Green Bay Wisconsin comprehensive waterfront plan 1995

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

_GREEN BAY WISCONSIN
*e COMPREHENSIVE
WATERFRONT PLAN
t 1995

'Dog
S~~~~
S~ i ~.

PARTICIPATING COMMITTEES AND STAFF

Mayor and Common Council

Samuel J. Halloin, Mayor
Larry Adams
Eugene Schmitz
Darlene Marcelle
Anthony Theisen
Gary Vanden Busch
Daniel Haefs
Mark Berndt
Hans Regnier
Guy Zima
Timothy Hinkfuss
Roger Vander Leest
Terry Skarda

Green Bay Plan Commission

Gerald Van Den Wyemelenberg, Chair
Jay Hamann, Vice-Chair
Terry Skarda
Dale Wiley
Rob DeWane
Richard Nelsen

Green Bay Park Committee

Anthony Theisen
Larry Adams
Gary Vanden Busch
Hans Regnier

Green Bay Planning Department Participating Staff

B.F. Paruleski, Director
Dale Preston, Principal Planner*
Noel Halvorsen, Planner
Mark Steuer, Cartographer*
Roger Anderson, Project Planner*
James Schlies, Economic Development Coordinator
Adrienne Grun, Graphic Artist
Anne Monday, Executive Secretary*

Green Bay Park, Recreation and Forestry Department Participating Staff

Bill Landvater, Director
Jim Robertson, Principal Landscape Architect*
Joe Webb, Senior Landscape Architect
Pam Warren, Associate Landscape Architect

*Lead Staff

ACKNOWLEDGEMENT

Funding of this project was made possible through a grant provided by the National
Oceanic and Atmospheric Administration's Office of Ocean and Coastal Resource
Management. The Coastal Management Section of the Wisconsin Department of
Administration administers the Wisconsin Coastal Management Program.

* ~~~~~The Wisconsin Coastal Management Program (WCMP) was established in 1978 to direct
comprehensive attention to the state's 820 miles of Lake Michigan and Lake Superior
coastline. The WCMP analyzes and develops state policy on a wide range of Great Lakes
issues, coordinates the many governmental programs that affect the coast, and provides
grants to stimulate better state and local coastal management. Its overall goal is to
preserve, protect and develop the resources of Wisconsin's coastal areas for this and
* ~~~~~succeeding generations.

Cover: "The Pride of Baltimore" entering the Green Bay Harbor, August, 1 993, Photo
by Joseph Webb.

TABLE OF CONTENTS

PA GE

I. INTRODUCTION .9............................9

A. Purpose ...............................11
B. Historical Background .........................12

II. TRENDS IN WATERFRONT PLANNING . . . . . . . . . . . . . ...... 14

A. Waterfront As A Valuable Resource .. . . . . . . . . . . . . . . 16
B. Key Elements In Waterfront Planning . . ............. . 17
-Public Access . . . . . . . . . . . . . . . . . . . . . 17
-River Park Way System . . . . . . . . . . . . . . . . . . . . . . . 1 8
-Community Economic Development . . . . .. .. . . . . . .. 18
-Central Business District Revitalization ................ . 21
-Tourism . ..............................22
-Urban Design ............................ 23
-Special Features ........................... 24

III. PROBLEM ASSESSMENT ........ . .. . .........28

A. Waterfront Survey Summary . . . . . . . . . . . . . . . 30
B. Inappropriate Waterfront Development ................33
C. Limited Public Access ......... . ............ 34
D. Limited Waterfront Recreation .. . . . .. ........ 34
E. Lack Of Public Awareness Of The Importance Of
Urban Waterfronts . . . . . . . . . . . . . . . . . . . . 35
F. Poor Physical And Visual Orientation Of Development
Along The Waterways .......................36
G. Lack Of Visual Access To Waterfront Areas ............36
H. Bridge Related Problems .......................36
I. Environmental Health Problems .. . . ...... .......36

IV. ECONOMIC IMPACTS OF WATERFRONT DEVELOPMENT, A LOOK
AT OTHER WISCONSIN COMMUNITIES ................. 38

A. De Pere ...............................40
B. Manitowoc ..............41
C. Other Areas ...........................42

V. GENERAL RECOMMENDATIONS . .............44

A. Goals And Objectives ........................ 46
B. Pedestrian/Bike Trails ..................... 46
C. Railroads. ............... . 48
D. Bridges ...............................49
E. Buildings and Structures ........ . ............ 49
F. Parking Lots .. . . . . ............49

PA GE

G. Signage/Logo. ........................... 50
H. Landscaping .......................50
I. Zoning And Other Land Use Controls ................. 50
J. Special Activities .50
K. Waterfront Development Management ................ 52
L. Parkway Category Clarification .. . . . . . . . . . . . . . . . . . 52

VI. DETAILED PROPOSALS FOR STUDY AREAS (SEE PLATE 4
FOR LOCATIONS) . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

A. Study Areas ............................56
-Study Area #1 - Maps 1-2
-Study Area #2 - Map 3
-Study Area #3 - Maps 4-7
-Study Area #4 - Map 8
-Study Area #5 - Maps 9-12
-Study Area #6 - Maps 13-14
-Study Area #7 - Map 15
-Study Area #8 - Maps 16-18
-Study Area #9 - Maps 19-22
-Study Area #10 - Maps 23-30
-Study Area #11 - Maps 31-33
-Study Area #12 - Maps 34-37
-Study Area #13 - Maps 38-41
-Study Area #14 - Maps 42-44
B. Maps (1 Through 44) ........................77

VII. IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . 126

A. Management . . . . . . . . . . . . . . . . . .. . . . . . . . . . 128
B. Management Criteria .............. .....129
C. Land Use Controls . . . . . . . . . . . . . . . . .. ....... 129
D. Land Acquisition .......................... 130
E. Funding Sources . .................130
F. Incentives . . . . . . . . . . . . . . . . . . ... 131

VIII. APPENDIX . . . . . . . . . . . . . ................. 134

A. Glossary Of Related Terms
B. Recommended Maintenance For Conservancy Areas
C. Shore And Stream Development Controls By The City I
Of Green Bay
D. Pubilic Use Policy For City Of Green Bay Parkways On
The Official City Map
E. Broadway Development Plan
F. Renard Isle Future Land Use Plan
G. Brown County Bicycle/Pedestrian Plan
H. Park, Recreation And Open Space Plan

* ~~~~~~~~~~~~~PLA TES

PA GE

1. Street End Park Designs ......................... 19

2. Parkway Cross Sections. ........................20

3. Major Trail Systems . .........................47

4. Key to Study Area and Individual Maps. .................79

5 . Overall City Waterfront Plan. ......................124

9~~~~~~~~~~~~~~~~~~~~~~~~~~

Introduction

I. INTRODUCTION

A. PURPOSE

* ~~~~~The waterfronts of Green Bay have historically been areas of work and industry. The use
of economical water transportation for goods was a vital key to the development of the
Green Bay area. Paper manufacturing, the main industry in the Green Bay area, developed
here because of its need for water. Water was required for the transportation of raw
materials (i.e., logs rafted together) and is required for the manufacturing process and
finally for the transportation of finished products. Many other water related industries
* ~~~~~such as ice harvesting, logging and commercial fishing that were once vital to the area's
economic and social life have since declined or disappeared.

With the lessening of importance of water as a resource for industry and transportation,
the need for industry to be located on the water has also decreased. These factors, along
with the gradual pollution of our waterways in the past, have been significant factors in
* ~~~~~the neglect and decay of area waterfronts.

We have seen in the past how the public, business, industry and municipal government
had treated our resources with neglect and disrespect resulting in polluted waters and
severely deteriorated waterfronts. In more recent decades, business and industry, as well
as local government and the public, have realized the value of our environment and its
* ~~~~resources and have come to respect them. No longer are we allowed to send untreated
waste into the rivers and Bay. Many businesses, industries, and municipalities which use
our waterways are filtering and treating the water to the extent that when it is returned
to the waterway, it is cleaner than before it was extracted.

Today the economy of Green Bay is far less dependent on the waterfront for its economic
* ~~~~~health. We are changing our point of reference relating to water resources. In the past
they were looked upon as mainly industrial assets. In the past ten years we have made
great strides and much progress with respect to cleaning up our waterways and our
waterfronts. Now we are viewing them from a variety of perspectives including
recreational, environmental, commercial, residential, and industrial.

* ~~~~Today our focus has turned toward the water and water space as a positive and very
important multi-faceted resource. Crumbling deserted buildings and non-water related
industries that had once been located on the waterfronts have been and are being replaced
by open space, trees, grass, and pedestrian walkways, Commercial, office and residential
buildings are being built set back from the water's edge, yet focusing on the waterfront.
This type of development allows for maximum public use while benefitting the economy
* ~~~~of the city and community.

The restoration of our waterfronts with open space, greenery and natural vegetation,
encourages broad public access and makes Green Bay a more attractive and desirable
place to live and work. This helps guarantee that Green Bay maintains the stable
economic atmosphere that attracts new business and enterprise, while also continuing to
support those that already prosper here.

Many communities across the country with new waterfront developments have seen a
very significant impact on the local economy in the form of new business and industry,
increasing recreational activities, tourism, civic pride, and job creation. The City'of Green
Bay has made much progress in this respect, but we must not stop here. We must
continue to push forward to stay competitive and insure the area's future economic
security and growth.

B. HISTORICAL BACKGROUND

Jean Nicolet was credited in 1634 with being the first white person to visit the area that
would later be known as Green Bay. He had hoped to find China, but instead he found the
rivers and the Bay of Green Bay that one day would become a major transportation link on
the Great Lakes. This waterway link to the rest of an emerging nation attracted the early
settlers, explorers, missionaries, hunters and trappers, by whom the city was built.

As one would have expected, the Bay has changed substantially since Nicolet's time. The
settlement has grown to a city of 100,000 people in 1994, within a metropolitan area of
a quarter of a million. The individual activities of hunters and trappers have given way to
large scale commercial and industrial activities.

The Fox River has long been touted as the paper capital of the world because of its having
the largest concentration of paper manufacturing companies in the world. The Port of
Green Bay has grown up around the paper industry, as well as other light and heavy
manufacturing industry, and is considered the third largest port in Wisconsin, behind
Superior and Milwaukee.

The port is also international in nature due to the St. Lawrence Seaway's connection to
the Atlantic Ocean. In 1994, the port was visited by over 175 ocean-going and Great
Lakes vessels. These 175 ships accounted for over 1.8 million metric tons of material,
with an economic impact of some sixty million dollars to the area economy (figures
provided by the Port Director).

Many of the original shoreland uses and activities which once lined Green Bay's
waterways have disappeared. Other uses once vital to the community's economic and
social life are in decline today. Some have gone from prime assets to being viewed as
liabilities in terms of present community needs. Some have changed to the point where
waterfront location is irrelevant or certain potential new uses have a higher priority today
and would bring more benefits to the community than the older ones. For whatever
reason, these outdated uses have sometimes prevented other more necessary or desirable
uses from being established or built.

The outdated land uses often result in severe effects to the waterfront areas. These could
be categorized as:

Environmental Quality

Expansion and industrialization has affected environmental quality noticeably. Pollutant
and wastes were dumped into the water, while rapid urbanization has increased storm
runoff, erosion, sedimentation, and flooding and drainage problems. Human sanitary
disposal systems, both local and upstream, have compounded the damage.

Physical Alteration

Extensive channel dredging, bank filling, and stabilization and widening of channels has
taken place. Today dredging is only allowed for shipping channel maintenance. The safe
deposition of dredged materials is an on-going environmental concern and is highly
regulated.

* ~~~~~Succession of Water Functions

The early functions of our urban waterfront was for basic shipbuilding, commerce,
transportation and commercial fishing. Recreation was not even a secondary function
then. It was assumed that the undeveloped waterfront provided adequate open space for
its citizens' health and recreational needs. However, industrial uses and railroad yards
* ~~~~~soon covered the waterfronts, monopolizing them, prevailing other purposes. Often a
single special use such as paper making would expand at the expense of all other
functions, taking over whole sections of the waterfront. If the waterfront facilities
became inadequate or outdated for the original purpose, non-water related industry such
as warehousing or vehicular parking often took its place.

II. TRENDS IN WATERFRONT PLANNING

A. WATERFRONTS AS A VALUABLE RESOURCE

Water in an urban setting can often be a mixed blessing. On one hand the water quality
of urban rivers and streams is often quite poor, which prevents people from using the
shoreline areas. It can be that a river running through a city will divide it geographically,
socially and economically. Then there are the practical physical problems such as
connecting one bank to the opposite side. On the other hand, if water and the waterfronts
are properly utilized, they will provide a wealth of social and economic opportunities,
*()~~ ~which in turn will add greatly to the quality of city life. The recent advance in recognized
good waterfront planning principles show that waterfront areas can help reverse the trend
of inner-city decline. Waterfronts can actually become the major focal point for city-wide
rejuvenation when they are coupled with urban and downtown revitalization efforts.

It is also quite clear that no plan to creatively and successfully reuse an urban waterfront
can by itself overcome poor water quality. The perception of a city's riparian resource will
ultimately determine whether or not redevelopment efforts will continue.

The Fox River bisects the City of Green Bay and to some has actually created separate
communities. Problems of transportation have been caused by the presence of water,
hindering the paths of transportation networks within the city. For decades the water
*6~~~ ~quality of the area's rivers and Bay have been very poor. The years of unchecked pollution
and neglect can be seen in the toxic polluted sediments of the area's waterways. The
more recent efforts toward clean-up of the area's waterways has been very positive but
is not complete.

The many years of efforts to clean our waterways is now starting to pay dividends. The
city and its citizens are now looking at the water as a valuable resource rather than a
liability. The area's water quality has improved greatly. Land values along the shore that
had for many years been stable have now increased again. The city is looking at the
waterfront as an asset which must be protected and utilized for the greater good of the
community.

*()~~ ~There is still no swimming allowed at Bay Beach, but now there is hope for the future.
The following is a quote from Chet Miller, Green Bay's retired Director of Parks and
Recreation regarding the future of natural swimming at Bay Beach Park: "I see in the future
the return of natural swimming in the Bay. If I were to predict a time, probably the Year
2010. This may be good news to some but a long time to wait for others. What this does
show is that we are moving in the right direction." Water quality, clarity and bottom
materials will have to improve substantially for this to become a reality.

Today the waterfronts of Green Bay are considered by most people to be an extremely
valuable asset that should be preserved to strengthen Green Bay as a living and working
place. Waterfronts in this area and around the nation are utilized in attracting tourists,
visitors, students and shoppers, as well as new business and industry. In this effort, the
Green Bay waterfront resources need careful planning and consideration of their best use

before development or redevelopment takes place. Much more can and should be done
to wisely and properly utilize this asset. The revitalization of our city's waterfronts could
be the significant factor needed to make Green Bay the leader again in our region.

If the City of Green Bay hopes to continue to grow and prosper, it must provide the
amenities and social offerings that equate to a high level of "Quality of Life". The "Quality
of Life" is best explained as the amount and quality of the facilities and amenities a city
offers its residents. This includes:

a. Good employment opportunities for life-long careers.

b. Safe and well-maintained neighborhoods.

c. Good primary and secondary schools.

d. A quality university and technical college system.

e. Good transportation facilities.

f. Cultural offerings.

g. Recreational activities.

h. Amenities including a quality park system, urban green space, museums and libraries.

