,000         206,000       7,686,000             2,000  1929
                          1929         260,000          11,000       6,311,000             1,000  1939
                          1939          88,000           1,000       3,472,000               400  1949
                          1949       1,093,000               0       3,667,000                 0  1959
                          1959         810,000               0       2,625,000                 0  1969
                          1969         200,000               0       2$386,000                 0  1979
                          1979                0              0         840,000                 0  1981


                                            Iron Ore                   Total*
                          Year        Receipts      Shipments          Receipts      Shipments    Year

                          1899          12,000    19,183,000         3,963,000      25,665,000    1909
                          1909          10$000    -34,455,000        6,736,000      -36,889,000   1919
                          1919            1,000.  59,814,000         8,391,000      60,022,000    1929
                          1929                0   46,610,000         6,571,000      46,622,000    1939
                          1939                0   32,397,000         3,560,000     _32,398,000    1949
                          1949                0   38)234,000         4,760,000      38$234.,000   1959
                          1959          14,000      6,017,000        3,449,000       6,017,000    1969
                          1969                0              0       2,586,000                 0  1979
                          1979                0              0         840,000                 0  1981

                          *Total includes     only classified receipts and shipments.

                          NOTE: All shipments are reported by ten year increments.

                          SOURCE: U.S. Corps of Engineers, Harbor Shipment Records.
                            WATEE                                                               CYPE







             60,



                                                     TOTAL CLASSIFIED
                                                     WATERBORNE
                                                     SHIPMENTS AND
                                                     RECEIPTS TO AND
                                                     FROM ASHLAND
             50,




                                                 Source: U.S. Corps of Engineers
                                                         Harbor Shipment Records



             40,




                                     Shipments
          0  30,
 IF
          0



          0





             20,









             10,
                                      R e c e i p t s



               01
                                                I t Is


                                                          L
                                                          so small,
                                                               -al-Raft,

             1909    119     '29    '39    149      '59   '69    '79 79.
                                                                      &7
                                           Year












                Decline of Shi
                              PpIng



                Major industries in the area were shipping natural resources to
                national markets at the turn of the century. These materials    included
                iron ore, lumber, brownstone and fresh-water fish. Raw material
                shipments increased.each decade during the early part of the    century,
                reaching a peak of just over 9 million tons shipped during 1916 and
                1920.  With the onset   @O_f' the depression, shipments from Ashland
                declined significantly. -Market- ar-eas and sources of -raw ma.terials..
                changed during the 1930's.   The harbor industry in Ashland did not
                significantly recover when the depression ended ten years later-


                There were a number of reasons for the decline of shipping through the

                harbor.  The value of Ashland and northern Wisconsin as a source of
                rawmaterial was diminishing.- Ashland's function in the economic
                system was a transfer point. The only investments were the docks. At
                E:he same time the shipping companies were making significant
                io-vestments at the source of raw material, at the plant site and in
                new technology.  Ashland is not locat@d in a major market area making
                transportation to market@ar_eas expensive. Changing technologies- and
                transport systems also took their toll.      The depression required
                individuals to discover new and innovative ways to do things. In
                order to understand the decline of- shipping it is necessary to
                understand the major products, their characteristics and movement.


                Prior to 1960 the principal' American source of iron. ore was the
                Gogebic Range in northern Wisconsin and the western upper peninsula of
                Michigan. The ore was mined on the Range, shipped to Ashland by rail,
                loaded aboard ships and transported to lower lakes steel mills for
                processing.











                  Iron ore shipments increased slowly but consistently from 1889 until
                  the mid 1930's when declines in ore shipments occurred because of the
                  depression. Over 9 million tons were shipped through Ashland in 1916.
                  Another height in iron ore shipment occurred in 1929 when 8 million
                  tons were shipped.      The importance of iron ore shipment continued to
                  decline after national recovery because of technological changes in
                  processing ore.


                  The taconite process, introduced during the early 1950's, permitted
                  more efficient processing -of ore from'Minne'sota'-s Iron-Range, not the
                  underground mined ores from the Gogebic Range.            Ore was no longer
                  shipped through Ashland with the closing of Hurley's Carey mine in

                  1964.



                  While processing of lumber was not as significant as iron ore it was
                  certainly important.    The first lumber processed and shipped along the
                  waterfront was --cut in Ashland. As timber cutting moved away --- from -th-i s
                  area, short line rail, and rafting logs were utilized           -to get the
                  lumber to Ashland.          Several subsidiary industries started,
                  manu facturing of wood products, such as furniture, and processing of
                  pulp.   As the source of lumber became more distant the value of the
                  sawmills became less important. The wood industry did make
                  investments in plants in Ashland. Louisiana-Pacific maintains a two
                  by four plant in Ashland and the James River -corporation converts pulp
                  to paper products.          These plants were developed by local
                  entrepreneurs. Eventually they -were sold -to the larger Jumber and
                  pulp operators.    Still, the lumber industry declined. The cutting and
                  finishing operations were better located near the resources and the

                  market.










                 The last saw mill in Ashland closed in 1924 when lumber shipments
                 ended.   As the local supply of virgin timber played out, local saw
                 mills began to utilize Canadian resources, resulting in rafted logs
                 arrIving in Ashland.      Lumber was used early for production of
                 furniture; later pulpwood was utilized for paper production.          Use of
                 timber, from the south, where better growth -conditions occur, led 'to
                 the reduction of markets for northern., slow growing, timber.        Fore ign
                 receipts of pulpwood thr@bu'g'h the port began in 1920, remained fairly
                 constant and ended with the last Canadian pulpwood shipment in 1972.
                 Again, technology, market areas and economics caught up with Ashland.


                 Brownstone, essentially a very hard sandstone, was an excellent
                 dimension stone that was quite popular in the late 1800's.        Brownstone
                 apartments in New York, Washington and Cleveland were created from
                 this unique stone found only in the Chequamegon Bay region.          At the
                 time brownstone was an alternative to wood frame construction or

                .stones such as marble or slate.         The importance of brownstone
                 diminished rapdily with the introduction of masonry block-, a cheaper

                 alternative.



                 Coal receipts through the harbor -increased from a 1889 level of
                 360,000 tons to a 600,000 ton level in 1906.         Coal shipment levels
                 remained cons t-ant. through -the 1920's- and -decli-ned--t,o a-300,000 ton
                 level by the mid 1930's.    Coal was important early for home.heating
                 and in the industrial process; later it was replaced by cleaner
                 burning fuel-oil and natural gas.      Coal remains an important-energy
                 source, primarily used by larger energy users.