The "Quality of Life" factor is just as important as a good business climate in terms of
expanding and/or attracting new businesses and people to Green Bay.

One of the most important goals of this plan is to present new ideas to the city residents
about the kind of future Green Bay should be pursuing for its waterfronts. As a medium-
sized industrial city and a Great Lakes port, its past history has been written in terms of
manufacturing, paper making and shipping. This economic focus has been rewarding, but
waterfront use needs to be shared with other uses in certain areas. The future is not
clear, given the currently changing conditions which will have an effect on those activities
and waterfront usage in general. The city is faced with choosing a new path. Water and
waterfronts should play a prominent part in that choice since water represents Green Bay's
most significant natural resource.

B. KEY ELEMENTS IN WATERFRONT PLANNING

Public Access

Public access has proven to be the planner's general solution to many of the waterfront
problems. Waterfronts originally had been dynamnic, people-oriented places of spontaneous
visual, sensory chaos, bustle and excitement where many activities took place
simultaneously. However, over time, public access was lost as more and more single-
purpose uses covered the waterfronts. Today, as the old uses fade, planners are
rediscovering the principle that providing pedestrian access brings people to the water and

brings them to shop, to work and to recreate too. This is the essence of what developers
and planners have done on waterfronts across America. They have given people
substantial access and recreational and economic opportunities by the careful reuse of old
urban waterfronts.

* ~~~~~Where only limited access is available through the use of street rights-of-way, the
development of street-end parks can often serve the public needs (see Plate 1).

River Parkway System

The linear parkway carries people along the water from residential neighborhoods to parks,
* ~~~~~to nodes of urban activities, or to business districts. In this way the park/parkway system
helps to provide an urban link to social and economic activities happening in the Central
Business District or elsewhere in the city. The parkway provides the public a safe and
pleasurable place to walk, run, or bike. This in turn helps promote physical health and well
being, as well as an ecological alternative to the automobile as a mode of transportation.
This trail system that provides the transportation route should be wide enough and smooth
* ~~~~~enough for safe and efficient travel. It is not necessary that the entire area be paved but
a reasonable portion should be constructed with a firm, stable and slip resistant surface
to provide for handicap access. In locations where high usage could be expected, the
initial design should allow for possible expansion to two lanes; one for foot traffic only and
the other for bike and roller blades (see Plate 2).

* ~~~~~Large scale green spaces or parks are necessary within this system in some places
because many of the activities that will take place at these waterfront parks will draw
great numbers of people, particularly when these events are properly managed and
promoted. Activities should be held frequently. Events that are currently being held on
an annual basis in Green Bay include Fourth of July, Artstreet and the Holiday Parade.
Events that could be held to attract visitors and encourage residents to recreate in Green
* ~~~~~Bay include outdoor music festivals, water ski exhibitions, car shows, small watercraft
races, and various food or ethnic festivals, etc.

Economic Development

Where waterfronts are concerned, public access works hand in hand with economic
* ~~~~~development and revitalization. People are fascinated by water and by the novel
atmosphere it helps to create. Planners and developers are recognizing this and are
moving to take full advantage of this fact. The combination of public access, facilities,
and amenities can and will attract large numbers of people. These people work, recreate
and purchase goods and services which provide business opportunities, jobs and property
taxes.

1~. R .W 60"RO

D.
150'* R.0. W. 60' .OW

PLATE 1PLAN VIEWS
Scale. 1"=40' Street End Park Designs

, 10 ft
SJ

~~~-JY
PEDESTRIAN/BIKE TRAIL RIVER WALK

-'';'..I' � -

STREET END PARK

0 ~ *

URBAN PARK

PLATE 2 CROSS SECTIONS
Potential Parkway Designs

Central Business District Revitalization And The Need For Centrality

Many, if not all cities which have been successful in waterfront redevelopment have found
that the city's central business districts were located on or adjacent to the waterfronts.
They were often in a state of decline due to changes to lifestyles, work and recreation
habits, and suburban competition. Through waterfront revitalization efforts these areas
have prospered bringing economic health to these waterfront areas and the community at
large.

The heart of any city is its central business district. The central city is a focal point which
brings people and activities together. It creates the diversity of urban occupations,
opportunities, and lifestyles that make up city life. Central business districts or
"downtowns" are the necessary central location where most government, commercial and
retail activities take place. The central city is also where our greatest social and cultural
facilities are usually located. Why? One reason is that there are significant economics of
scale which require that a museum, a library, or a seat of government be as centrally
located as possible so that it is as accessible as possible to the largest number of users.
The total infrastructural investment that communities have made in central business
districts throughout America is staggering. It simply cannot be left to deteriorate.

Those cities whose central business districts border on waterfront areas have helped
themselves greatly by using the waterfronts as a means of providing people with broad
public access and a number of amenities. Parkways, paths, and riverfront parks have
provided linear access along the water's edge and have provided the linkages for
pedestrian movement to and from the downtown area. This connects the residential
neighborhoods with the downtowns and helps to provide ties between the citizens and
their social, cultural, governmental and commercial institutions. Sheboygan, Racine, De
Pere and Manitowoc are some excellent examples of cities whose waterfront restoration
has done this. This activity in turn has also precipitated restoration, improvements and
growth of the adjoining areas. Nationally there are hundreds of examples.

Waterfront and central business district rejuvenation offers other real benefits to the
community. Perhaps the greatest is increased civic pride. A cleaner, more beautiful
central business district, tied to the unique atmosphere that a waterfront creates, has
often led the city's residents to a boastful yet justified pride over the looks and
accomplishments of their respective cities. Simply put, the people feel a lot better about
the place they live in than they did before.

Great strides in the area of waterfront restoration have already taken place. Green Bay
has a small marina located at Admiral Flatley Park, and several waterfront pedestrian
pathways have been built downtown.

The long proposed Broadway Redevelopment Plan, with its pedestrian pathways and open
space areas, has been approved. Merchants are returning to Washington Street. Hotels
and a new conference center has been built. Businessmen and merchants alike are now
turning to the central business district because of the improved economic and social
opportunities that is in great part due to the restoration of the waterfronts. New social

and cultural facilities are planned to meet the citizens' renewed demands. The central city
is coming alive again and is now a place visitors will want to see. Residents will use their
downtown more often as its vitality is restored.

Tourism

In conjunction with waterfront revitalization and central business district renewal, tourism
now becomes a more practical and profitable activity. There are new and vigorous
businesses to draw customers. There are new social and cultural facilities to augment
recreational pursuits, and there is the fascinating atmosphere of a wide range of activities
*I)~~ ~set against the unique characteristics of the urban waterfront.

Tourism is presently not as significant a factor as it should be in the economic or social
aspects of Downtown Green Bay and its central business district. Proper use and
revitalization should lead to a social and business climate that people outside of Green Bay
would want to experience. This area already has a number of noteworthy tourist
attractions; the Neville Museum, Heritage Hill, the Packers, the Packer Hall of Fame and
Lambeau Field, and the Bay Beach/Wildlife Sanctuary Complex, which provide recreation,
social, cultural and environmental education opportunities to residents and visitors alike.

However, Green Bay can and should do much more to utilize the economic opportunities
inherent in successful waterfront redevelopment, particularly in the area of tourism. At
present, the Chamber of Commerce, the Green Bay Area Visitor and Convention Bureau,
the downtown hotels in the central business district can point to only a few facilities
located on the water's edges that provide any incentive to people to visit downtown Green
Bay. The central city has in recent years increased its waterfront public access with the
building of the marina and shoreline amenities such as Veterans Parkway, Admiral Flately
Park and the Fox and East River Parkways. These green spaces, pathways and riverfront
parks should be expanded and improved so as to provide facilities to accommodate our
local needs as well as provide activities which draw larger numbers of visitors.

Many tourists now pass through or near Green Bay on their way to Door County or to
north central Wisconsin. The expansion of the riverfront parkway and open space system,
combined with numerous large scale planned recreational activities, would bring additional
visitors and tourism to the city, as well as encourage area residents to recreate locally.
It is important that this entire visitor/tourist issue be examined in depth to see what Green
Bay's potential is and to see what other cities are doing in these areas in order to stay
competitive.

The following list of facilities, located on and oriented toward the water would greatly aid
Green Bay in becoming a major destination or stopover for the visitors/tourists. Some are
already provided.

a. Riverfront and Bay front parks with convenient parking and picnic areas.

b. Linear pedestrian paths (with pedestrian/bicycle trails) along with landscaping and
lighting.

c. Street-end parks, pedestrian overlooks.

d. Future swimming areas.

e. Ship loading/unloading overviews areas.

f. Cultural, educational and scientific facilities.

g. Fishing piers.

h. Large boat launching/mooring facility.

i. Boat docking facilities at selected locations in the central business district on the east
and west banks of the Fox River and on the East River,

j. Restaurants and outdoor cafes.

Continued effort and construction should be done to link the city's major social and
commercial facilities to the waterfronts. Limited connections currently exist between the
city's waterfronts, Port Plaza Mail, central business district hotels and hotel/Conference
Center and the east and west side business districts. Pedestrian pathways, green spaces
and amenities, boat docking, fishing piers and pedestrian overlooks are techniques used
to provide public access to virtually every waterfront city with a healthy tourist industry.
The City of Green Bay should continue to make strides in these same areas.

Urban Design

The termn "urban design" is used by planners and design professionals to describe the
process of understanding and solving the physical problems of the city. "Good" urban
design is the process of making a community's environment beautiful and inspiring, as well
as functional and efficient.

Urban design is ultimately concerned with the spatial layout of the urban area, the
orientation of buildings and open spaces, and presence of green spaces and plantings, and
one of pedestrian comfort. It is these elements and so many more which combine to give
a city its levels of comfort and its aesthetic appearance.

Most people do not consciously think about spaces or places in terms of "comfort levels"
or "aesthetic appearance", as design professionals do. But how people think and feel
about a space or place, how they perceive its scale, the materials used and amenities
provided, determines whether they like it or not, and whether they will use it or not.
People actively seek to avoid using those spaces or places that they perceive as being too
light or too dark, or too noisy or too quiet. They also shun spaces they perceive to be

unsafe or physically uncomfortable. On the other hand, safe spaces that are comfortable
to walk through, that are usually exciting and pleasing to the eye, and that have pleasant
amenities like running water, greenery and furniture, are spaces people will seek out and
use time after time. Good urban design then is a space, a building or a structure that not
only functions well but also looks good and is a pleasure to use. Because people enjoy
0 ~~~~~using these kinds of spaces, buildings or structures, they carry a positive image of the
times spent there. They will actively seek to return for more of the same enjoyable
experiences.

It is important to remember that the equation planners adhere to today regarding urban
waterfronts is that good urban design equals public access equals community
* ~~~~~development, economic revitalization, increased civic pride plus improved environmental
health.

Special Features

Green Bay's vast water resources have a great but undeveloped recreational potential.
* ~~~~~Limited facilities currently exist in the city for those actively using the water for leisure-
time purposes. The city's Metropolitan Boat Launch located at the mouth of the Fox River
and the marina located at the Holiday Inn City Centre have allowed active water access,
but the predictions for future growth in this area warrants further expansion and
improvement. The number of available boat slips offered at the city's marina is small, and
with projected growth of the boating population, the time is now to plan for the needed
* ~~~~~expansion.

WISCONSIN BOAT REGISTRATION - 1993
BROWN, DOOR AND OCONTO COUNTIES

Outboards Sail Inboards Totals

Brown
County:
15,555 363 3,011
Original
(Individual) 60 10 7
Fleet 15,615 (82%) 373 (2%) 3,018 (16%) 19,006
Totals (100%)

Door County:

Original 2,620 186 953
(Individual)
Fleet 221 56 37
Totals 2,841 (70%) 242 (6%) 990 (24%) 4,073
(100%)

Oconto
County:
4,352 38 307
Original
(Individual) 85 0 1
Fleet 4,437 (93%) 38 (1%) 308 (6%) 4,783
Totals (100%)

********************************************* ********* ***********1*

Rate of Chance: Brown County and Wisconsin

Brown County Percent Wisconsin Percent

1980 Boats 13,677 422,325
1993 Boats 19,006 +39 471,801 + 12

1980 175,280 4,705,642
Population 198,686 + 13 5,020,994 + 7
1993
Population
Source: Wisconsin Department of Natural Resources, 1993 (Boats).
Wisconsin Department of Administration (Population).

Compiled by the Green Bay Planning Department, May 1994.

First it should be noted that most watercraft owned by local residents are not yachts.
Most are used for pursuits necessitating a boat such as fishing, family outings/picnics,
sailing, etc.

Other facts help to put the marina issue into a more objective perspective. For example,
Wisconsin has 4.6 percent of the nation's boats but only 2.0 percent of its population. We
are, on average, over twice as likely to own boats than anyone else in the country. Boating
is not a luxury but a common activity in water-rich Wisconsin where about 26 percent of
the population boats in some way. In 1993, Brown County residents registered 19,006
* ~~~~~boats, which is about one boat per four households. Expanded public marina facilities
would mean more recreational and economic opportunities for the city and make Green Bay
a better place to live.

Boating facilities, in adequate numbers offered with the proper amenities, will attract
boating tourism and will help encourage the local boating residents to recreate locally.
* ~~~~~When the marine facilities offered here are not adequate, the boater will seek their water-
based recreation elsewhere. Not only is the city losing its own taxpayers' money, it is also
losing potential of tourist dollars. Green Bay's nearness to Door County means that
hundreds of vacationing boaters are within a few hours of our city. We have seen the
benefits the marina and launch facilities have brought by analyzing the use of present
facilities and past usage. The Holiday Inn City Centre is renting transient boat slips and
rooms to boaters from Door, Marinette and as far away as lower Michigan on a regular
basis. According to current management of the Fox River Marina (City Centre), the number
of transient boat slips at the marina is not adequate for the demand on weekends.

Green Bay and cities across the country with urban waterfronts have found public marinas
to be necessary, and often crucial to economic development. Taxpayers have realized that,
emotions aside, a marina is just like any other business or industry. It creates jobs that
generate salaries and it pays property taxes.

26r

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Problem Assessment

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III. PROBLEM ASSESSMENT

A. WATERFRONT SURVEY, GENERAL RESULTS AND COMMENTS

0 ~~~~~1994 Comprehensive Waterfront Plan Survey was distributed as follows:

1. Was published in the Green Bav Press Gazette on Tuesday, May 10, 1 994.

2. Was distributed to local businesses and community facilities.

0 ~~~~~3. Was distributed to some local business associations at various noon luncheons or
meetings.

The survey forms were distributed from early May through June 1 5. The cut off date,
return and inclusion of data to be tabulated was July 21, 1 994. The number of surveys
returned at that time was 513. The number used for tabulation was reduced by 14 due to
0 ~~~~~significant data missing. See Appendix for example and full results.

The percentages of responses to each question is noted on the survey form included in this
plan. Summarization and comments to survey questions will be listed in the order given
in the survey, All survey questions will not be commented on.

* ~~~~~Question 1 - Are you a resident of the City of Green Bay? If not, what community?

Question 2 - Do you work within the city limnits?

Question 3 - What is your age?