                 Coal shipments through Ashland's harbor today amounts to about 300,000
                 tons per year and is the only significant shipping activity at
                 present.   The coal is transshipped to the local power plant, to paper
                 producing companies in northern and centra 1 Wisconsin and to the White
                 Pine Mine in upper Michigan.


                 Supplies of lumbe r and iron ore were located in the Ashland area while
                 coal- had.-to-- be- sh-ipped-li@_-r`e_--for -energy- -prod uct-ion-----Al 1 -the se--p-r od-uc--ts
                 were bulk cargo which was difficult to handle and expensive to
                 transport.1- Transportation by water was the only means available at
                 the turn of the century.     Later, the rail and highway system were
                 introduced but still could not compete with waterborne transportation.
                 Rail and truck transportation were important in moving lumber as the
                 wood resource became more distant.    Because of its bulk and weight,
                 the only economical means of moving iron ore, was by water
                 transportation.  Technological innovations resulted in the ores on
                 Minnesota-s -iron range -becoming.more economical than the deep shaft
                 ore of the Gogebic Range.   The ports closer to the supply than- Ashland
                 became more important.


                 Suppliers will Always try       and locate their operations near the
                 consumer markets or near the    source of raw material.      The cost of
                 transportation, technological innovations, the type of raw material
                 and availability-of capital are the factors that--lead to the decline
                 of shipping from Ashland.













                 EXISTING LAND AND WATER USE






                 Historic and geologic in   fluences, as discussed in previous sections,
                 determined the present shape of the waterfront,            The land use
                 patterns that exist today resulted from the rise of the importance
                 of shipping.   Sawmills, , sAipping docks, coal and iron ore storage
                 areas  were spread along the narrow waterfront.           Individuals who
                 wanted to live near the place of work built h.omes wherever they
                 could.   Manufacturing firms with shipping and water supply needs
                 also located there.    Rafting logs directly to waterfront sawmills
                 made sense.     Rafting pulpwood to the shorefront American Can plant
                 resulting in less handling and lower transport costs.


                 The narrow strip of land was filled with uses* directly dependent on
                 the waterfront.    Secondary uses filled other available spaces.        The
                 decline of shipping lead to abandonment of docks, sawmills and
                 storage areas.   Docks disappeared, vacant land reappeared.           While
                 structures and storage areas disappeared the ownership patterns
                 didn't change quite as easy.     Land still had to be bought and sold.
                 Agreements between willing buyers and sellers still had to be
                 negotiated.   The City and County had to pick up lands on tax deed
                 sales, in some cases the land was sold, in other cases governmental
                 units retained ownership.


                 Waterfront land use patterns were changing.               Uses that were
                 supported by shipping were in transition and decline while water
                 supply needs were increasing in impor    tance.  Public utilities had to
                 be formed to handle sewerage treatment and public water needs.          The
                 power plant was located on the waterfront.        Ships could bring coal
                 directly to the user and significant amounts of water were readily

                 available for-coal boilers.










                 The investments made in some uses were so significant that
                 relocation was not a reasonable- alternative.     Transportation and
                 power were moved to these industries rather than the industries
                 moving to the services.



                 American Can, for example, became more dependent on rail and
                 trucking for supply of pulpwood, rather than rafted logs.         Some
                 investments were made@ i@i physical facilities that could not be
                 relocated or demolished.   While there are other examples, the two
                 best are the power plant and the Soo Line ore dock.


                 Future planning and development must consider existing land use and
                 ownership patterns in order to be successfully implemented.
                 Industrial, commercial, residential uses were intermingled with each
                 other and with public utilities and recreational uses.             The
                 following table describes the amounts of gross acreage devoted to
                 major land uses while the map identifies these uses and the
                 locations and the relationships to each other.


















                                             ASHLAND WATERFRONT
                                           LAND USE (GENERALIZED)






                            Active Recreation                       42      9.6
                            Passive Recreation (publicly owned) 113        26.2
                            Conservancy-Vacant                     108     25

                            Industrial                              125    29

                            Residential                             44     10

                            Commercial                               .4     ---



                            Total.



                            Source: Northwest Regional Planning Commission       1983








                  All lands in the passive recreation category are publicly held are
                  lands in the Fish Creek Slough, north of Prentice Park.        All lands
                  within the industrial category are considered devoted to industrial

                  use even if some or all the lands are vacant or unused at the
                  present time.     Two areas fit this statement, the Soo and Clarkson
                  docks.  Except for the area at the foot of Ellis Avenue (Highway 13)
                  all the conservancy-vacant parcelslarie narrow and linear witha bluff
                  passing through them.          Plate        describes the land use.





                                Existing Waterf ront
                                Land Use



                                LEGEND

                             p  PUBLIC RECREATION
                             e  ENYIRONMENTAL                                                         CITY DOCK  JA
                                                                                         CLARKSON
                              r RESIDENTIAL                                                 DOCK
                             C  COMMERCIAL
                                                                       SOO DOCK
                                INDUSTRIAL
                                                               JEAN KREHER                   e     I
                            El  VACANT                              PARK

                                                                   BOAT
                                                                LANDING


                                                                    PULP
                                                                   HOIST


                                                       C. REISS
                                                    COAL DOCK        MEMORIAL.
                                                                       PARK




                                        POWER PLANT



                      PRENTICE
                          PARK










                 Before goals and policies can be established, or plans implemented,
                 it is necessary to carefully describe the existing conditions and
                 explore realistic future opportunities.    The next section discusses
                 waterfront lands in smaller segments.        Each land section is
                 discussed in some detail, and certain subareas having development or
                 redevelopment potential are identified. The following map describes
                 each of the areas.    After each area is described limiting factors
                 that affect the waterfri5ne are discussed.



                 WATERFRONT LAND USE AREAS




                 Area One



                 This waterfront area is triangular in shape.     The perimeter starts
                 at the western City,limits, travels east along the old Chicago and
                 Northwestern   Tracks until it intersects with Chequamegon Bay.     At
                 this point the boundary reverses direction traveling west along the
                 shoreline until again reaching the western City limit. The area can
                 be divided into four subareas.     Maslowski Beach, located in the
                 northwest quadrant, is an excellent sand beach with shallow water.
                 Heavily used during warm weather, this area should be 'preserved as

                 is.



                 Prentice Park, located south of the beach across Highway 2 contains
                 diverse recreational uses and topography.   A small bluff separates
                 the Park's two major segments.      The higher lands are forested and
                 contain ball diamonds, children's recreational equipment, picnic
                 areas, camping areas and a deer yard. The wetlands below the bluff
                 are a part of the fish Creek Slough-.   Boardwalks and observation
                 decks are available for use by the public. The bluff edge has
                 walking trails artesian wells and springs.