* ~~~~~Those responding to survey were mostly City of Green Bay residents who work in Green
Bay and are between the ages of 36 and 55.

Question 4 - Should the city encourage beautification of privately owned waterfront
properties?

* ~~~~A vast majority of respondents felt that the city should encourage privately owned
waterfront property owners to maintain and beautify their waterfront properties. Written
comments included statem'ents to the effect that the city should regulate and control the
aesthetics of shorelines on both public and private lands.

Question 5 - Do you think the City of Green Bay is making proper use of its waterfront
* ~~~~resources?

This question is probably the most significant of the whole survey. The results state that
over 80 percent of the respondents feel that the city is not making proper use of its
waterfront resource.

Question 6 - Would you like to see more public access to the city's waterfronts?

The 89 percent yes response to this question clearly states that the public needs more
public access to the area's waterfronts and waterways.

Question 7 - Would you like to sea more pedestrian/bicycle paths developed along
waterfronts?

Question 8 - Would you like to see more waterfront areas for environmental and passive
recreation purposes?

Question 9 - Do you presently use existing pedestrian/bicycle paths along the Fox or East
Rivers?

Question 10 - Do you feel these pedestrian/bicycle paths should be interconnected with
city parks and other major areas of the city?

Question 1 1 - If paths were expanded and interconnected, what would you use them for?

Question 12 - How many times per month would you use expanded and interconnected
pedestrian/bicycle paths?

Question 13 - Do you use existing public parkways along waterfronts?0

The combination of overwhelming response to Question 6 and the Answers to 7 to 13
point out that the city should expand existing and plan new and interconnected
pedestrian/bike trails within the metropolitan area.

The topic of pedestrian/bike trails brought many comments. The public seems to have
stated that they want the city to expand and develop trails for both recreational and
transportation purposes. The percentages given for Question 1 1 show only two percent
of those surveyed would use trails as a transportation route is misleading. The key figure
here is the 32 percent which would use the trails for both recreational purposes and
transportation. It is also noteworthy that 78 percent of those responding to Question 12
say that they do use existing trails.

Question 14 - Do you own/have use of a boat or water vehicle?

Question 15 - Do you use local waterways for fishing?

Question 16 - How often do you use a watercraft per month?

Question 17 - How far (miles) do you travel to use the waterfront?

Question 18 - Do you use the city metro boat launch?

Question 19 - Do you use or have you used the city's marina (located at Holiday Inn City
Centre)?

Question 22 - If boating facilities were improved and capacity increased, would your usage
of the area's waterfronts increase?

This group of questions are in reference to boats, water vehicles and their usage. The
number of boat owners responding to the survey is 53 percent, non-owners 47 percent.
The number of owners responding was 263. The number of boat types listed were 383,
meaning that some of the boat owners owned multiple boats.

Questions 18 and 19 had several comments stating that they did not know of the existence
or location of such municipal facilities. This points out the need by the city to publicize
that these facilities do exist and their locations. Publicizing their existence and location
would encourage their use by both residents and visitors alike. The understanding by the
general public that by having local residents and tourists using our waterways, we (the
city) benefit by increased dollars being brought to and spent in our local economy.

Question 20 - Do you believe the number of available boat slips in Brown County are
adequate at this time? Five years from now?

Question 21 - Do you dock your boat at a marina? In Brown County? If not, which
county?

The answers to these questions are somewhat misleading due to the fact that 47 percent
of those responding to the questions do not own a boat but were asked if they think the
*�~~~ ~number of facilities is adequate. The key figures here are that only 16 percent feel the
number of slips available now are adequate and only four percent feel that the number will
satisfy the need five years from now.

Question 23 - If more landings and facilities were to be built, where should they be built?

*�~~ ~Question 24 - How should improvements and expansion of boating facilities be paid for?

The location of more launch and landing facilities was about evenly distributed. It should
be noted that only four percent of those answering Question 24 believed that this type
facility should be totally privately funded and that only 20 percent felt that users should
pay the whole expense. These figures seem to indicate that the combination of public,
*�~~~ ~private and user fee type financing is the best.

Question 25 - Do you believe that the beautification and development of the city's
waterfronts would have a positive impact (i.e., more tourism, more jobs) on the
community's economy?

*()~ ~This question had the second most consistent response with 94 percent of those
answering saying yes that they believe that the beautification and development of the
city's waterfronts would have a positive impact on the community's economy. This should
be taken as a strong statement to city government to invest and develop the waterfront
for the greater good of the people and city.

Question 26 - If you could have any new facilities you wanted on our waterfronts, what
would they be?

Question 27 - Of the above, which three are most important to you.

Question 28 - Of the above, which are the least important to you.

These questions involve what facilities should or should not be developed. The most
wanted was pedestrian walkways, followed by outdoor restaurants/cafes, riverfront parks
and bicycle paths. The least important top four are facilities for roller blading, retail stores,
movie or performing arts center and swimming and water park facility.

Question 29 - Do you believe the city should acquire waterfront properties for recreational
use/environmental preservation as they become available?

To the question "do you believe the city should acquire waterfront properties for
recreational use/environmental preservation as they become available" received a 96
percent yes response. This is the most consistent answer of the entire survey. This very
strong yes response was accompanied by many comments as to missed opportunities in
the past to purchase waterfront properties. Comments such as "purchase it all", "buy it
now", "they don't make it any more" and "it will only cost more later" reflect the
sentiments of the comments concerning this question. A common theme of other
comments written was that the city should not be so afraid to invest in the future.

Question 30 - In your opinion has the water quality of area waterways in the past 10 years,
somewhat improved, greatly improved, slightly degraded, significantly degraded, no
change.

The response to Question 30 regarding the improvement of the water quality in area
waterways over the past ten years was 66 percent thought that the water quality had
somewhat improved. Written comments regarding this question usually said they saw
improvement but that much work still must be done to repair and overcome the effects of
past pollution and degradation of our city's waterway and waterfronts.

This section provides a general list of the most serious problems found along Green Bay's
waterfronts.

B. INAPPROPRIATE WATERFRONT DEVELOPMENT

The number one problem is the city's inappropriate, often unsuitable and unrelated
development of waterfront properties. Waterfront properties when owned by the private
sector are difficult to control with universal results. Zoning laws, setbacks and proposed
public parkways do offer minimal amounts of control but if the city is serious about
improving its image and waterfronts, a policy of purchasing specified waterfront properties
whenever possible or available should be made and strictly followed. Only through public
ownership of key waterfronts can the city ultimately affect how this valuable resource will
be managed. The city will not lose with such a policy. Waterfront property is limited and
when properly managed will increase in value. This also strongly influences what will

happen with the adjoining private properties. Through proper control and management,
along with ownership, the city's waterfronts will stabilize and develop for the public over
time and will ultimately impact the city overall in a very positive way.

C. LIMITED PUBLIC ACCESS

In the City of Green Bay limited numbers of public or private facilities take full advantage
of the area's waterfronts and few encourage physical access. Potential waterfront public
access is represented by city owned parks and open spaces and by street rights-of-way.
However, until these sites are linked to other open spaces, public facilities, and amenities
like paths, greenery and park benches/tables are provided, these areas will not be fully
*()~~ ~utilized by the public. There is also a distinct imbalance between the industrial/commercial
and recreational land uses found along Green Bay's waterfronts. The majority of the uses
are single-purpose; where only one activity takes place there over time. Today the trend
is for multiple uses of waterfront land since it can support large numbers of uses that occur
at different times in the same place. The city, in the past ten years, has made progress in
many of these areas as shown by the construction of the pedestrian paths along the Fox
*i)~~ ~and East Rivers on the east side and the open space with pedestrian path between Walnut
and Main (Dousman) Streets on the west side. Continued effort by the city and its
residents is needed to insure the completion of the proposed river walk system. The city's
east and west banks of the Fox River contains approximately 1 2.3 linear miles of shoreline.
Of this, about 3.4 miles is proposed for public use overall. Approximately 1.5 miles of this
is now under city ownership. This represents only one-third of the Fox River's frontage.

There is little public knowledge as to the existence of street end parks such as the one
found on Crooks Street just west of Washington Street. These public spaces are open to
the general public, but because they are not improved and identified nor linked to any other
facilities or parkways/paths, they are unknown and underutilized. The surrounding land
uses of street end parks has also often discourages active, effective, and enjoyable use.
*�~~ ~The perception people have of these spaces is that they are not really there for them to
use.

D. LIMITED WATERFRONT RECREATION

Many area residents have not become aware of how valuable the city's waterfronts are as
*�~~~ ~a resource. This, along with the limited available waterfront land, has left the city lacking
in the proper types, number and size of recreational facilities and opportunities along its
waterfronts. Specifically:

1. The limited number of large scale, quality boat launching and docking facilities for the
city's boat owners or for tourists/visitors has caused tourist and boaters to go
*�~~~ ~elsewhere and many are located south of the central business district on the Fox
River, often requiring bridges to be opened for access to the Bay.

2. Transient boaters now can use the seven slips at the marina located at the Admiral
Flatley Park, but the city needs more waterfront type businesses and activities to
draw the boating tourist. The boating tourist does not spend his/her entire vacation
*i)~~~ ~on a boat out on the water. They seek restaurants, outdoor cafes, opportunities to

listen and enjoy live outdoor entertainment, or shop within pedestrian range of the
marina. The city should encourage these visitors to come to Green Bay by promoting
Green Bay as a vacation destination worth coming to and revisiting. By providing
those visiting the city with the proper social, cultural institutions and businesses our
local economy will prosper through increased sales and business.

3. In recent years the number of facilities for the boater in Green Bay and Brown County
has increased, but according to the Waterfront Survey conducted in connection with
this report, we need more and the need will be greater five years from now based on
increased boat registrations. The limited facilities being presently offered in the city
has caused city boaters to go elsewhere. The Green Bay area is competing with other
cities in the region for boating customers. Communities like De Pere, Manitowoc,
Sturgeon Bay, Kewaunee and Door County are all part of the same "market area"
when considering the boating public. We must provide area boaters with the best
facilities we can to remain competitive. A failure by Green Bay not to provide area
boaters with the quality boating opportunities they want will lead these boaters to
recreate elsewhere. The economic benefits of these boating tourist will then be lost.

4. Limited linkages exist in terms of facilities, parkways for boaters or landscaped
shoreline between the waterfronts and such important areas of Green Bay as:

� The west bank central business district, and particularly the Neville Museum area.

� The east bank central business district, and particularly the Port Plaza Mall area.

� The East River commercial district.

� To a lesser extent, the Bay Beach Wildlife Sanctuary.

5. There are presently no city swimming facilities on any beach (river or Bay) due to poor
water and bottom quality, but with continued efforts to improve water quality,
swimming will again be possible. With the water quality continually improving, future
facilities for beach swimming should again be planned. Most local swimming in the
Bay is located at Longtail Point, reachable only by boat.

E. LACK OF PUBLIC AWARENESS OF THE IMPORTANCE OF URBAN WATERFRONTS

Public awareness as to the vital role waterfront development can play in community
economic development and revitalization is growing but the community's financial
commitment to this belief is lacking. Properly managed urban waterfronts create a unique
atmosphere which attracts large numbers of people. They come to the water's edge
because they are fascinated by the water and the many daily and seasonal special events
that are to be found there. Recreational activities such as boating, fishing and general
vacationing in this area create jobs with economic benefits just as do the city's other
leisure-time pursuits (the arts, movies, shopping, and restaurant dining).

F. POOR PHYSICAL AND VISUAL ORIENTATION OF DEVELOPMENT ALONG THE
WATERFRONTS

In the past, the buildings along main roads such as Washington, Broadway, Main,
University and East Shore Drive and Nicolet Drive which paralleled the Fox and East Rivers
and the Bay, were oriented toward the street, disregarding their location on the waterfront.
This has previously caused people to turn their backs to the waterfront and is also one
reason why so much valuable waterfront land has been under-utilized as parking lots. The
one sided street orientation of buildings is changing. Architectural plans for new buildings
along the waterfronts now often show equal amounts of thought and work going into the
*()~~ ~waterfront and street side exposures, often with physical and visual access to both
orientations. This dual orientation is combined with the 1990 zoning regulation which
requires a minimum of a 50 foot waterfront setback for all new buildings, maximum public
waterfront access, and also the potential for construction of pedestrian/bike waterfront
trails.

G. LACK OF VISUAL ACCESS TO WATERFRONT AREAS

The number of significant visual locations from which the waterfront can be seen is very
limited. The best of these vantage points is probably brief and limited by car from any of
the eight bridges which cross the Fox (four) and East (four) Rivers. The next best vantage
point might be as a pedestrian, from Admiral Flatley Park, the central business district's
river walk and from the Neville Museum facing Port Plaza. But pedestrians would find that
there are many existing barriers in the form of nearby buildings, storage, and overhead
telephone and power wires.

H. BRIDGE RELATED PROBLEMS

Bridges are very important to Green Bay since they connect our city over the two main
rivers. They are also excellent landmarks and edges which help people to orient
themselves to their locations. The bridges bring people into very close proximity with the
waterfront sights and activities. The views seen from the area bridges and the adjacent
waterfront areas will create lasting images as to the kind of community that Green Bay is.

From an urban design standpoint, the views from Green Bay's bridges are sometimes not
0�~~ ~very flattering. Efforts must be made to improve the stark industrial, back side image that
one is sometimes given as one crosses the water. Bridges are landmarks, edges, which
should display a positive environment.

I. ENVIRONMENTAL HEALTH PROBLEMS

*�~~ ~A number of key environmental elements are missing from Green Bay's waterfronts. For
example, concrete riprap line many banks in place of natural vegetation, while other spots
are completely bare. Concrete riprap are not now acceptable for use in waterfront
stabilization. Natural stone or other commercial products are now required for shoreline
restoration. The roots of grasses and other natural shoreline vegetation help to stabilize
the banks and minimize erosion and sedimentation which are significant environmental
*�~~ ~problems. Green strips, like the existing and proposed parkways and parks, act as a

natural filter by helping to cleanse chemicals from storm water and urban runoff which
often carries oils and pollutants from streets and parking lots to our water resources.
These green strips help to prevent many pollutants from reaching the Bay where their
damage to the natural ecosystem is magnified many times.

Natural vegetation, replanted along the water's edges, would also help to restore wildlife
habitats in and along the river and Bay. The complex and invaluable wetlands that remain
in the city need to be preserved for this and other purposes. Planting native trees and
shrubs would also help to mitigate air and noise pollution problems along the waterfronts.
Reintroducing greenery along the shorelines would also enhance the overall appearance of
the city and boost the image citizens and visitor have of it. The Brown County Onen Soace
and Outdoor Recreation Plan (1 977, #34, Page 7) notes the functional importance of
properly planned and maintained recreational and open spaces, and attributes the following
benefits of community and personal health to

1 . Better citizenship
2. Vital community spirit
3. Higher standards of health and physical fitness
4. Lower levels of emotional and mental health problems
5. Better separation of incompatible land uses
6. Greater familiarity with nature
7. Presentation of interesting natural features
8. Lower crimes and delinquency rates
9. Reduction of traffic and building congestion

The plan supports the existing and encourages further watershed studies for our local river
basins. The plan also supports the existing non-point source erosion controls that have
been mandated by the state and encourages further research in this area, and if necessary,
further controls.