                 A very narrow strip of land located east of Maslowski Beach and
                 north of Highway 2 should remain untouched.     This property is owned
                 by the Wisconsin Department of Transportation. It provides an
                 excellent view of the bay and the municipal waterfront.


                 Land in the south.east quadrant, south of Highway 2, is relatively
                 rugged and narrow.     Some development potential does exist here,
                 particularly for tourisl 'Oriented businesses.    Care mus t be taken to
                 preserve views and to address ingress and egress for automobiles.



                 Area Two



                 This area is dominated by the Lake Superior District Power Company
                 Power Plant and the C. Reiss Coal Dock. All coal coming to Ashland
                 over water arrives and is stored on the C. Reiss Dock, the only
                 active dock in the City.    The LSDP plant is a dominating waterfront
                 feature.    The power plant is located at the bottom of the bluff at
                 the water's edge.   The power plant is a favorite location for local
                 fishermen.    Lands on the north side of Highway   2 above the C. Reiss
                 dock are developed with commercial facilities on top of the bluff.


                 The bluff west of this area is too steep and too narrow for any type
                 of development.   The vacant land between the power plant and the
                 coal dock remains undeveloped for the same reason.













                  Area Three



                  This is the most interesting area of the City Lands between the C.
                  Reis s dock and the Soo do-ck were historically the most important to
                  the Port of Ashland.      Today diverse use occurs.    First is Memorial
                  Park, the location'of the City's bandshell         then the pulp hoist

                  dock.   The basin next   to this dock contained lumber floated in from
                  other areas for over    eighty years.     if you sample the bottom
                  sediments that contain large quantities of pulpy material.       Next to
                  this area is the City's sewerage treatment plant; then Jean Kreher
                  Park where a popular swimming beach and the City's only public boat
                  landing exists.   The shoreline feature that dominates this area is
                  the 1200 foot long, 60 foot high Soo Line Ore Dock.       This dock, and
                  its twin, destroyed by fire in 1941, were the docks utilized in
                  moving over a 150 ton of iron ore out of Ashland.



                  The area behind the waterfront areas discussed above is dominated by
                  single family housing. The housing area is separated from the
                  waterfront developments by municipally owned and Soo Line utilized
                  rail.   This rail,   which extends as far west as the Power Plant is
                  used to bring western coal to the power plant.       Soo Line moves C.
                  Reiss eastern coal from the docks inland to northern Wisconsin paper
                  mills and the White Pine Mine in upper Michigan.      This municipally
                  owned line connects with Soo Line and Burlington Northern tracks in
                  the sixth street area.   The Soo tracks go south while the burlington
                  tracks go west.


                  The Pulp Hoist site has been selected by the location for the future
                  marina.  This site is the most accept'able environmentally.        It is

                  also located close to downtown.       A downtown location will create

                  secondary spending patterns that will assist merchants in the
                  Central Business District.    The motel that is to be constructed with
                  it will create employment opportunities.       This location provides
                  goo'd access and is likely to stimulate business and investment in
                  the area.    Documentation of the marina project is         extensively
                  discussed later.











                   A number of conflicting uses exist next to each other in this area.

                   A sewerage treatment plant next to a public park with a swimming
                   beach is a good example.         LSDP has a repair building, office
                   building and storage are'a located adjacent to residential units.
                   Rail lines pass through residential areas in order to get access td
                   the C. Reiss docks 'and the power plant.      The rail also separates
                   residential from the rest of the area.



                   Area Four



                   A low volume river, Bay City Creek has formed a small delta on the
                   west side of the Soo Line dock.    The Bay City Creek valley divides
                   Ashland into two parts and this area is undeveloped. The waterfront

                   area is a low wet area where the creek meanders back and forth
                   before dumping its sediments into Chequamegon Bay. Just east of the
                   creek is the Clarkson dock and City dock.     This area is now used to
                   store municipal equipment and other supplies.        Land to the east is
                   vacant. Some apartment buildings exist along the highway. The rail
                   line passes along the lake shore here until,it reaches its ultimate

                   destination the James River Plant which is next door to this vacant

                   area.   An interesting view of pilings for two large docks exists
                   here.  Apparently these docks burned to the waterline, leaving the
                   pilings visible under water.



                   Area Five



                   Ashland's  two largest industries, Brettings and James River, Inc.,
                   are located at the water's edge in this area.     There is open space,
                   providing an excellent view acr6s     s Chequamegon Bay, between these
                   two industries.   James River draws water from Lake Superior for its
                   pulping process and has waste treatment facilities for water
                   returned to Lake Superior.







                          Area        Description




                                                                                                              JAM
                                                                                                   CITY DOCK

                                                                                      CLARKSON
                                                                                          DOCK



                                                                      SOO DOCK
                                                                                                  4


                                                              JEAN KREHER
                                                                  PARK
                                                                BOAT              3
                                                               LANDING


                                                                  PULP
                                                                 HOIST



                                                     C. REISS
                                                   COAL DOCK        MEMORIAL
                                                                      PARK






                                        POWER PLAN
                                                                                               01
                     PRENTICE                                         &
                          PARK








                                                                                 \01










                   The U.S. Corps of Engineers is responsible for maintaining the
                   designated federal channels.   The USCOE does not maintain channels
                   where there is not a need nor any traffic.    Only the first 2500 feet
                   of the west channel is dredged and maintained at its 21 foot project
                   depth.  The remaining 1500 feet of the west channel and all of the
                   east channel and turning basin are not ma  intained.   If ship traffic
                   to increase, the USCOE would dredge to the authorized project depth.
                   The federal channel a'nd' breakwall projects were authorized by
                   Congress.   Maintenance to project depth is required by Congress if

                   need warrants it.



                   Before materials can be removed from the lake bed or structures
                   placed in the water, permits raust be obtained from the Wisconsin
                   Department of Natural Resources. The WDNR has statutory authority
                   and is responsible for surface waters in the state.         Removal of
                   dredge requi   res obtaining a 30.20 permit by any organization
                   contemplating removal.     When the Corps of Engineers dredge in
                   Wisconsin waters, they also must obtain a 30.20 permit.     This permit
                   also regulates disposal of dredge material.    Wisconsin law defines
                   all materials coming from under the water as polluted and requires
                   disposal on land or in a confined disposal facility (CDF). In
                   Ashland, disposal must occur at an upland site.


                   If structures are to be placed in water, permits must also be
                   obtained. The Wisconsin Department of Natural Resources can issue a
                   30.12 structural permit after review of design and components.         if
                   work is to be completed on the shoreline that incorporates grading
                   or removal of top soil in excess of 10 000 square feet the
                   individual or firm must obtain 4 WDNR 30.19 permit. Each of the
                   three permits discussed above would be required if an Ashland marina

                   were constructed.










                 Limiting Factors - Land Development



                 There are a number of factors that serve as barriers to increases in

                 shipping to and -from A&hland. .-Ashland port. activity is limited
                 because of its relation to raw materials and major markets.       Lumber
                 resources are moved by truck or rail rather than by ship.
                 Significant iron ore reserves are located in central Ashland and
                 Iron Co unties but it is 'unlikely these reserves will be tapped soon.


                 USH 2, an important transportaion route, provides a physical barrier
                 separating the w  -aterfront from the rest of the community. The
                 highway also provides important access to the City and waterfront.
                 Excellent scenic views are available for travelers. The Highway's
                 location makes the waterfront narrow and linear.       Development or
                 redevelopment that may require large acreages must be organized in a

                 linear form.



                 In some places only a few feet of land is available between the
                 water's edge and the highway. Also, a bluff that becomes more
                 pronounced as one moves from west to east interferes with
                 development potential.   On the west side the bluff is as much as two
                 thousand feet south of the water's edge. The bluff crest is sevent-y
                 feet above the water and right next to the shoreline throughout area

                 two. In the next two areas as much as 500-750 feet of land is

                 located below and north of the bluff; land in this area is intensely
                 utilized.   In areas five and six the bluff is again at the wter's
                 edge.


                 Railroad tracks, which furthe@ -limit or restrict potential
                 development extend along the shoreline from the power plant to
                 Brettings. While these tracks may interfere with tourism
                 development and cquisition ofpbulic access they are critical to rail
                 users located on the waterfront as well as future-shippers.











                 Lumber and mining provided economid strenglth to the area.        These
                 basic industries always subject to eocnomic fluctuations and shifts
                 have declined in importance.      The virgin forests have been logged
                 and metallic resources,. while significa   nt, are held in reserve.
                 Earlier in this century, when these industries were booming, the
                 most practical and efficient method to move ore and lumber from the
                 area was by ship.     The level of investment, the capitalization,
                 establishment of manula@ttfring and population growth that occurred
                 in other parts of the State did not occure here.       The result is a
                 northern Wisconsin economy that is traditionally weaker than the

                 State as a whole.



                 Market potential for wood, from second and third growth timber
                 particularly particle board and wood chip displayed potential in the
                 late seventies.    After the potential was identified a waferboard

                 plant was constructed in Hayward; the Lake Superior District Power
                 company began mixing coal and wood as an energy source for its power
                 plant in Ashland and Forest Fuels, Inc. began producing wood
                 briquets in nearby Ino.     Wood as home heating fuel also grew in
                 popularity.


                 Several changes have occurred since 1977 that affect Ashland's
                 potential for wood processing and increased coal shipment.          The
                 excessive resources of timber, particularly aspen, that existed
                 during the mid 1970's has been significantly reduced.


                 Two industry types now utilize aspen, one produces waferboard, the
                 second produces wood pellets used for fuel.      Both industry types
                 have utilized wood resources eff@iciently resulting in a decreased
                 supply of aspen.    Northern hardwood, with a dense wood fiber,
                 remains -available for utilization.     Shipment of chips or particle
                 board has not occurred from Ashland although some wood shipment from
                 Superior to overseas ports does occur.         The Louisiana Pacific
                 waferboard plant in Hayward moves its finished material by truck and

                 rail.










                 Activites in the lumbering industry which recently have been
                 beneficial to northern Wisconsin have little or no impact on port
                 activities.    The shipment of wood to distant markets is economical
                 by truck and rail.   Tanspor costs across   water is more expensive
                 because assembly of large quantities in a dry storage area is
                 necessary; handling and loading/unloading are difficult. A Michigan
                 study reported that contact with shippers found no one who had
                 familiarity with costs 'to,'transport lumber or chips.


                 Transshipment of western coal was identified as another bright sport
                 for harbor related economic activity.   Increases are of low sulphur
                 western coal was anticipatedwhen oil prices rose drastically in the
                 early seventies as an alternate energy source.


                 Shipment and use of western coal never met the expectations
                 established during the early and mid-1970's.   The present recession
                 and oil glut have affected utilization of additional coal stocks.
                 Several other factors have affected coal shipment.       The costs of
                 plant production, improved rail lines, land assembly, and waterfront
                 facilities are prohibitive when considering an Ashland site for
                 additional coal transshipment in the short term.        Facilities for
                 handling coal already exist in Superior.     Last year approximately
                 3.8 million tons of coal were shipped through the Superior Midwest
                 Energy Terminal; the terminal has the capacity of move eight million
                 tons of coal per year.     Large boats can handle larger volumes of
                 material more efficiently.    The Superior Harbor channels in most
                 areas are 27 feet while only the Soo Line (iron ore) dock has an
                 authorized 27 foot channel depth serving it.        The majority of
                 channels in Ashland are 21 feet,,resulting in less efficient ships
                 serving AsHland.   Transportation of western coal also requires rail
                 service.   The Burlington Northern (BN) tracks serving Ashland are in
                 relatively poor condition, and already pass through Superior.











                  While coal has not met expectations, described earlier, there may
                  still be significant shipment of coal in the future.     Midwestern and
                  Great Lakes power plants have been converting to coal and, with the
                  end of a recession, the 'prices of coal, oil and gas may shift i@
                  favor of coal.    A western company, the Powder River Pipeline, Inc.,
                  is in the second phase of an economic development project that could
                  lead to investment of a 2.5 billion dollar pipeline transferring
                  coal slurry from Montana to Lake Superior and Lake Michigan markets.
                  This innovative technology has a significant number of difficult
                  hurdles to overcome but that company is projecting an operational
                  phase by 1989.



                  Iron ore reserves always lead to speculation that the harbor may
                  again move this material to other ports.        Lower cost taconite
                  production in Minnesota will be able to meet the demands placed on
                  it.  Foreign steel production and shipment to the U.S. will simply
                  increase the life span of the already significant Minnesota
                  reserves.  Iron ore will not again be shipped from Ashland in the

                  forseeable future.





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                 REDEVELOPMENT OPPORTUNITIES





                 Ashland's waterfront offers redevelopment opportunities for
                 tourism/ recreation and long-term potential for increases in shipping
                 activities.   The four municipal waterfront parks offer a variety of
                 recreational activities and are used by residents and visitors
                 alike. Prentice Park/Maslowski Beach offer nature walks and viewing
                 of the Fish Creek Slough, "camping and various youth activities; Jean
                 Kreher Park has an excellent boat ramp; Memorial Park offers
                 excellent views of Chequamegon Bay.   Three of the four parks have
                 excellent swimming beaches.