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Economic Impacts of Water=
* front Development, A Look at
Other Wisconsin Communities

IV. ECONOMIC IMPACTS OF WATERFRONT DEVELOPMENT. A LOOK AT OTHER
WISCONSIN COMMUNITIES

A. DE PERE

The economic benefits of waterfront development can be seen in almost any community
which has undertaken such an initiative.

The City of De Pere is located approximately five miles south of Green Bay and is a city
with a population of approximately 17,000, which contains a 22.8 acre waterfront park
(Voyager Park) located on the Fox River. Voyager Park facilities include boat slips, fishing
piers, spawning beds, walking trails, playground equipment and restroom facilities. This
park was first opened in 1978, and has grown and undergone steady improvements.
Voyager Park is a fine example of what waterfront restoration and development can do for
a community. Until the mid-1970's, the park was a municipal landfill with industrial
development on its fringes. With the passing of time, the once thriving Osen Milling
Company, along with Wells Seed and Feed Company, had dwindled in size and activity until
their closing. The C.A. Lawton Foundry Company by contrast, due to its growth and
changes brought about by advanced technology, needed to expand and relocate.

The former C.A. Lawton Foundry was within a month of being razed with nothing planned
to replace it when a group of elected officials and public citizens asked the City Council to
postpone the decision until research for possible preservation of this local historic building
could be completed. The Alexander Company Inc. of Madison, Wisconsin was contacted
and plans were drawn for the adaptive reuse of this property for luxury and affordable
housing. The historic Lawton Foundry Building has been saved and now houses 72 luxury
and affordable housing dwellings.

Thirteen new townhouses are now located on a portion of land once owned by the Osen
Milling Company. They are now being sold for between $175,000 to $250,000 each. The
structure that was once the Osen Milling Company is now being renovated and remodeled
to become a 30 room hotel/bed and breakfast.

The construction of these renovations was $4.5 million for the Lawton Project, $2.6 million
for the townhouses and an expected $2 million for the Osen Milling Project. This gives a
total of $8.6 million in construction value alone for these three projects.

This amount of money invested into the local economy and with the use of economic
multipliers has proven to be an economic boost to the community. It should also be
mentioned that because of these developments/redevelopments, the city's tax base has
increased and new jobs have been created.

These projects would probably have never been considered if this waterfront park had not
been created. The stimulus for the development was the riverfront park and the
redevelopment efforts of the downtown.

Voyager Park has been the host to many special events. The largest activity is held on
Memorial Day weekend. This annual event attracts from 75,000 to over 120,000 people
to the city and park for a weekend of music, games, food and fireworks.

The economic benefits of this waterfront restoration/development has not been limited to
the construction of the townhouses, the Lawton Complex or the Osen Milling Site. Other
apartment complexes, professional office buildings and retail businesses have also been
built in the area. New businesses have chosen to locate in the city often restoring old
buildings and bringing new life to the once faltering central business district. Local
restaurants, supper clubs, nightclubs and retail merchants see increased business during
special events held at the park. The increased business does not end with the culmination
of the celebration or event. Area merchants claim increased traffic and sales for periods
of four to twelve weeks after an event has been held due to the visitor's increased
awareness and exposure.

The boating and docking facilities at the park have been a very valuable asset to local
businesses by providing the pleasure boater a place to tie-up, rest and patronize local
restaurants, and businesses.

B. MANITOWOC

The City of Manitowoc, located on Lake Michigan, has been in the process of developing
its riverwalk system since 1975. This system was planned to help revitalize the failing and
under-utilized waterfront areas of the city with the intention of expanding public access
and to promote the area's waterfront recreational resources.

The system provides a three mile pedestrian walkway linking Manitowoc's Wisconsin
Maritime Museum, a World War II Submarine, Manitowoc's 190 slip marina, yacht club and
zoo, as well as numerous hotels, restaurants and retail shops. This system has helped
bring tourists from throughout the Midwest and beyond to this area which has meant
increased economic benefits to this community. The benefits of this system are not only
seen in the waterfront areas, the impact can be seen by the continued expansion of the
revitalization of business located nearby.

It has been documented that in 1988, the economic impact of the development was $40
million to this community. This figure has continued to increase since that time as shown
by increased numbers of tourists and sport fishermen visiting and recreation here.

Year round and well planned annually-scheduled events held in the waterfront areas have
helped to promote and publicize this recreational resource. The city and local businesses
have worked closely with each other, making this redevelopment/revitalization effort to be
the success that it has proven to be, including the resumption of the Wisconsin-Michigan
Car Ferry Service.

The use of this waterfront area is not limited to tourists, businessmen and shopping. Many
local residents, of course, come to this area to see, watch and experience a modern active
lake port with large vessels, recreational boats, historic and commercial activities set on
a large public waterfront.

C. OTHER AREAS

The cities of Sheboygan, Racine, Sturgeon Bay and Milwaukee have also undertaken
extensive waterfront development projects which in turn have resulted in numerous
* ~~~~benefits to their communities. Many communities across our country have redeveloped
under-utilized areas and in turn improved the economic, social, cultural, environmental and
recreational vitality of their cities.

General Recommendations

V. GENERAL RECOMMENDATIONS

A. GOALS AND OBJECTIVES

Overall Goal

To make Green Bay a better place to live and work, and to enhance the quality of life for
its residents and visitors with a comprehensive plan that is a practical guideline for the
sound environmental and economic management of Green Bay's waterfront resources.

Specific Objectives

To provide people with pedestrian and visual access to the Green Bay Waterfront areas.
Elderly and handicapped access to these areas should also be as broad as possible.

To awaken the community-at-large to the vast recreational and development potential of
Green Bay's Waterfront areas.

To maintain the Port of Green Bay for industry and commerce where necessary and
appropriate for industry.

To help stimulate and complement Green Bay's city-wide downtown, cultural and economic
revitalization efforts.

To help create a more beautiful city, with a climate of amenities, facilities and aesthetics
that are attractive to citizens, visitors and businesses alike.

To restore Green Bay's recreational waterfronts to a more natural condition.

To promote cooperation between citizens, government, business and industry on the
direction of Green Bay's waterfronts, in terms of the city's future needs.

B. PEDESTRIAN/BIKE TRAILS

*~~~ ~Planning

The purpose of this section is to point out the importance of planning for pedestrian/bike
transportation to the community and how this relates to the Comorehensive Waterfront
Plan. The waterways of the city are continuous ribbons which make their way through the
entire community. For the pedestrian and biker alike these corridors would often be the
most logical, pleasant, and safest routes through the city. The City of Green Bay has
already established some waterfront pedestrian/bike trails and this Comprehensive
Waterfront Plan highly recommends their expansion and interconnection with the city's
other city parks/parkways, as well as business and employment centers. The realization
that any planning being done for the city's waterfront will affect the city as a whole
necessitates that all city planning functions work cooperatively. This plan is intended to
work hand-in-hand with the Brown County's Bicycle/Pedestrian Plan. The Brown County

GREEN ~~~~~~~~BAY PAKADRCETONFET SAL T GREEN BAYWiCSNPOe.op/Apw'

00~~~~~

plan contains extensive information relating to the need for and purpose of
bicycle/pedestrian trails along with specific recommendations (see Plate 3 for Waterfront
Plan Recommendations for Major Trail Systems).

Existing trails are six feet wide. However future trails should be constructed ten feet wide
as recommended by the Wisconsin Department of Transportation to accommodate both
pedestrians and bicyclists.

The Pedestrian

Walking is the most common and elementary form of transportation. People combine
walking with almost every other mode of transportation and trip-making, whether it is to
complete a commute trip made by car to a downtown parking location, to walk to and from
a bus stop, or to make a complete work trip from home to work by walking. In the
planning process, it is also important to consider other users of the pedestrian system, such
as individuals using wheelchairs. Almost all of the elementary schools and neighborhood
parks in the city are designed and located to be reached as a pedestrian.

In Wisconsin, walking is still a very significant part of work trip commutes. According to
the 1990 Census, 130,136 people in the Wisconsin work force commuted to work by
walking. This constitutes 5.5 percent of workers 16 years of age and older. This does not
include elementary school age children walking to school, college students walking to
campus, and those individuals who walk part way to work but whose primary means of
transportation was another mode such as transit. It should also be pointed out that the
Census Bureau asks individuals their means to work for the last week of March, typically
not a fair weather month for Wisconsin.

The Bicycle/Pedestrian Benefit

*&~~ ~There are many things that alternative modes of transportation can contribute to Brown
County. By encouraging bicycle travel to work, special event and recreational facilities,
there would be a reduction in the amount of traffic congestion and personal stress that
follows these activities. A bicycle/pedestrian system provides an alternative travel, which
although biking is generally seasonal, is becoming common where it is safe. Through the
development of an accessible and safe system, the residents of Brown County can enjoy
*~~O~ ~an increased quality of life.

The Bicycle As A Means Of Travel And Recreation

According to the League of American Wheelmen, there are more Americans bicycling than
ever before. Their statistics show that in the last five years the number of bicycling adults
has increased by 20 percent.

C. RAILROADS

Abandoned railroad rights-of-way are very important to trail development. They can
provide a limited access system that embodies safety for all users. The more intersections
and driveways that a trail crosses, the more dangerous it becomes for bicyclists and

pedestrians. When developed in conjunction with waterfront parkway systems, the two
can provide a community with an extensive and efficient trail system. Therefore, the
acquisition of abandoned railroads is highly recommended. Once a railroad route is
acquired, all possible opportunities to create a non-motorized transportation system should
be made wherein urban areas, and, if determined feasible, all existing railroad
underpass/overpass structures should be retained. This will ensure the enhanced benefits
of the trail system to its non-motorized users by maintaining the limited number of conflicts
with motorized vehicles. The City of Green Bay and Brown County should support the
Department of Natural Resources in acquiring most abandoned railroad rights-of-way.

D. BRIDGES

Bridges, which are a severe obstacle to pedestrian cross-traffic along the water's edges,
need to incorporate pedestrian ease of movement across traffic as well as along with it.
Planning for new bridges should include provision for pedestrian and bicycle movement
needs, while existing bridges should be so adapted. The Planning, Parks, and Public Works
Departments should collaborate on the planning and implementation of these and similar
structures, to provide effective and safe pedestrian and bicycle access.

E. BUILDINGS AND STRUCTURES

Buildings and structures that meet the water's edges should be adapted to allow for
pedestrian movement. The Fox River Parking Ramp for example, could be modified for
pedestrian movement. Old and decaying buildings, should be removed or be modified for
a waterfront passageway when appropriate. Utility structures, like the electrical towers
that span the Fox River at Crooks Street could allow for a small inland detour away from
the waterfronts, as long as the structure is buffered with plantings and greenery.

Buildings adjacent to the waterfront areas should orient themselves to pedestrian access
from the water as well as from the street that they face.

Bridge ends (where the span meets land) should receive much attention because of the
powerful impression they can create. Visual barriers, such as billboards and overhead
utility wires, should be removed and the wires should be buried. Plantings and greenery
should be properly but widely introduced, to give the water's edge a clean and natural
image that causes one to "see" our Green Bay waterfront in a positive way.

F. PARKING LOTS

Substantial amounts of waterfront land along portions of the Fox and East Rivers are used
as parking lots on occasion as an interim use. Pedestrian movement along the waterfront
parkway will bring people very close to these lots. It should be city policy to require highly
effective, dense plantings and bufferings along these parking lots in order to screen the
parked cars from waterfront paths. This is particularly important for parking lots in the
downtown areas where visitors get their first impression of the city as they park and leave
their cars. These buffers may also help to reduce the urban runoff problem by providing
more permeable surfaces which would help absorb gas, oil, etc., before it reaches the
rivers and then the Bay.

G. SIGNAGE/LOGO

A logo should be developed for signs to lead visitors to our downtown and that introduce
Green Say's waterfronts and riverfront park system. Design elements like a logo,
* ~~~~~landscaping, lighting, signage, sculpture, and flags or banners can be used singly or
collectively to call attention to major entrances and key points of interest.

H. LANDSCAPING

The plantings and greenery used in the parkway system and along the water's edges
* ~~~~~should be as natural as is practical. Indigenous trees, shrubs, and plants should be
reintroduced in as many places as possible to help recreate the original vegetation patterns
that once existed along Green Bay's waterfronts. This will also recreate habitats for
wildlife, which can then re-establish itself on and near the water.

Industries and businesses along the waterfronts should be encouraged to plant trees and
shrubs along their property's waterlines. Even though public access may not be possible
at many industrial locations, greenery along industrial shorelines would help to improve the
overall aesthetics of the water's edges. It would also keep alive the image of continuity
and of uniqueness that the parkway will create along areas that do have public access.
When improvements which require special permits are requested, the city should consider
requiring good landscaping and/or buffering.

1. ZONING AND OTHER LAND USE CONTROLS

The Planning Department submit for adoption a revision to the waterfront zoning
requirements which will further protect waterfront areas from non-waterfront development
and continue to restrict structures from being too close to the edge.

J. SPECIAL ACTIVITIES

The creation of the waterfront park/parkway system would mnean that the city would have
a facility at its disposal that would be capable of a very broad range of activities. A list of
recommended activities and events suitable for waterfronts appear below. It has been
drawn from waterfront activities in other cities and our survey, in addition to those already
* ~~~~~being held in Green Bay.

� Local Holidays and Public Events
Founder's Day
A rtstreet
Arbor Day
* ~~~~~Military Honors

� Charity Events

� Outdoor Music and Concerts

Cultural Events
Artstreet, Others
Neville Museum Outdoor Events
Library
Downtown Days
Broadway Days
Neighborhood Festivities

� Races
Foot Races, Fun Runs, Walks, Bike Races
"Triathlon" (Bike, Run, Boat)
Raft, Canoe, Sail, Rowing

* Boating Events
In-The-Water Boat Shows
Safety Demonstrations
Water Skiing Demonstrations
Sailing Demonstrations
Boat Parades, Venetian Night
Visiting Ship Events

� Parades and Promotions
National and State Events
4th of July
Memorial Day, Labor Day
Thanksgiving
Christmas
Special

� Special Events, Special Groups
Picnics, BBQs, Festivals
Fish Boils, Picnics Sponsored by Organizations, Businessmen's Groups, Ethnic Groups

* Winter Activities On the Bay Front
Ice Fishing
Ice Skating
Ice Boating

� Tourism
Tour Boats
Riverfest
Fishing and Water Skiing Contests
Boat Expositions and Sales
Conventions, Conferences

� School Events
Outdoor Education
Picnics, Outings

Developing and promoting these and other community-wide activities along Green Bay's
waterfront parkway system will give residents a very wide range of local recreational
opportunities.

K. WATERFRONT DEVELOPMENT MANAGEMENT

It is recommended that a Waterfront Management Committee be established to guarantee
proper utilization of our waterfront areas (see Section VII. Implementation).

L. PARKWAY CATEGORY CLARIFICATION

* ~~~~~Confusion exists as a what can or cannot take place in parkways that are not official city
parks. Some form of designation needs to be assigned to these areas. Either they must
all be considered city parks thereby having the same use guidelines as a city park, or they
should be assigned a new title such as drainageways. As a separate entity they should
then be assigned a list of acceptable activities such as drainage, limited trail access, etc.
Ellis Creek is an example of this type of area.