                 Tourism Development


                 Ashland is not a destination for tourists.   Tourism is a popular and
                 growing activity that has not been appropriately utilized here. All
                 too often tourists, people who bring new dollars into a community,
                 are driving through Ashland for other destinations.  The view across
                 Chequamegon Bay to the northwestern shore is very scenic, the water
                 quality is excellent, the fishing is great. The City, in
                 partnership with the private sector, must explore ways to contain
                 these assets, market them, invest in them and bring the revenues
                 associated, with the water to this community.


                 The City of Ashland has made important investments in waterfront

                 facilities.   Prentice Park has been rehabilitated. With assistance

                 from Ashland County, the Jean Kreher Boat launch and ramp have been
                 established.   The Wisconsin Coastal Management Program provided
                 major assistance to the City for 'Construction of boardwalks at
                 Prentice Park and Memorial Park as well as planning for the

                 waterfront and lakeshore trail.    The Sand and Water Conservation
                 Program (LAWCON) has supported park rehabilitation and upgrading
                 park facilities.











                  While government investment and activity have been significant,
                  private sector investment has been limited.             No significant
                  investments have been made north of Highway 2 by private sector
                  interests that are relatdd to tourism.      The development theme and
                  efforts in the 80's require public-private partnership.                 The
                  combined efforts of these two entities are essential if                 the

                  waterfront is to alchieve its full potential.          During 1983-84   the
                  City and private investors have been cooperating and discussing
                  public-private partnership that may lead to assisting the waterfront
                  achieve its full potential. While the marina-hotel effort is a step
                  in the right direction there are obstacles which stand in the way.
                  This effort is described in the following section.



                  The Marina



                 ,Marina projects are difficult to develop on the Great Lakes.
                  Breakwaters are necessary to provide adequate protection and are not
                  economically justifiable.      Financing, other than local, in the form
                  of grants are needed for breakwater construction in order to be
                  feasible.    Even when public funding is av   ailable the rate of return
                  for direct spending is low.    In order to attract boaters, the fees
                  charged must be kept low in order to be competitive with marinas

                  constructed earlier and in other areas.



                  The City of Ashland has explored marina development a number of
                  times.  The 1972 effort was iniated by the U.S. Corps of Engineers
                  at the request of the City.       The following material describes the

                  procedures used by the Corps at that time.


                  initial Reconnaissance - A determination if a project will be
                  economically feasible, properly located and environmentally sound.
                  At this stage the community where the project is located must
                  express its support.











                 Preliminary Design - Preliminary design      plans for the breakwall,
                 channel entrance and turning basin are completed. The Corps again
                 goes through a cost-benefit analysis.


                 'Final Design - Final design plans are again prepared.             The
                 cost-benefit analysis is again reevaluated. The community where the
                 project is to be locate@d 'Flis expected to pass a resolution stating
                 its continued interest as well as financial commitment to the

                 project.


                 Construction Appreciation - Congress is requested to appropriate
                 funds for 50 percent of the cost of constructing the channel
                 entrance, the turning basin and the breakwall.   The local community
                 is expected to appropriate the balance, as well as providing
                 ancillary, support facilities.


                 The Corps design has an estimated 100 year life span and, as a
                 result is quite expensive.   The time the Corps takes to design and
                 appropriate funds is also extremely long. These two factors make it
                 difficult for local communities. They maintain a concentrated
                 effort over a long period of time. Also, because of the time frame,
                 it is difficult for communities to appropriate large amounts when
                 they will be needed.


                 Boater demand studies, completed as a result of the initial recon
                 effort, identified a need for approximately 250 new slips in the
                 Chequamegon Bay Area by 1980 and approximately 350 slips by 1985.
                 The Apostle Islands National Lakes@ore provided an important draw
                 for boaters in the Chequamegon Bay region.











                 The Wisconsin Department of Natural Resources and the U.S. Corps of
                 Engineers conducted an environmental an alysis in 1977 as a part of
                 the initial recon elffort.    They were searching for a site offering
                 the least environmental. impact.    The selected site was the pulp

                 hoist site located at the foot of Ellis Avenue in the center of the
                 city.


                 Several problems existea dt this site:


                       The bottom sediments are primarily composed of wood residue
                       and the water is shallow, requiring extensive dredging.


                       The land area is restricted creating some difficulty for
                       establishing areas for parking service buildings and other
                       ancillary services.


                 The site also had positive aspects:



                       The shallow bottom would reduce the overall breakwater costs.



                       The site is two blocks from Ashland's major intersection, thus
                       reducing costs for land side access.



                       The site is three blocks from Ashland's Central Business

                       District.



                 The pulp hoist site would allow the City's commercial sector to
                 capitalize on tourism and marina spending.    While direct spending
                 for marinas is low, indirect spending can be quite high.           The
                 Wisconsin Recreation Resources Center estimated that $60 would be
                 spent per boat slip for each boating day.    Assuming 45 boating days
                 per season and a 100 slip marina, the estimated new dollars expended
                 in Ashland's commercial corridor could amount to approximately
                 $270,000 per year.











                 In 1979 the municipal Marina Committee was unable to accept the U.
                 S. Corps of Engineers and Wisconsin Department of Natural Resources
                 recommended site location. As a result-in this lack of ability to
                 select a site the Corps ;@as unable to proceed into the next phase.
                 The Corps of Engineers dropped the project when these function were
                 transferred from the' St. Paul office to the Detroit office   early in

                 1980.



                 The 1970's project had these positive results:


                     - preferred sites were identified
                     - environmental analysis of the sites were completed
                     - the community benefit was documented


                 Dur ing 19 82   the C i t y o f Ash I and , now under a dif f erent
                 administration, again expressed an interest in the project. initial
                 discussions were held with a developer who expressed an interest in
                 construction of a hotel directly above the marina site.               He
                 concluded, and a -feasibility study later supported his conclusion,
                 that if a hotel of this magnitude were constructed then a marina
                 would be essential to support a hotel iri.a community the size of
                 Ashland.  He stated a strong commitment to developing the hotel if
                 the City agreed to pursue development of a marina.


                 The City council authorized and the administration appointed a
                 municipal Harbor Committee in 1982 to examine waterfront potential
                 and look at short and long term improvements that would revitalize
                 the waterfront. The Committee represents the interests of the City,
                 the County, the business community and the citizens.      They meet not
                 only to discuss the marina project but to evaluate the waterfront
                 and look at its redevelopment potential for shipping, recreation and
                 tourism.










                 At the same time the Wisconsin Coastal Management Program provided
                 financial support for preparation of a waterfront plan. This effort

                 includes an analysis of the issues.that affect waterfront
                 development and analysis'of port development, tourism development,
                 policy development and implementation.


                 Staff assigned to the new Harbor Committee then assembled relevant
                 data pertaining to earlier efforts; re-evalualted and updated boater
                 demand studies, negotiated with the hotel developer, assisted in
                 land assembly, submitted federal and state permit applications and
                 prepared two major grant appliclations for federal assistance.      The
                 City purchased the option on the pulp hoist site,hired a consultant
                 to estimate construction costs and obtained easements to cross

                 railroad right-of-way.  The County agreed to contribute $200,000 to
                 the project.


                 Both grant applications, the first to the Economic Development
                 Administration, the second to the Wisconsin Department of
                 Development for Community Development Block Grant funds were
                 rejected.   The EDA rejection remains unexplained,. while the
                 Wisconsin Department of Development indicated they would only
                 seriously consider an Ashland Harbor application      if it were the

                 "last dollars needed."



                 The year-long effort to develop a marina raised three concerns that

                 mutt be addressed and resolved if the effort is to continue:



                    - This project is difficult to develop without federal or state
                       financial assistance or without'a public-private partnership.


                    -  The apparent inability of potential project funders to
                       coordinate or communicate with each other to meet their
                       objectives cooperatively and help local government achieve
                       their objectives.











                       The local developer refused to firmly commit to the project

                       until he was sure the marina would be established.          The

                       Federal and State agencies would not commit, much less
                       evaluate, the project until the developer had firm and hard
                       financial commitments.    Because of the rules a degre of trust
                       ormutual res'pect between the actors did not, and could not,

                       materialize.



                                                                         0
                 Commitments to the project still exist.       The necessary federal
                 commitments do not exist.     Federal and State categorial grant
                 programs, as   well as their consistency with each other, will
                 determine the final outcome of this effort.       The City remains
                 committed.  The staff is prepared to carry the work further; as soon
                 as and when it is permitted to do so.


                 A number of accomplishments also resulted from the work completed
                 during 1983:


                     - The recognition that marina development must include a
                       par tnership between the public and private sector.
                     - A project of this nature is feasible in Ashland.
                     - The City is firmly committed to the pulp hoist site.

                     - The benefits and liabilities of that site are well known.

                     - Design plans and specifications have been completed.         The
                       project cost is known.
                     - The County has allocated funds as a portion of the project

                       costs.











                 Existing Harbor Conditions




                 An 8,000 foot breakwali constructed in 1887 by the U.S. Corps of
                 Engineers pr ovides additional protection for ships in the harbor as
                 well as providing' some protection for harbor facilities from the
                 elements. The U.s. Corps of Engineers maintains the breakwall.


                 Ashland's harbor contains two federal channels and a turning basin.

                 The east channel entrance, located 4500 feet north of the Soo dock
                 has a project depth of twenty-seven feet.     The turning basin which
                 is triangular in shape is located between the channel entrance and
                 Soo dock also has a project depth of twenty-seven feet. The base of
                 the triangle starts at the Soo dock and runs parallel to the
                 shoreline for approximately 4000 feet.         The project depth is
                 sufficient to permit a 1000 foot ship, fully loaded, to approach and

                 dock at the Soo Line Dock.



                 The Soo dock slip is deep enough to permit a ship of this size to
                 off or on load. A 1000 footer is the largest on the Great Lakes.


                 The west channel is located 4000 feet north of the pulp hoist dock.
                 The project depth in this channel is 21 feet, which permits smaller
                 ships, 300 to 400 feet in length to pull up next to the C. Reiss
                 Dock and deposit their cargoes of coal and limestone.    The channel
                 parallels the shoreline for approximately 4500 feet and permits
                 access as far west as the LSDP plant.     One privately maintained

                 channel connects the C. Reiss Dock with the federal channel.











                 The U.S. Corps of Engineers is responsible for maintaining the
                 designated federal channels.     The USCOE does not maintain channels
                 where there is not a need nor any    traffic.. Only the first 2500 feet
                 of the west channel is dredged and maintained at its 21 foot project
                 depth.   The remaining 1500 feet     of the west channel and all of the
                 east channel and turning basin are not maintained.      If ship traffic
                 to increase, the USCOE would dredge to the authorized project depth.
                 The federal channel and breakwall projects were authorized by
                 Congress.    Maintenance to project depth is required by Congress if

                 need warrants it.



                 Before materials can be removed from the lake bed or structures
                 placed in the water, permits must be obtained from the Wisconsin
                 Department of Natural Resources.       The WDNR has statutory authority
                 and is responsible for surface waters in the state.           Removal of
                 dredge requires obtaining a 30.20 permit by any organization
                 contemplating removal.      When the Corps of Engineers dredge in
                 Wisconsin waters, they also must obtain a 30.20 permit.       This permit
                 also regulates disposal of dredge material.      Wisconsin law defines
                 all materials coming from under the water as polluted and requires
                 disposal on land or in a confined disposal facility (CDF). In
                 Ashland, disposal must occur at an upland site.


                 If structures. are to be placed in water, permits must also be
                 obtained. The Wisconsin Department of Natural Resources can issue a
                 30.12 structural permit after review of design and components.           if
                 work is to be completed on the shoreline that incorporates grading
                 or removal of top soil in excess of 10,000 square feet the
                 individual or firm must obtain a,'W*DNR 30.19 permit.         Each of the
                 three permits discussed above would be required if an Ashland marina

                 were constructed.











                 Harbor Shipping Potential


                 Lumber and mining provided economic strength to the area.         These
                 basic industries, always'subject to economic fluctuations and shifts
                 have declined in importance.      The virgin forests have been logged
                 and metallic resoUces, while significant, are held in reserve.
                 Earlier in this century, when these industries were booming, the
                 most practical and efficient method to move ore and lumber from the
                 area was by ship.     The level of investment, the capitalization,
                 establishment of manufacturing and population growth that occurred
                 in other parts of the State did not occur here.        The result is a
                 northern Wisconsin economy that is traditionally weaker than the

                 State as a whole.



                 Market potential for wood, from second and third growth timber,
                 particularly particle board and wood chip displayed potential in the
                 late seventies.    After the potential was identified a waferboard
                 plant was constructed in Hayward; the Lake Superior District Power
                 Company begain mixing coal and wood as an energy source for its
                 power plant in Ashland and Forest Fuels, Inc. began producing wood
                 briquets in nearby Ino.     Wood as home heating fuel also grew in
                 popularity.