S ~~~~~~~~~~~~~~~~~~~~~~~~~52

* Detailed Proposals for Study
Areas

VI. DETAILED PROPOSALS FOR STUDY AREAS

A. STUDY AREAS

For the purpose of this report, the city has been divided into 44 maps which have been
grouped into 16 study areas. The following section identifies the location of each area
along with a descriptive analysis and specific recommendations for that area. Plate 4
exhibits the locations of specific maps and study areas while Section VI, B, contains the
44 maps, including graphic proposals. For a city-wide overview see Plate 5.

Study Area #1

Location:

Bay shore west city limits to Byisby Street and bounded by Hurlbut Street on the
southwest (Maps 1, 2).

Description:

This area of study was a great expanse of wetlands until the 1 960's, known as Atkinson's
Marsh. In the early 1 960's, a dike was built in cooperation with the U.S. Army Corps of
Engineers around this area with the intent of filling and turning the area into an industrial
9 ~~~~~park. The greater portion of this area has now been filled or is in the process of being filled
but remains undeveloped. A plan adopted in 1 989 changed the proposed industrial use to
that of mostly open space, much of which has been conveyed to Brown County for dredge
disposal.

Study Area Disadvantages:

The southerly remaining portion of open space contained within this study area is owned
by Brown County and the City of Green Bay. The city owned portion is used by the Public
Works Department for a snow dump area during the winter and temporary storage and
public works type uses. The area owned by the county has been designated as an
approved site for the dredged deposit of materials from the channels of the lower Bay and
Fox River.

Study Area Advantages:

The portion of land at the northwest city limits and along the west Bay shore dike is known
as Ken Euers Nature Area. It is the only natural remnant of the Atkinson's Marsh. This
* ~~~~~nature preserve is a part of the city park system and is preserved for passive recreation
including a parking lot and trail system, offering great opportunities for nature study by area
school students and interested adults.

The preserve area offers one of the best unimpeded views of the Bay that can be seen
from within the city limits. Ken Euers Nature Area has been designated by Brown County
* ~~~~~as an area of environmental significance and is to be preserved.

The city also owns the Bay shore line property and dike from Ken Euers Natural Area east
to the Wisconsin Public Service property near half-way slough. This strip of shoreline has
been designated city parkway and does have a gravel path along the top of the dike wall.
It is anticipated that gravel and fencing repair work will be done in 1995.

Recommended Actions:

Ken Euers Nature Area should continue as a nature preserve, fostering regional wetland
vegetation and wildlife. Signs and markings describing the wetlands environmental
importance to the waters of the Bay along with significant vegetation and wildlife in the
preserve should be installed for visitors education.

The present parkway, with gravel trail from North Military Avenue to Half-Way Slough, is
only 35 feet wide from combination dike and bulkhead line. Negotiations with the county
should be made to increase the size of this area to accommodate the trail and a planted
buffer zone between trail and the county's dredge spoils disposal site. The parkway should
be 50 feet to 75 feet wide.

The remainder of the proposed Ken Euers Trail extends to Bylsby Street and is owned by
Northeast Asphalt, the city and Wisconsin Public Service Corporation who has agreed to
allow an easement to continue along the shoreline for trail development. This agreement
should be acted upon and finalized. The city should also acquire the small section of land
owned by Northeast Asphalt. When access to these properties is secured, the parkway
should be extended and connected to Bylsby Street.

A connection of the above mentioned trail to the proposed trail along the Fox Valley
Railroad right-of-way should be made. The inter-connection of all proposed pedestrian/bike
trails with nearby waterfront trails is desirable where possible.

This plan proposes the creation of a small street-end type park with canoe/kayak hand
launches, picnic tables, and parking at the end of Bylsby Street. This street-end park could
then be used for picnicking, viewing the waters of Green Bay, small watercraft launching
and the parking of vehicles while using the proposed west shore recreational trail.

It is also recommended that the parcels now used by Brown County for dredged soil
disposal will, in the future when completed, be converted to public use, possibly as a large
Bay shore park.

A number of small wetlands exist in the Bayport area along roadways and one large area
near the storage tank areas which is often referred to as Tank Farm Marsh. Considering
the large area of wetlands that have been filled here, all of the remaining remnant wetlands
should be preserved.

Study Area #2

Location:

Bay shore at mouth of Fox River (Map 3).

Description:

West Side: Wisconsin Public Service Pulliam Plant, Petroleum Oil Tank Farms, Fox Valley
Railroad Yard.

East Side: Green Bay Metropolitan Sewerage District, Green Bay Yacht Club, Green Bay
Metropolitan Boat Launch.

Area Disadvantages:

*a~~ ~West Side: Much of area private and inaccessible.

East Side: Large portion under private ownership.

Green Bay Metro Boat Launch is currently operating under a 20 year lease (July 1, 1990
through June 30, 2010) from the Green Bay Metropolitan Sewerage District which has the
possibility of not being renewed (probable reason for no renewal would be land needed for
expansion) (see Recommendations - Area 3).

Area Advantages:

A major focal point of Green Bay for visitors and area residents is at the confluence of the
Fox River with the Bay. This is due to the height and location of the Tower Drive Bridge
(1-43) and the recreational and commercial marine traffic that takes place at the mouth of
the Fox River.

Site of Green Bay's Yacht Club, privately owned with 87 slips, clubhouse and grounds and
the adjoining U.S. Coast Guard Facility.

Site of Green Bay's only city operated metropolitan boat launch which has been greatly
improved to include ten launch lanes, five finger piers, an environmental information center
with toilet facilities at an overlook, landscaping and picnic tables.

Recommended Actions:

*+~~ ~Due to the public visibility of the entire area from many vantage points, the city should
encourage businesses in this area to improve their properties through good maintenance,
architecture and landscaping. Key private property could be developed or redeveloped
commercially to compliment the Metro Boat Launch-Bay Beach/Sanctuary Complex.

The city should continue to improve the metropolitan boat launch development with the
*)~~ ~installation of a sanitary pump station (proposed to be installed in the Fall of 1994), the
addition of a fishing pier, an overlook structure, and installation of permanent picnic
tables/benches for use by both boaters and other visitors to the area.

Seek possible solution to the discolored discharge plume created by the Metropolitan
Sewerage District to a more remote area (for greater detail see text for Study Area #3).

The property owned by Mc Donald Lumber Company bordered by the city's metropolitan
boat launch and Sauk Avenue along the waterfront has been and is presently being used
for warehousing (a non-water related activity). This property, with its enclosed basin and
peninsula formation, has been planned as a prime location for a private marina and is zoned
to permit such. The present owners have submitted tentative plans to the city for a marina
which would provide slips for approximately 350 boats but nothing has been built.
Development of the site into a private marina should be actively encouraged and pursued.
This development, if not done by the present owner, could be pursued by other private
developers or a public agency.

With any conversion of this property, the city should insist on public access along the
waterfront to accommodate a pedestrian/bike trail. This waterfront trail should also
accommodate a route from Bay Beach Park/Parkway to the city's Metropolitan Boat Launch
and the proposed public overlook.

The Green Bay Yacht Club property, now also leased from the Metropolitan Sewerage
District, is a compatible use with the parkway system but if this activity were ceased for
any reason, the property should be preserved as part of the parkway system.

Study Area #3

Location:

Bay shore east of Sauk Avenue to Mahon Creek (Maps 4, 5, 6, 7).

Description:

Including Bay Beach Amusement Park, Bay Beach Wildlife Sanctuary and Renard Island
(formerly named Kidney Island).
Study Area Disadvantages:

Poor but improved water quality due to point and non-point pollution as well as pollutants
being scoured from the sediments of Fox and East Rivers. The discoloration of this area's
water is caused to a great extent by the color of the Metropolitan Sewerage District's
discharge, which is located at the end of Bay Beach Road, and is carried to the east Bay
shore due to the natural counter-clockwise Bay current.

Area Advantages:

A good portion of this area is owned by the City of Green Bay. Contained in this area are:
Bay Beach Park; proposed Bay Beach Parkway; and, Green Bay Wildlife Sanctuary.

Recommendation:

The City of Green Bay has in the past ten years acquired most of the properties from Bay
Beach Park west to Sauk Avenue to form the Bay Beach Parkway and the possible future
expansion of Say Beach Amusement Park. There remains approximately eight parcels not

owned by the city at this time (See Map 4). The city should pursue the purchase of these
remaining parcels to complete the proposed expansion.

Bay Beach Park is the most highly used park within the Green Bay Park System. In 1 993,
*()~~ ~it is estimated that over 1.1 million people have used the rides, picnic areas and sport
facilities. A majority of these 1.1 million people also visited the adjoining Wildlife
Sanctuary. Bay Beach Park has constantly been upgraded and expanded. Yet the demand
and use of the facility continue to grow outstripping the park's capacity. In 1993, this park
had an income of $897,710, with expenses of $479,482, showing a profit of $400,236.
The plan recommends that the Park Department continue to further improve and expand
*1)1~ ~this park because of its high usage and profitable nature. New facilities could include
additional amusement rides, picnic area, more parking, band shell, boating activities and/or
facilities, etc.

Bay Beach Park in its earlier years was known for its large expansive swimming beach, but
due to poor water quality and associated health risks it has been closed to swimming since
1943. The plan recognizes that the water quality at Bay Beach has improved in the recent
past and usually does meet most state standards for swimming, but due to its lack of
clarity and bottom deposits, swimming is still not recommended or allowed.

It is believed that most people would like to see the return of swimming at Bay Beach. To
facilitate this, the plan recommends research into possible solutions for improving the
water quality and clarity to a swimmable level.

One possible solution would involve extending the discharge pipe from the Metropolitan
Sewerage District away from the shore's edge sufficiently to disperse the discharge
northward and increase the local clarity to a point where swimming would again be safe
and attractive.

With the belief that swimming will eventually return to Bay Beach, any plans concerning
this area should consider additional facilities such as changing rooms, toilet facilities, and
parking. Presently the city is investing heavily in swimming facilities elsewhere.

Renard (Kidney) Island is a 55 acre island that is located just off shore from Bay Beach
Park. It was built by the U.S. Army Corps of Engineers as a disposal site for dredgings
from the shipping channel of the Bay of Green Bay and the Fox River. The island is county
owned and has been planned as a future natural area with space for passive recreational
use, being connected to shore by a causeway intended for pedestrian/bike travel and
service vehicles only. What will be done with the island and when is very much in question
at this point. The Army Corps of Engineers and Brown County have plans for a 126 acre
expansion of the island, but objections due to environmental concerns have held up the
construction and are presently being debated through litigation.

It is recommended that when the questions of proposed expansion and Department of
Natural Resources' requirements have been settled, the county plan for a passive
recreational nature area be implemented with the causeway connection to Bay Beach Park.

Plans for any future development in this area must also address the possibility of having
to relocate the existing boat launch due to the need by the Metropolitan Sewerage District
for expansion causing them not to renew the 20 year lease the city has with the
Metropolitan Sewerage District for the boat launch.

The Wildlife Sanctuary has been a very important and well used part of the park system.
The Sanctuary has grown from a small preserve with a few injured geese in the 1930's to
over 700 acres with over 600 resident geese and ducks, etc. in 1994. The Sanctuary
includes a new nature education center building, a Wisconsin Animal Exhibit, as well as
wetlands and ponds for wildlife and over three miles of nature/cross country ski trails.
Along with many other projects, the Wildlife Sanctuary is currently working on three major
development programs. The Native Animal Exhibit is being expanded with a new
woodlands building being built in 1994. The observation area is undergoing major
reconstruction with the demolition of three buildings and construction of a new observation
building complex. Last is the continued development of major interactive environmental
education displays in the nature center.

Many of the programs and displays available at the Wildlife Sanctuary provide critical
insight and education which will help adults understand the importance of our water
resources and insure that future generations will be trained to understand how to preserve
and maintain these resources. The Waterfront Plan strongly supports the Wildlife
Sanctuary and emphasizes the importance of our community continuing to maintain and
utilize the sanctuary at a high level.

The Wildlife Sanctuary has also expanded in the past several years and is in the process
of restoring these areas for wildlife. The plan recommends the continued restoration of the
acquired land. The Wildlife Sanctuary's hiking to cross country ski trails start near the
santuary's entrance, run throughout the sanctuary and connect to the University of
Wisconsin-Green Bay Arboretum trails. These trails should be maintained, expanded and
connected to the pedestrian path along the Bay shore in Bay Beach Park, the proposed
trails within the Mahon Creek Parkway and other pedestrian bike trails as they are
developed.

Study Area #4

Location:

Bay shore east of Mahon Creek and shoreline of University of Wisconsin-Green Bay Campus
(Map 8).

Description:

This area contains the beginning of the Mahon Creek Parkway. It also contains the
University of Wisconsin-Green Bay's Arboretum, the University's Outing Center (including
the Green Bay Sailing Club) and Communiversity Park.

Study Area Disadvantages:

No permanent comfort facilities at Communiversity Park or University of Wisconsin-Green
Bay Arboretum.

Study Area Advantages:

This area has a large expanse of natural waterfront. The area from the Mahon Creek
Parkway to Communiversity Park is one of the most natural largely undisturbed areas to
be found along the Bay shore. This area is owned by the university and is maintained as
an arboretum, which includes a pedestrian/bike trail for students and public for the study
of nature and recreation. The mouth of Mahon Creek is located at the west end of the
University's Arboretum trail which includes an underpass utilizing a newly reconstructed
bridge on Nicolet Drive.

This area along Nicolet Drive does have one of the few designated paved bike lanes that
exist in the city. Nicolet Drive is elevated somewhat and parallels the Bay offering an
excellent view of the Bay for motorists, bikes and joggers. The campus of the University
of Wisconsin-Green Bay also has pedestrian/bike trails around the perimeter and throughout
the campus, connecting the various areas and buildings on campus. These trails are open
to students and general public to use and enjoy.

Communiversity Park, located on the northwest corner of the campus on the shore of
Green Bay, is a university owned park open to students and public alike. This park offers
an impressive view of the Bay and one of the best locations within the city limits from
which to sit and enjoy the beauty of the water and sky, whether it be watching the calm
of a magnificent sunset or the approach of an impending storm with its flashes of lighting
and turbulent gray and black clouds as it moves its way above the Bay, towards you, and
finally passing over.

Recommendations:

Continue to work cooperatively with the University with regards to their updating of the
Camous Master Plan. Coordinate the city's Comorehensive Waterfront Plan and Campus
Master Plan to maintain and improve the university's Outing Center, Communiversity Park
and assure the interconnection of the pedestrian/bike trails owned by the university and
city, including a possible trail through Mahon Creek Parkway. Recommend the building of
permanent comfort facilities at Communiversity Park.

Study Area #5

Location:

Bay shore east from University of Wisconsin-Green Bay Campus to the city limits (Maps:
9, 10, 11, 12).

Description:

This area contains a large portion of the Bay shore in the northeast corner of Green Bay.

Joliet Park, which is a narrow (80 foot plus/minus wide) strip of shoreline owned by the
city is located within this area.