                 Several changes have occurred since 1977 that affect Ashland's
                 potential for wood processing and increased coallshipment.          The
                 excessive resources of timber, particularly aspen, that existed
                 during the mid 1970's has been significantly reduced.


                 Two industry types now utilize a6pen, one produces waferboard, the
                 second produces wood pellets used for fuel.      Both industry types
                 have utilized wood resources efficiently resulting in a decreased
                 supply of aspen.    Northern hardwood, with a dense wood fiber,
                 remains available for utilization.











                 Shipment of chips or particle board has not occurred from Ashland
                 although some wood shipment from Superior to overseas ports does
                 occur.   The - Louisiana Pacific waf erboard'plant in Hayward moves its
                 finished material by truck and rail.


                 Activities in the lumbering industry which recently have been
                 beneficial to northern Wisconsin have little or no impact on port
                 activities.    The shipment of wood to distant markets is economical
                 by truck and rail.   Transport costs across water is more expensive
                 because assembly of large quantities in a dry storage area is
                 necessary; handling and loading/unloading are difficult. A Michigan
                 study reported that contact with shippers found no one who had
                 familiarity with costs to transport lumber 'or chips.


                 Transshipment of western coal ws identified as another bright spot
                 for harbor related economic activity.    Increased use of low sulphur
                 western coal was anticipated when oil prices rose dramatically in
                 the early seventies as an alternate energy source.


                 The Ashland Waterfront Plan is a response to changing times.
                 Various government units have started to cooperate with each other
                 and with the private sector in order that each is able to achieve
                 its objectives.   This plan is an acknowledgement of new interests
                 and seeks to take advantage of new opportunities.             The plan
                 suggests, and to some extent requires, that the City, the County,
                 quasi public organizations, the private sector and the public sector
                 get together and look at the waterfront as a common, but unique,

                 asset.












                  A conscious @effort to re-establish the waterfront nature, as new
                  development and redevelopment occurs must be established. The
                  waterfornt is a distinct entity that reminds us all of its proud
                  tradition, its history and its value.     As these events occur this
                  area can once again become dynamic and vibrant and can be an
                  extrewmely important geographical and economic asset to the
                  community.   The effort,-w 'ill require numerous partners and will will
                  take time.    It will also require persistance, dedication and

                  investment.



                  As redevelopment occurs it is essential that the rights of existing
                  land owners/users be respected.     Citizens, community leaders and
                  city officials all should be involved in the decision making
                  process. The earlier their involvement, the better.


                  To assist in achieving a desirable level of development and/or
                  redevelopment, the following goal is set forth:


                        ASHLAND'S COASTAL ENVIRONMENT SHOULD BE DEVELOPED IN A

                        MANNER THAT PROVIDES FOR REASONABLE ECONOMIC AND

                        RECREATIONAL DEVELOPMENT IN AN ENVIRONMENTALLY SOUND

                        MANNER AS WELL AS AN ADEQUATE MIX OF PORT ACTIVITIES,

                        PUBLIC RECREATION AND TOURISM OPPORTUNITIES.










                 The Analysis section of this report provides extensive background

                 material which allows the users to use relevant information to

                 formulate a logical position as well as providing information that
                 is important to the. decision making process.   The INTENT and POLICY
                 development material, which follows, divides waterfront materials
                 into five major subsections.   Comprehensively addressing waterfront
                 issues and concerns requires that decision makers integrate each of
                 the subsections with each other and with the overall goal.           The

                 INTENT statements are discussions of the issues and concerns that

                 fit into a relatively narrow scope under the title.          The-POLICY
                 statements are guidelines that assist in achieving what is desired.


                 Ashland should consider this type of technology as possible and
                 assess  its impact on the community.      At a minimum, Ashland should
                 reserve lands in its comprehensive plan that will permit industrial
                 access  to the waterfront as well as reserving lands sufficient to
                 handle  similar types of innovative technical applications in
                 movements of materials, goods and services.













                  POLICY IMPLEMENTATION






                  OVERALL DESIGN



                  The Ashland walterfront played an important and significant role in
                  the development of Ashland and the surrounding area. The
                  introduction of uniform.' design practices, standardization and mass
                  production lead to the disappearance of the character and nature of

                  the waterfront.



                  INTENT    Ashland's waterfront, long, linear and diverse needs a
                            unifying or linking theme.      An Ashland waterfront logo
                            that is marine related can be designed and placed in key
                            locations in public right-of-ways.     owners of commercial
                            or industrial buildings can be encouraged to adopt a
                            marina design when they construct or remodel buildings.
                            The historic nature of the shoreline, particularly some of
                            the older structures which still exist, must be seriously
                            considered when designing or redeveloping certain areas.
                            The use of similar, landscaping, lighting, signs and other
                            design materials will provide visual continuity that will
                            permit marine linkages between the commercial, residential
                            and industrial occupants.


                            Creating a unified sense of place will assist in linking
                            waterfront uses to each other as well as linking the
                            community to the water's edge.          Public and private
                            partners should coordinatp their efforts to achieve well
                            designed, compatible development and a desirable sense of
                            continuity.    It is  not the intent to make all development
                            appear alike; rather, it is intended that, wherever
                            possible, development should be compatible in design.       The
                            character of the waterfront should be in keeping with
                            small town waterfront images.







                  POLICIES       1) Maintain architectural continuity and compati-
                                     bility within major waterfront   use segments.
                                 2)  As redevelopment occurs, use, materials, forms and

                                     details that reflect the marine and historic

                                     character of 'the waterfront.

                                 3)  Use street graphics, sign posts, lighting,
                                     landscaping and other unifying features to link
                                     t'he various segments to a consistent
                                     marine/historical waterfront theme.
                                 4)  Encourage placement of historical markers and
                                     commemorative plaques wherever appropriate.



                  PUBLIC ACCESS



                  Chequamegon Bay is an important water recreation resource.
                  Chequamegon Bay provides access to Lake Superior and the Great Lakes
                  system.   Pleasure craft and fishing boats use the Bay for relaxation
                  and recreational activity.    Access to the water can be gained by
                  boats at the Jean Kreher boat landing and the privately owned and
                  managed Chequamegon Bay Boat Club.            Several smaller and
                  underdeveloped boat launches also exist.


                  INTENT    Boating is a major recreational activity which displays
                            unlimited potential in the Chequamegon Bay area.           The
                            Apostle Islands National Lakeshore, located twenty miles
                            away, is a major destination for power and sailcraft.      The
                            chain of harbors in the western Lake Superior area permits
                            access by water to most other ports , marinas and
                            recreation areas on Lake Superior.           Chequamegon Bay
                            provides an excellent cold and warm water fishery that is
                            underutilized.   The fishing' is excellent.   A great deal of
                            effort has been expended recently with development of a
                            marina in Ashland.     This effort (discussed earlier) needs
                            to be continued.     It is important that provisions for
                            public access to the water be included in development or
                            redevelopment.








                           Public lands held by the city, such as street ends, can be
                           developed as boat launches, or other waterfront
                           recreational activities.         The City also can acquire
                           easements from the private sector.    Another marine aspect
                           that should be examined in shore fishing opportunities.
                           Individuals --who--do not- own boats will then- have
                           oppo.rtunities-to participate-in f-ishing -for northerns,
                           walleye and browns.-available from Lake Superior waters.


                 POLICY    1)    Encourage the development of a full slervice marina at
                                 the pulp hoist site.   Such an activity will help the
                                 City realize the marine transportation and
                                 recreation/ tourism potential of its waterfront and

                                 Chequamegon Bay.



                           2)    Use demands will continue to increase at Jean Kreher
                                 Park.  Explore   the feasibility of establishing
                                 additional small boat launches on public property,
                                 particularly at-s- treet-ends.


                           3)    Encourage.the establi.shment of boat mooring areas
                                 where appropriate-..-- Provide access to downtown Ashland

                                 from these areas.



                           4) -Where appropriate, acquire easements from private

                                 sector individuals for shorelands.



                           5)    Increase shore fishing opportunities by development of
                                 fishing piers, improving access to existing public
                                 shoreline and by obtaining easements for public use of
                                 private-lands or docks.








                  Pedestrian and Bicycle Access


                  The City of Ashland maintains four excellent, and well utilized
                  municipal parks at various locations along the waterfront.          Less
                  formalized access occurs at other areas.where fishing and swimming
                  are popular.    Recently, with significant financial and design
                  assistance from the Wisconsin Coastal Management Program, two
                  boardwalks were completed for public use.    The first one is located
                  at Prentice Park; the second is at Memorial Park.       Both obardwalks
                  are part of the lakeshore trail system and both consistute improved
                  public access.


                  INTENT    Improved public access by bicyclers and pedestrians will
                            allow more participation by residents and tourists alike.
                            An oreganized trail system has been planned to stretch the
                            length of the waterfront and two of the seven segments
                            have-been developed.       The pedestrian trail should be
                            Isigned and a walking trail guide developed.


                            At present no designated bicycle path exists in the
                            waterfront area or in any other part of the City.     Cycling
                            has been growing in popularity by leaps and bounds.
                            Existing low volume, paved streets could be designated,
                            striped and  signed as bicycle routes. At a minimum, these
                            routes could connect the City waterfront parkls.


                            The Chicago   and North Wes  tern tracks, abandoned during
                            1981, offer  an excellent opportunity for non-motorized

                            access between Prentice Park and the Waterfront.
                            Development of this segmen  t of trail should be the next
                            phase competed.








                  Street and Highva'y Access


                  U.S. Highway 2 serves as the waterfront's southern boundary inmost
                  areas.   The highway is four traffic and two parking lanes wide and
                  forms a barrier that separates the waterfront from the rest of the
                  community.   Several local streets are north of the highway in t          he
                  central part of the City.        Highway 2 is the major access route to

                  all waterfront prop'erty.


                                           I '?
                  INTENT     U.S. Highway 2 is the most important transportation route
                             for Ashland and the surrounding area.         Maintaining the
                             integrity of this route is critical.      It is not the intent
                             of this plan to interfere with this highway or any other
                             vehicle mode.   The intent is to look for easier ways to
                             access the waterfront; pedestrians, bicycles and vehicles
                             must cross U.S. Highway 2 in order to gain access from

                             business in the Central Business District and the rest of

                             the City.    The waterfront and the Central Business
                             District must be integrated with each other.


                  POLICIES   1)   Continue implementation of Ashland's lakeshore trail
                                  plan.   The trail can be divided into nine segments,
                                  two segments are complete. At a minimum one segment
                                  should be completed each year.


                             2)   Designate bicycle trails that permit access to the
                                  waterfront and public parks.


                             3)   Provide signage and appropriate marking for both
                                  trails.   Prepare an interpretive       brochure for the
                                  walking trail.        A


                             4)   Highway 2 must continue to provide for safe, efficient
                                  and economical movement of people and goods.








                            5)   The waterfront and the rest of the City must be
                                 integrated with each other.        Explore reasonable
                                 methods to permit safer crossing of Highway 2. At a
                                 minimum pedestrian crossings should be painted and
                                 pedestrian warning sign.s should be installed.
                                 Separated 'pedestrian crossing should be considered.


                                 Aestfietics, Views, Vistas, Landscaping


                                           , I
                                 Excellent   views of Chequamegon Bay's shorelifne,

                                 Washburn and LaPointe are available from various

                                 points along Highway 2 and the shoreline. These views
                                 are enjoyed by community residents, travelers and
                                 tourists.   These views play an important role in the
                                 qualit'y of life for residents and offer a quality
                                 experience for visitors.



                  INTENT    Numerous views across the water must be maintained to the
                            greatest extent possible.       Existing views should be
                            integrated into new developments wherever possible.
                            Development should be located on relatively large parcels
                            so vistas using side yards can be maintained.       Side yards
                            should be open to allow views of the Bay.     Development or
                            redevelopment should be compatible with the character of
                            surrounding uses. Excessive height should be avoided.
                            Building heights should be consistent with surrounding
                            structures in order to maintain design consistency and
                            small town flavor.      Development should be encouraged on
                            the south side of the Highway where waterfront parcels are

                            narrow



                  POLICIES 1)    Emphasize waterfront views from Highway 2, prks and.

                                 shorelfine areas.


                            2)   Maintain the aesthetic quality of municipal and vacant
                                 lands along thenorth side of the highway. Simple
                                 maintenance efforts such as gross cutting, weed
                                 removal and painting should be encouraged.










                               Encourage development on the south side of Highway 2
                               where such development is able to take advantage of
                               Cheuamegon Bay vistas.


                          4)   Locate buildings and other structures in a manner that
                               permits existing views to be maintained to the maximum

                               extent possible.


                          5)   Encourage structural design that is consistent with
                               surrounding uses and design that respects the marine

                               and historic nature of the waterfront.



                          6)   Development, redevelopment or redesign should consider

                               public and residential views and vistas available to

                               the motoring public.

























                                                   A


















                                                                                                          DATE- DUE




















                                                                                       GAYLORD No. 2333                                 PRMTED IN U.S.A.































                                                                                               3 6668 14108 1978