Street-end park at Parent Road.

Nicholson Creek, Barina Creek, along with two other small unnamed creeks which empty
into the Bay and are located between Joliet Park and the city limits.

Study Area Disadvantages:

Most of shore line is privately owned and therefore not open for public access. Nicolet
Road is located close to shore, making any future shoreland park development difficult.

Study Area Advantages:

This area offers beautiful views of the Bay and shoreline.

Nicholson Creek Parkway should remain as city owned property for the purpose of storm
water control, urban green space and local resident use.

Joliet Park, though unimproved, does offer public access to the Bay.

Recommendations:

Joliet Park, although rather small and narrow, should be improved as a passive waterfront
park by the addition of a small paved parking lot, picnic tables/benches, small comfort
facility, possible canoe/kayak launch site and fishing pier. If possible, develop a small area
toward the center portion of this park with parking lighting and benches to accommodate
the viewing of the Bay.

The plan also recommends the creation of a street-end park at Van Laanen Road to
accommodate local residents. This location can also be used as a canoe/kayak/boat launch
area. Parent Road should be retained as this is one of only two public access points for
this beach or shore.

Continuation of paved bike lanes on both sides of Nicolet Drive from the university to the
city limits is also recommended.

Barina Creek Parkway, from Nicolet Drive to the Bay, should be open to the public in the
manner of a street-end park. The remainder of the creek parkway should be held by the
city for the purpose of urban green space and for storm water drainage. The exact
configuration of Barina Creek Parkway south of Church Road has not been finalized. If the
parkway extends close to Durham, the city should consider connecting to Durham to create
a parkway linkage. The two unnamed creeks to the north which feed the Bay of Green Bay

should be designated as parkway for the purposes of green space, storm water drainage
and flood control similar to that of Barina Creek as mentioned above. It may be advisable
to consider one of these as a pedestrian parkway and connect into a future park
neighborhood in the area (see upcoming Outdoor Recreation Plan).

Study Area #6

Location:

Tower Drive Bridge south to the confluence of the Fox and East Rivers (Maps 13 and 14).

* ~~~~~Description:

Study Area #6 is the area of the Fox River from the Main Street Bridge to the Tower Drive
(1-43) Bridge. This area includes Leicht's's Dock and Storage and Riverview Park on the
west shore. Admiral Flatley Park, a portion of the East River Parkway, James River
Corporation, and Procter & Gamble Company are on the east shore. Adjacent to Admiral
* ~~~~~Flatley Park is the city's marina which is located at and operated by the Holiday Inn City
Centre.

Study Area Disadvantages:

Limited public access to most of this area's waterfront.

Study Area Advantages:

The Green Bay Marina with its 70 boat slips, 64 of which are designated for seasonal rental
and the remaining six for transient use, offer residents and visitors a fine facility for
seasonal docking or patronizing area hospitality establishments or merchants. Some
* ~~~~~spaces will need to be removed when the new Main Street Bridge is constructed,

Admiral Flatley Park and the adjoining portion of the East River Parkway afford central
business district shoppers, employees and visitors an area to walk along the riverfront and
enjoy one of Green Bay's greatest assets. This parkway also offers an excellent
opportunity to view the boats moored at the marina and the Great Lakes/ocean going ships
* ~~~~~as they enter and leave the Port of Green Bay.

Recommended Actions:

The plan acknowledges that the reconstruction of the Main Street Bridge in a new
alignment (scheduled for 1998) will necessitate the redesign of the present marina and river
* ~~~~walk. It is the plan's recommendation that the new bridge's design accommodate the
pedestrian/bike paths passage under the roadway and also facilitate the expansion of the
park to provide additional park area.

The design and landscaping of the bridge footings and abutments should be such that they
blend in harmoniously with the existing park areas on both the east and west banks of the
* ~~~~~river. If possible, additional area should be added to the parkway on the west bank, north

of the new bridge in order to mnake a more positive aesthetic statement along the
waterfront. Efforts should also be made to tie this area into the proposed historic railroad
station renovations and existing Fort Howard monument. The monument could be
relocated to the waterfront area since the fort was actually on this waterfront.

This plan recommends that a pedestrian/bike route be provided through the study area to
connect the central business district to the Bay Beach and university area as well as the
East River Parkway. The creation of trails along the banks of the river all the way to Bay
Beach is impossible considering the existing industrial use. The plan recommends instead
a pedestrian bike lane/trail be designated through the northeast side of the city to
accomplish the desired connection where the river walks are impossible.

Riverview Park is a small park located on the west shore of the Fox River at the north end
of Broadway, which should be moderately improved for use by the community. This site
for a scenic waterfront overlook and possibly limited boat access. The city should also
consider obtaining additional land adjacent to this site if it becomes available for expansion.

It is also recommended that the small wetland area south of the metro sewage facility on
the east shore under 1-43 be preserved as part of the parkway system as a natural area.

Study Area #7

Location:

Fox River waterfronts (east and west) from the Main Street Bridge south to Mason Street
(Map 15).
Description:

This study area includes most of the central business district, including the Port Plaza Mall
area, the proposed Broadway Redevelopment Area, Veterans Memorial Parkway, and the
Brown County Neville Public Museum.

Study Area Disadvantages:

Areas of industrial use located on the west shore, south of Walnut Street, with little or no
setback from water's edge limit potential public access.

The city's Fox River Parking Ramp (between Washington Way and Cherry Street) built tight
to water's edge on the east shore, allowing no space for a continuous pedestrian walkway
without special construction.

The Wisconsin Public Service substation and tower located on the east bank of the Fox
River south of Stuart Street creates a barrier to continuous access, but some of this site
is open and adjacent to the foot of Crooks Street, and can be circumvented along the
public alley.

65~~~~~~~~~~~~~~

Study Area Advantages:

Most of the recent progress on waterfront parkway development in Green Bay has taken
place in this study area. The Flately Parkway, Veterans Memorial Parkway and East Bank
* ~~~~~Parkway have all had a significant positive impact on the downtown environment.

Recommendations:

West Shore: The city's proposed Broadway Redevelopment Plan was approved in April
1994, for the future redevelopment of the west bank of the Fox River from Kellogg Street
* ~~~~~to West Mason Street (see Broadway Redevelopment Master Plan). Beyond what is stated
in this plan, it is recommended that the pedestrian/bike paths be linked to the east shore
and to the future trails when developed along right-of-way now owned by the Fox Valley
Railroad and Wisconsin Central Ltd. Railroad. The plan recommends the connection of
walkway over the north side of the Mason Street Bridge to the Fox River west shore's
pedestrian trail, eventually developing a pedestrian loop between the Walnut and Mason
Bridges.

The acquisition of the former Green Bay and Western Railroad "coal dock" property
adjacent to the Mason Street Bridge with its boat slip, and acquisition of the adjacent Fort
Howard Paper Company property, will allow almost 15 acres of downtown property with
a boat slip to be redeveloped, and will remove some of the up-wind coal dust nuisance.

9 ~~~~~East Shore: Continue to expand and improve open space parkways along the Fox and East
Rivers by widening the open space strips where possible and adding landscaping when
needed. The addition of permanent benches/tables and lighting are also suggested.

The city should research the possibility of modification of existing steel bulkheads and the
associated guard rails to allow the temporary tie-up of pleasure craft in selected areas
* ~~~~where shore space and land use can accommodate them.

The plan also recom-mends the construction of a walkway to accommodate a continuous
pedestrian route along the Fox River's east shore past or through the Fox River Parking
Ramp rather than through the alleyway which presently connects the existing walkways.

* ~~~~~Three possible alternatives to the present alleyway route are:

1. The building of a suspended boardwalk over the water's edge.

2. Extension of present bulkhead line to accommodate the riverwalk.

* ~~~~~3. The modification of the parking ramp to allow pedestrian traffic along the river's edge
but through the ramp. This can be seasonal if within the ramp, allowing parking in the
fall and winter shopping seasons.

The area of shoreline that contains the high voltage electrical towers (Stuart Street to
Bridge Street) should be landscaped to improve the aesthetics of the shore line and the
path routed around. Eventually these towers may be removed, and if so a continuous river
walk along the shore is recommended.

The city presently owns the Packerland Steel Building property, located along the East Bank
of the Fox River and south of Crooks Street. The building itself is not owned but presently
being leased. When the lease contract is complete, the building is to be razed. At this
time, the pedestrian/bike trail along the Fox River should be expanded to Mason Street
following the shoreline behind the new professional building located just north of Mason
Street as planned. A Department of Transportation Grant has been secured to accomplish
this in 1995.

The plan also recommends that the parcel of land and associated building located north of
Crooks Street and south of the Municipal Bus Garage on Washington Street should be
purchased and converted to the park. This location is a logical anchor for the Fox River
walkway. When purchased, this area should be landscaped and furnished for use by
riverwalk parkway patrons.

Study Area #8:

Location:

Fox River shorelines south of the Mason Street Bridge to the city limits (Maps 16, 17, 18).

Description:

The study area includes the C. Reiss Coal Dock and Fort Howard Paper Company on the
west bank and mostly open space waterfront on the east bank. Railroad right-of-way
exists along the east bank south of Porlier to the Village of Allouez, extending to De Pere.

Study Area Disadvantages: .

The west side industrial waterfront and coal piles are up-wind of the prevailing
southwesterlys. This results in an air quality nuisance as well as a poor aesthetic image 4
of the city from both the Mason Street Bridge and from the opposite shoreline.
Forthcoming requirements from the Wisconsin Department of Natural Resources will
hopefully control some of the nuisance.

The west bank is intensively developed industrial land which leaves little potential for
public access except street end parks at the foot of Eighth and Ninth Streets.

Study Area Advantages:

This study area contains extensive open waterfront that exhibits great potential for future
parkway development. Location of Hazelwood Historic Site.

Study Area Recommendations:

Fox River Shoreline (West Bank):

*II)~ ~This area is dominated by industrial use and is not likely to change. Aesthetics of this
reach of shore line should be improved by encouraging industries and businesses located
here to create green strips along these waterfronts. The aesthetics of the waterfront could
be greatly enhanced, and as a side benefit this green strip vegetation would act as a filter
system for runoff from the industrial areas thereby enhancing the water quality of the river.

The plan also recommends that the city look into the possibility of relocating the C. Reiss
Coal Company to relieve the coal dust and traffic nuisance created by the coal dock's
present location. If a new location is found, or for whatever reason this property becomes
available, the city should purchase said property to insure public access and the
continuation of the waterfront parkway. The remainder of the land should then be carefully
studied to insure that it be used for the greatest common good.

The city should explore the possibilities of a street end park at either Eighth or Ninth
Streets on the Fox River's west shore. The location of both sites are within industrial
areas. The Eighth Street site is larger and offers an area at the water's edge that could
also serve as a hand boat launch site for smaller craft. Any plan for development of these
sites should include fencing and landscaping to buffer the park area from the industrial
neighbors as well as benches, tables and lighting. Adequate parking for vehicles must also
be considered.

Fox River (East Bank):

The city should pursue access between the former Kerscher Metal Building and the river
to allow the expansion and continuation of the riverfront walk along the Fox River's east
shore line. This may be possible through a trade involving existing city owned former
railroad right-of-way.

The property immediately to the south of the former Kerscher Building, extending to Porlier
Street is presently open space and privately owned except for the city-owned former
railroad property. The plan recommends that the city pursue the purchase of this property
for park/parkway purposes for the following reasons.

1. Waterfront preservation and beautification.

2. Its close proximity to the central business district.

3. Its present state of being unimproved vacant land and is of adequate size to support
park amenities such as picnic tables, benches and comfort facilities.

4. Would serve as a significant park area which would help attract new residential
development as well as encourage the reconstruction and refurbishing of the existing
area housing.

5. Logical shoreland connecting link for future pedestrian/bike trails now being planned.
These include the proposed rails-to-trails pedestrian/bike trail through the Village of
Allouez to the City of De Pere.

6. Due to road and water setback requirements and the space required for the planned
pedestrian/bike trail, the amount of developable land is small and currently limited to
parking.

With the above facts in mind, the most logical use of this land would be for public
waterfront parkway purposes. If the city is not successful in the purchase of the said
property, a fair and suitable trade should be arranged for the privately owned waterfront
property and the city owned former railroad right-of-way which would allow for the
continuation of the parkway along the water's edge.

Hazelwood is an historical site located a few lots south of Porlier Street fronting on Monroe
Avenue, extending to the proposed parkway. The trail should connect to this Green Bay
historical site. The plan also recommends that if and when the railroad line and bridge
located in this area are abandoned that a fishing pier should be built using portions of the
former railroad bridge footings as its base. This area has been identified as having
significant sport fishing potential.

Study Area #9

Location:

East River from the southern city limits at the Village of Allouez and Town of Bellevue to
its mouth at the Fox River including the mouth of Baird Creek to Morrow Street (Maps 1 9,
20, 21, 22).

Description:

The East River is a tributary of the Fox River. A little over half of its banks are bordered
by city owned park and parkway. The East River waterfront from Baird Creek to Webster
Avenue is mostly commercial on the west/south bank and residential on the east/north
bank. The remaining portion of riverfront is mostly bordered by industry. The remainder
of the East River, south of Baird Creek, is developed in residential or public uses.

Baird Creek is a tributary of the East River. Ann Sullivan School/Park is located on both
sides of Baird Creek at the confluence of the East River and Baird Creek. It is at this
location that a pedestrian/bike bridge crosses over the East River and connects Joannes
Park with Ann Sullivan School/Park, and another bridge crosses over Baird Creek
connecting this area to Main Street and existing neighborhood sidewalks.

Study Area Disadvantages:

The East River's water quality is poor due to both point and non-point source pollution. The
upstream areas of this river run through farmland and residential areas with high clay
content soils. The combination of farm chemicals, lawn care chemicals, and erosion results
in poor water quality before even entering the city limits.

The northern portion of the East River has commercial, business, and industry built close
to the river's edge effectively blocking potential waterfront trails. In most cases, a few
narrow areas do have potential.

Water quality of Baird Creek is poor due to erosion and non-point source pollution. The
south river bank of Baird Creek between Main Street and Henry Street has been channeled
with some concrete banks and is presently being used for a variety of industrial uses,
hindering the possibility of a pedestrian/bike path from following the creek's natural course.

Study Area Advantages:

Water quality has been improving due to a great extent by the efforts of the East River
Priority Watershed Project enacted in 1988.

The southern portion of the East River is mostly bordered on both sides by public park and
parkway areas from its junction with Baird Creek to the city limits. The parkway continues
along the western shore through the Village of Allouez to the City of De Pere with only a
short gap created by residences with shoreline property. The Village of Allouez' East
Riverfront Parkway does have a paved pedestrian/bike trail through the major portion of the
village. The west shoreline south of the Green Bay city limits is a planned parkway by the
Town of Bellevue, which is now in the process of purchasing these shoreline properties.
The Village of Allouez and the Town of Bellevue have planned bridges over the river to
accommodate the interconnection of the proposed and existing pedestrian/bike trails.

A foot/bike bridge exists over the East River and Baird Creek connecting Joannes Park, East
High School and Ann Sullivan School/Park, each with large parking lots. The city recently
purchased one lot on Baird Creek at Main Street. This was purchased for parkway and for
the reconstruction of Main Street.

Recommended Actions:

The portion of river bank from Monroe Avenue to Baird Street is largely privately owned.
The city should acquire the indicated river bank properties or portions of them with the goal
of a continuous riverfront path. Emphasis should be placed on the south bank of the river
where several properties have already been retained. Wherever pedestrian/bike paths are
not possible or practical, bicycle lanes should be established to accomplish the inter-
connection of pedestrian/bike paths along the rivers and throughout the city. On the north
bank industrial activity makes it difficult or impossible to develop parkway, except between
Webster Avenue and Main Street. Properties should continue to be acquired in the area

0~~~~~~~~~~~~~~~~~~7

in order to develop a continuous lineage along the waterfront. This is a critical stretch of
river and is inaccessible. Without the north bank link, a continuous East River Parkway
would not be possible.

A trail should be constructed in cooperation with the Board of Education along the river
behind East High School which would connect Baird Street to the existing Joannes walks
as well as in the future tie into the proposed and existing trail going south along the East
River.

In areas where acquisition is unfeasible, the setback/landscape ordinance to control erosion
for aesthetic purposes.

It is recommended that the city complete the linkage of the paved walkway on the bank
of the East River (at Kurtz Avenue and Crooks Street). This will most likely require the
removal of two city owned rental houses.

The city should take advantage of the above mentioned pedestrian/bike bridge over the
East River and Baird Creek as the logical connecting or cross over point for trails on the
west bank of the East River going to the east toward Baird Creek Parkway and the
proposed rails-to-trails pedestrian/bike trail which would extend east through the city
eventually connecting to the Ahnapee Trail.

The plan recommends construction of a pedestrian/bike path from Ann Sullivan School/Park
Walkway, following the waterfront along the northwest shore of Baird Creek, behind
Riverside Ballroom, to Main Street. Continue trail along the northwest shore of Baird Creek
through purchase of easements or other acquisition techniques and connect to the existing
Baird Creek Parkway at Morrow Street. If this becomes unfeasible, develop a designated
sidewalk or bicycle lane along the east side of Elizabeth Street to Morrow Street and follow
Morrow Street until it connects with the existing Baird Creek Parkway. The plan also
recommends the reconstruction of the stone bridge over Baird Creek.

The plan recommends the extension of existing trails in Baird Creek Parkway to Danz
Avenue. It may be most prudent to carefully monitor the potential railway abandonment
as this is the most logical location for this trail (see Study Area #10). The city should also
complete the proposed bridge construction over Baird Creek and provide linkages to
adjacent residential areas north of Deckner Avenue.

Study Area #10

Location:

Baird Creek, from Morrow Street east to city limits (Maps 23, 24, 25, 26, 27, 28, 29, 30).

Description:

This area contains unique and valuable natural area with a variety of topographical
characteristics and was once considered for a possible state park features the Baird Creek
Parkway, Triangle Hill Sports Area, Danz Park/School, Baird Park/School, Christa McAuliff

Park/School, Fox Valley and Western Railroad right-of-way are all within the parkway.
Numerous small waterfalls and roads highlight this section which is being developed
nearby.

*�~~ ~The area along the creek, east of Danz Avenue, are for the most part undeveloped. The
land along the banks of both branches of Baird Creek have been designated as proposed
parkway. The Wisconsin Central Ltd. and Fox Valley & Western Ltd. Railroads' right-of-
way follows the creek's main and north branches through most of this study area.

Study Area Disadvantages:

Some areas have severe erosion along the creek's banks and adjacent hillsides.

The majority of the land that has been officially designated future parkway at the time of
this publication has yet to be purchased west of 1-43 by the city.

Some private owners would prefer to develop the area rather than work with the city to
provide parkway.

Study Area Advantages:

Most of the creek's shorelines between the East River and 1-43 are already county/city
owned, and all are designated as future parkway. A portion of this parkway is Triangle Hill
Sports Area, which offers downhill/cross country skiing, sledding, and tubing, complete
with rope tows and warming shelters during the winter months. The park area also has
play areas and soccer fields and nature trails.

The above mentioned railroad right-of-way has been considered for future abandonment by
the railroad and consequently may be eligible for conversion to recreational trails under the
*�~~ ~Rails-To-Trails Conservancy Act of 1983.

Recommended Actions:

The city should purchase those areas shown on the maps to complete the parkway. Plans
for the creation of a toboggan run, prairie restoration and additional parking should be
implemented. The existing prairie restoration should be encouraged and continued. The
city/county should provide adequate funding and manpower to maintain the existing
proposed trails at the appropriate width with appropriate surfacing. The city and county
should continue to maintain this area together under the existing joint agreement and
should detail a plan for its development and improvement.

The Fox River Valley Railroad right-of-way runs through the parkway. This portion of track,
if abandoned, would become available under the Rails-To-Trails Act for conversion to a
recreational trail. This conversion of railroad to a recreational trail should be actively
pursued. The conversion of this right-of-way to a pedestrian/bike trail would mean a
continuous recreational trail from Green Bay through Luxemburg to the Ahnapee
Recreational Trail and Kewaunee.

The existing nature trail and cross country ski trail in Baird Creek Parkway should be
expanded to extend to the area south of Baird Creek but avoid damaging valuable natural
areas.

The Newberry Avenue Conservancy, located within this study area, should be retained by0
the city for the purpose of urban green space and wildlife habitat. This is a small natural
area immediately east of Preble High School, and has a small unnamed tributary stream.
The plan proposes the creation of pedestrian walking and hiking trails with the goal of
preserving the area in its natural state but yet encouraging public access for passive
recreation.

The plan recommends that Preble High School and the Green Bay Board of Education more
formally established this as a conservancy nature study area for the students of Preble High
School and all other schools in the general vicinity to the conservancy.

Study Area #1 1

Location:

Mahon Creek from its headwaters (Hutchinson's Bog), east of Spartan Road, west to a
point near Nicolet Drive (Maps: 31, 32, 33) (see Map 8, Study Area #4 for mouth of creek).

Description:

This study area is divided in two parts. The first section being Mahon Creek, north of
Wisconsin Highway 54/57 and south of Nicolet Drive. This portion is mostly bordered by
the campus which has built and maintains a pedestrian/bike circumvential arboretum trail
that is open to students and the general public. The areas adjacent to the stream are
owned by the City of Green Bay and includes the sanitary sewer and easement servicing
its watershed. The second section is upstream of Wisconsin Highway 54/57 and is largely
contained or bordered by the "Lake Largo" and "Bay Highlands" subdivisions. The land
along the banks of Mahon Creek are generally steep and heavily wooded.

Study Area Disadvantages:

The land upstream from Wisconsin Highway 54/57 has been proposed and adopted for
parkway purposes by the city but has generally not been purchased.

Study Area Advantages:

The banks of the entire creek, from Spartan Road to its confluence, have been officially
designated parkway. The Mahon Creek area from State Highway 54/57 to the Bay is
owned by the city and does have a recreational trail (open to public use) following its
course located on adjacent university camnpus property. The remainder of the designated
Mahon Creek Parkway is very heavily wooded and is largely an undisturbed natural area
with unique topographic features.

Recommended Actions:

The city and the university should continue to work cooperatively with respect to
arboretums, parkways, and the planning of pedestrian/bike trails.

The land which has been officially proposed as a parkway but not yet city owned should
be purchased. This portion should be left in a near natural state with the exception of
being cleared to allow for a nature hiking trail through the ravine, and to be kept free of
debris to comply with Federal Emergency Management Agency (FEMA) Standards for storm
water management.

Access points to the proposed parkway and trail system should be considered and be so
designated in all future area development plans concerning this study area. Planning for
the future development in this area should also include safe and convenient crossing links
(for pedestrians and bicyclists) between the University of Wisconsin-Green Bay Campus
area, the new Northeast Wisconsin Technology Park, and the neighboring residential areas.
* ~~~~~Hutchinson's Bog is a natural wetlands and is the headwaters for Mahon Creek. This land
is designated a wetland and is protected by federal and state rule and should be preserved
for wildlife habitat. It eventually should be publicly owned due to its large size and
potential scientific and educational value.

If the Northeastern Wisconsin Technology Park fails to become a reality, a neighborhood
park should be developed in this area adjacent to Mahon Creek, between Lake Largo Drive
and Bay Settlement Road (see Study Area #4 for other recommendations for the area at
the mouth of Mahon Creek),

Study Area # 12

Location:

Ellis Creek and Willow Creek (north and south branches), southeastern Green Bay (Maps:
34, 35, 36, 37).

Description and Existing Key Factors:

* ~~~~~This study area contains the remaining unenclosed section of Ellis Creek, from its source
near Aphrodite Road to the point where the creek's flow is channeled into a storm sewer
near the intersection of Van Beek and Manitowoc Roads, where it remains buried until it
empties into Baird Creek.

Willow Creek is also contained within this study area and is adjacent to the existing Wilder
* ~~~~~Park. The creek's north and south branches flow separately within the Green Bay city
limits, one starting from the 1-43 Business Park, east of 1-43, following southwesterly into
the Town of Bellevue and to the East River.

Study Area Disadvantages:

The Ellis Creek Parkway, due to its size and private ownership of land abutting the area,
functions mainly for storm water management and is not well suited to general public trail
use. Limited public access exists for much of the northerly area of Willow Creek at this
time.

Study Area Advantages:

Large areas of open space land which offers habitat for area wildlife and a place for native
vegetation to grow in both the Ellis and Willow Creek Parkways. The existing linkage of
Willow Creek along the boundary of Wilder Park provides excellent public access to this
valuable natural area.

Recommended Actions:

Ellis Creek was principally designated for the purpose of storm water management. The0
Ellis Creek Parkway Area should remain as public property for this purpose with limited
public access. The plan highly recommends that the residents with property abutting the
parkway follow the suggested maintenance policies as noted in the appendix of this plan.
(Also see General Recommendation (L) relating to the categorization of small parkways.)

The plan recommends that the Willow Creek Parkway (north branch) be improved by the
construction of a pedestrian/bike trail from High Meadow Court to Manitowoc Road with
a linkage to Wilder Park and to the adjoining neighborhood where appropriate. The routing
of this trail should follow the sewer line easement where possible as grading and tree
removal has already been done (in connection with the extension of the sanitary sewer
system in 1990). The proposed trail would serve as a safe, convenient, and pleasurable
pedestrian/bike route to Wilder Elementary School/Park and N.E.W. Lutheran High School
area students, and as a passive recreation trail for local residents. Access points to the
trail could be located at Manitowoc Road, Alpine Drive, Robinson Avenue (between the two
schools), and with other subdivision access routes at Van Beek Road and High Meadow
Court (through the Faith Chapel property). At this time, the feasibility of the potential
access points needs further study. The trail would increase the accessibility to the
parkway, thereby helping the area schools better utilize the parkway for water and nature
studies. N.E.W. Lutheran High School has expressed an interest in building an outdoor
science lab near the parkway which they would also allow the students of Wilder
Elementary School to use.

Willow Creek, South Branch, is located east of Interstate 43 and is contained largely within
the 1-43 Business Park. This 80 acre conservancy/parkway was developed mainly for the
purpose of storm water management and wetland preservation, but is mentioned in
literature for the business park as a site for passive recreation. Development of this
parkway by the addition of pedestrian trails and park tables/benches is recommended. This
parkway, once completed, could be used by existing business park employees for business
meetings, employee breaks and noon lunches. The improved parkway would be a definite
asset to the business park which would help attract new businesses to the park.

75~~~~~~~~~~~~~

Study Area #13

Location:

Beaver Dam Creek area as contained within the Green Bay city limits. West Green Bay
between Military Avenue and Packerland Drive (Maps: 38, 39, 40, 41).

Description:

This study area is mostly residential in nature. Beaver Dam Creek Parkway's borders
include Fireman's Park, Beaver Dam Park/McArthur School, John F. Kennedy Park/School,
* ~~~~~and Southwest High School.

Study Area Disadvantages:

Private residential ownership of land abutting portions of the narrow parkway, as well as
major street crossings, make the creation of continuous public/pedestrian paths difficult.
* ~~~~~~Short sections of trail do exist in specific areas.

Study Area Advantages:

Large areas of open space land which offers habitat for area wildlife and a place for native
vegetation to grow. The location of schools abutting the parkway offers an excellent
* ~~~~~setting for students to do nature studies without the need for transportation.

Recommended Actions:

The above mentioned schools should be encouraged to work cooperatively with the city's
Park and Public Works Departments to plan and develop nature study areas for their
* ~~~~~students to use. The construction and maintenance of these areas should be done by the
students as a learning experience in ecology and respect of nature.

Pedestrian paths should be developed following the creek's channel wherever practical.
In the areas where Beaver Dam Parkway is abutting private residences, the property owned
by the city should be treated as parkway and should remain as public property with limited
* ~~~~~public access. The plan recommends that the residents with property abutting the parkway
follow the suggested parkway maintenance policies as noted in the appendix of this plan.

This study area catches the corner of the proposed He-Nis-Ra wetlands property. Although
this site is not a part of a waterway as the other areas of this plan are, it is important to
note the environmental significance of this large wetland area. It is recommended that the
* ~~~~~city secure the ownership of this property and thereby guarantee its protection.

Study Area #14

Location-

* ~~~~~Duck Creek area near the northwest corner of city limits (Maps 42, 43, 44).

Description:

Contained within this study area are Pamperin County Park, Ted Fritsch Park, Oneida
Creek, Duck Creek and LaCount Creek Parkway, as well as Oneida Golf and Riding Club.

Study Area Disadvantages:

A large portion of this area is privately owned by Oneida Golf and Riding Club (a private
membership only facility). The southerly portion of LaCount Creek Parkway is narrow and
surrounded by private residences with little public access.

Study Area Advantages:

Most of the shorelines in this study area have been designated as parkway on the Official
Map and thereby restrict development. The existing proximity to Ted Fritsch Park and
Pamperin Park provide potential parkway/walkway linkages for the future for the city, the
Town of Hobart and the Oneida Tribe.

Recommendations:

The sites within this study area which have been designated as parkway but not yet
purchased should be purchased. The exception to this being land owned by Oneida Golf
and Riding Club which should be allowed to stay under private ownership since it is zoned
Conservancy, restricting development.

The plan recommends wherever possible to establish pedestrian or pedestrian bike trails.
The City Park Department should work with the county to establish one cohesive park
along both sides of Duck Creek.

Presently only a narrow band of land is designated parkway on the Official Map along the
Duck Creek. Lands of the Oneida Golf and Riding Club are mostly zoned Conservancy
District and some is zoned Residential Park. Conservancy District limits development
appropriately. This area should be expanded to include the areas shown as proposed on
Maps 42, 43 and 44.

Area development plans drawn for future development in these areas should include access
points to the designated parkway through the use of pedestrian paths or pedestrian bike
paths.

One major access (bridge) across LaCount Creek to Ted Fritsch Park should be pursued and
constructed by the city at one of the two existing public access points west of Ted Fritsch
Park.

B. DETAILED PROPOSALS MAPS

The proposals for all 16 study areas are detailed in the following 44 maps. Parkway
boundary lines represent approximations and should not be taken as absolute. When and
if properties are acquired by the city, a formal survey for that specific area should be

developed and utilized to negotiate the establishment of an exact parkway boundary based
on parkway and adjacent economic priorities.

Plate 4 outlines the locations of the study areas as well as the maps within each study
* ~~~~~area.

For a compilation of all mapped proposals, see Plate 5 for the overall city waterfront plan.

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PREPARED BY: PMWAY 5
GREEN 9AY FLINNI've 101OP71. & COMPREHENSIVE WATERFRONT PLAN '"No PAN
CREEN DAY PARKAND RECREATION DXSZCNArXD PARW / PARM
SCALE NORTH CREEN BAY WISCONS11V PROPOM PAW / PAUTAr 3 5

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WILDLIFE .. ..... ...........................................................................................................
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PREPARED BY.' STUDY AREA VIP
CRERN BAY FLLUINC 10-VPT A
-ga COMPREHENSIVE WATERFRONT PLAN
GREEN BAY PARK AND RECREATION SCALE NORTH GREEN BAY WISCONSIN PROPOSED PARIr / PARKMAY 3 6
EXS""r

BA Y OF GREEN BAY c

POTENTIAL STREET
END PARK SITES--\ NOTE:
SHORELINE CONTAINS
DIKE AND 100' OF c o o .
DIKE UTILITY EASEMENT

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00 ~~~~~~~~~ a a DD~~~~~~~~~~~~~~~O ~~~~~~~O j~~~~~~~~ Do ~~~......... ...........
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BAY BEACH~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~................................ ..
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PREPARED ........ .... ..... ..... . ................................. wswP ~..... ....... AR.A .......
GREEN BAY PLANNING DEPT & ,~~~~~ F WATERFRONT V LAIN........................................
GREEN DAY PARK AND RECREATION DEPT. scij~~~~~~~~~~~~s NORTH tREEN BAY WI..........S. .............P.R.....P...............

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P"PAPSW BY. ISTUDYAMI MAP
MWEN IMY PURMNO DEPT. COMPREHENSIVE WATERFRONT PLAN
CREEN MY PARK AND RECREATION DEPT. DIT=770 PARK / PARKWA (`ma"wffl 4
SCALE NORTH GREEN BAY WISCONSIN PROPOSED PARK / AAAKFAY

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BAY OF GREEN BAY ~~~~~~~~~~~~~~~~~~~~~~~~~PARK/SCHOOL-:''
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PARENT RD. PARKWA Y
STREET END PARK~

PREPARED~~~~~~ ~~~~~~~~~. .. . . . .- . . . . . . . . . ~ SJNTS AE AP A (FICA

CRIEN AY PAK ANDRECRETION EPT. CALE JORTH REEN AY WICONSI p~opss........A...A

PARKYA Y

BAY OF CREEK BAY

I__I-, COMPREHENSIVE WATERFRONT PLAN srun AM
= REEN BAY' PARW AND RECREATION SCAEPT NORTH CREWK BA Y wIscomTSIN PROPSOED PANX / PAR" 5r1

PROPOSED NEW
/ D // Ace PARKWA Y

BURIED STORM 0�
WATER CULVERT
(WITH EASEMENT

BAY OF GREEN BAY PROPOSED NEW

APPROXIMATE AREA OF
FUTURE NEIGHBORHOOD
PARK

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cIERD, ,,, i// A COMPREHENSIVE WATERFRONT PLAN REPO
CREEN BYur R"NC RoNDEFT.C 5 G WSOI PMD/PARX Y (or"y�~ 5MP
PREEN BAr PARE AND REcRCaTMN SCAL ~lE NORTH REEN BAY ICONSITN PR P

BAY OF GREEN BAY

co
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PREPARED BY. OSFCNMBD FlRk / P= WAY STUDY AREA NAP
GREEN D COMPREHENSIVE WATERFRONT PLAN ATlSTIKPWA/Arr (OMCIL XIF)
GREEN DAY PARK AND RECREATION DEPT. SaLE NORTH GREEN BAY WISCONSIN 'plm"Ep"r / pARr 5 1 2

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(D~ m. CMRHNSV AER~N LA tD R? A
SCALE NORTHCRE~l? BAYWISCOSIN ~ ~ / ~6 1

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MENJul PLANNIN)G DE-PT. & COMPREHENSIVE WATERFRONT PLAN DXS2'UDYIN PAN,'. I
-GREEN BAY PARE AND RECREATION DT. SCALE NORTH G!REEN BA Y WISCONSINT PIPSDA I.-AWA6 1 4

~~~~~~~~~~PRPSEYDU

PREPARED BY. WSYAT RFRON MTAP
CREEAY PLANNINC DEPT. &COMPREHENSIVE W'' ATRFRON2 TU PANE A
CREEN BAY PARK AND RECREATINDET SCALE NORTH GREEN BAY WISCONSIN PR POSD A / PAWA 7 5

BULKHEAD

POPOSED

RAILS TO TRAILS
PEDESTRIAN/IBIKE

MRPARNO BY I.. 'C i E ''NST7' .,.T R N A~ �151 VJl PARK PARKWAY STUDY AREA' MAP
GREEN DAY PARK AND RECREATION DEPT. SCALE NORTH GREEN BAY WISCONSIN PROPOSED PAW / P'ARKWAY OPX 8 1 6

PROPOSED

RAILS TO TRAILS
PEDESTRIAN/BIKE

PREREED &O CO.,REHENSIVE WATEFOTP)A ''~~~ STUDY AREA MAP
CREEK BAY PLANNING DEPT. & 095rURD PARK PARRAY(FICIALMP
GREEN BAY PARK AND RECREATION DP. SCA4LE NORTH GREEN BAY WISCONSIN P~POE PAS PARK Ar 8 17

HOWARD 0
CORP.

FRUFARED BCOMPREHENSIVE (amaump)R I (FCJ n STUDY AREAl MAP
GREEN SAY PARK AND RECREATION DEMT. SC L NORTH G-REEN BAY WISCONSIN PP.POSED PA / PA8 1 8
0,I S F

9 9 Y U U U U U U 9~~I

ADM. FLATLEY
& MARI�N

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PREPARED BY. '' 'R ~ TT' WT'D'P( T PTTT�I1K A~ AL STUDY AIMA MAP
GREEN BAY PLANNING DEPT. C O M P R E ~ i.. H r ~ l~ ',~J i1 ENSIVEYN WATRFRON PLANKA I(00ICU AP)
GREEN DAY PARK AND RECREATION DT. scR NORTH GREFEN BAY WISCONSIN PRoposgD PAPZ / PAmrKAr m 9 I 9

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an ~ ~~~~~~~~3 oqrJo LC

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P R E P A R E D D Y ~ ~ T A T ~ m ~ ~ T 1 T h , - ~ N ~ ~ m 5 f l ~ l ~ l 7 ( G P A R E / . . . . . . . . .
RAY PL4NNJNC DEPT ~ ~ ~ ~ ~ ~ ~ ... . . . . . . . . . . . . . . . . . ~ F T~ 1N1 t' AI . STD RE A
CREE BA PA K AN RE REA ION EPT SC LE N RTHGRE N BA WI CON IN DSICA...P............FFIIALS.P
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P]WRIUMD BY. PARMY STUDY All-'Al MA
OREM BAY PI"IMINC COMPREHENSIVE WATERFRONT PLAN I-- r (orna" Mm p
GREEN DAY PARK AND RECREAVON BAY WISCONSIN ANSIGNAISD PARK / PARAWA 21
SCALf MORTH REEN pRo"swo pAff / FAIMW&r

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PREPARED BY: ~ ~ COMPREHENSIVE i~p~/P~~ir STUDY AREA MA
CREENBAYPL4NNINCDEP2'. & ,~~~ WATERFRONT 1' LAIN DIS!C......PR....AKWA
GREENBAY PRE APD RECEATIO DEP. sc~ NORT CREE BAY ISCONIN POPOSE PARK/ PAR W . . . . 9 . 2

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CREEN BAY PLANNING................. ....... .. ....~/JV~AL14-1L . . . . . . . ~jr~omj pjjg-
GREEN~~~~~~~~~~~~~...... ......... PAK...R.RAIODP. ....OT CENBYWTCNI gPE ~~y/PPXA

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I �'rnIDDP1~'NTQT~T~ W~rrPPPANTT DTANT,~oew/P..kr.r STU. APA.A MA
RAY PUNNJNC DEPT. & I ~ ~ ~ ~ IN31~~EA?1D PAR~~/ PARKWAY !DI7ICIAL MAP) ....(1
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CREEN BAY PARK AND PJXREATION ~~~~ SCALE NORTH GREEN BAY WISCONSIN ~~........RK.AY

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PREPARED BY.' I =5119r PA" PAP"AY Y eoyr=L Aup) STUDY AREA MAP
GREEN DAY PLANNING DEPT. COMPREHENSIVE WATERFRONT PLAN DYSICNAUD PAM / PARWA
GREEN BAY PARK AND RECREATION DEPT. SCALE NORTH CREEAF BA Y WISCONSM PWOSOD PAM / PAn7A Y I 0 25

..............

PREPARED BY., DEPT. COMPREHENSIVE WATERFRONT PLAN PA&MAY r (oprcut AfApi STUDY AMA MAP
GREEN BAY PLANNING DEPT. & D
GREEN DAY PARK AND RECREATION SCALE NORTH GREEN BAY WISCONSIN PROPOSID PAXF / PAREFIr 1

.'::.DE T.... .....\\\\\\SS' ORM WATER\\\
--\\Ar.................. REA
'o P ARKWAY LINE

..........
:......:....../'........ DESIGNATE RM WATER
, ' O;:E~jg, ...'.' '.' v.'.'.v\ / .v.v.v.'.-....-::::::::::::::::::::::::: \

.:/ l- --,--.... - ~ ........... THIS INE

MANAGEMENT AREA

iiiiiiiiiiiiiiiiiiiiiiiiii : . .:P A Y STUDY YE -,P

PREPARE''.D '... - . COMPREHENSIVE ...WATERFRONT P'LAN n
GR,,EEN,,, ,,,,,,,,, A , P,,,, DP ,,
GREEN BAY PARK AND RECREATION DEFPT. PSCAL NORTHP GREEN SAY PK"SCONSN| 2
..................CONSIN
...................~ ~ ~ ~ ~ REE BA....o~ /PxarkXN

0~~~~~8

D ~ ~ ~ ~ ~~~E

0Df PARA'

PFREPALRED BYOM RE EN IV E18"51C AIPRK/ A fo~cjp) STUDYG j ARAA
0REEN BAY PLAVVfc COMPREHEPTIVE WATERFRONT PLAN DISM PA /-ROA
GREEN BAY PARK AND RECREAVtON DEPT. SCALE NOR TH CREEN BAY WISCONSIN MMEDPA / PAWA N7 102

0 S 0 5 0~~~~~~~~1

..PARKWAY A ND
STORM WA TV]R
MANAGEMENT AREA

4~~

APPROXIMATE AREA OF
FUTURE NEIGHBORHOOD
PARK
WOODSIDE
GOLF COURSE

9thc

Ifi - COMPREHENSIVE WATERFRONT PLANT
ORUEN RAY PARK AND RECREATION D SCALE NORTH CREEN BAY WISCONSIN PoDPaWssD PAR/ PARIMA Y

'13

PREPARED BY.,C M R H N I EDSCMD AK/PR A OcA STUDY AREA MAP
GREEN BAY PARK AND RECREATI'oNv DEPT. SCALE NORTH GREEN BA Y WISCONSIN ~T Af1 0 30

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WHOM
CREEK
PARKWA Y
NORTHEAST WISCONSIN

TECHNOLOGY PARK Ito
D
:5 13

PREPARED BY.- COMPREHENSIVE WATERFRONT PLAN --0 PAR" J'ARKWAY STUDY AREA A(AP
GREEN DAY PLANNINC DEPT & Drsip"VID PAff / PARKWA
rW-PN DAY PARK AND RECREATION SCALE NORTH GREEN BAY WISCONSIN PROP03ND PARE / PAWWAY 3 1

/ rTCA
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N~~~~~~~~~..... .....................Y ian

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.RE A LNIGDP. . .........................PATE.PARE...PAR..A

PREARE.B. & . . . . . 0..........j~ VAI iC T . . . STe ......WYSTtY RA A
.................................................... ...............................PAR/ PRKWY 11 3

............9.. . .............. ... . ..... . .......

TOWN OF SCOTT

UN! VERSTWISCN!
."'GREEN' BA CMus,
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& .q....CMREESIEWTEFON.LA . . . ~ fJDAS
CRER), BAY PRK ANDRECREAYON DET ~ NOTH CREK BAY IMSCO~Nnni op

:.:.EDISON .....
-e:-:MIDDLE.....
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~-~. CMRHNIEWATER FROMNTHI .......f\D~fD

CREEN BAY ~~~~~POR N ERAIONDPT. CL ONOT CRE AISCONIN 41 ARK (ocu MP 1 3

BUIDCLE? . . .............(

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Implementation

VIL. IMPLEMENTATION

A. MANAGEMENT

Many of the recommendations presented here have been previously recommended in
various city and county plans or programs and remain to be accomplished. This plan brings
them together in a waterfront format.

Implementation is accomplished by using planning, legal and financial means. An adopted
* ~~~~~plan for local government is the first step in qualifying an area or project for future action.
This is followed by appropriate legal action in the form of land use controls such as zoning,
subdivision and official map requirements, then acquisition and development can take
place, which in most cases involves at least partial public funding.

There are a host of planning recommendations presented herein and adopted by the city
* ~~~~~government on previous city plans, on county plans, on state plans and also by private
interests. City governments have limited financial resources from which to carry out their
numerous responsibilities, some of which are mandated by law. Public financial programs
through state and federal agencies are almost always needed to supplement new
waterfront funding when local matches can be budgeted. Sometimes private funding is
also available.

How does a city coordinate all city interests and responsibilities and allow for new public
waterfront acquisition and development? Ideally, a long range financial plan is in place
known as a "capital improvement programn". Such a program schedules large capital
expenses over a five or more year period to even out large expenses and to allow for the
planning for financial assistance through state and other agencies. Proposed waterfront
acquisition and development projects are then included in this program, among all of the
other city's new projects, where they can be evaluated together by the Mayor and City
Council annually. These matters are then detailed and updated each year in order to keep
the capital improvement program current and forecasted for the next five years.

A permanent management system within the city administration needs to be formed to
concern itself with our waterfronts, including port/industrial interests,
* ~~~~~recreational/residential interests, and to safeguard our natural resource/environmental
interests.

This could take the form of a subcommittee formed from the Plan Commission, the Park
Committee, the Economic Development Authority, and the Improvement and Services
Committee and/or a staff committee formed from those same departments. This group
* ~~~~~would then prepare and review project plans for approval by the necessary agencies, with
the necessary technical expertise. In some communities, waterfront management councils
and authorities have been formed with extensive authority.

B. MANAGEMENT CRITERIA

A waterfront management system, to be effective must be able to:

1. Accord the potential waterfront development with the attention necessary for
securing a priority from the public agencies and private interests.

2. Be eligible for potential funding sources.

3. Review and monitor all aspects of waterfront revitalization: social, economic and
physical.

4. Provide an organizational continuity and stability that is sufficient to assure public and
private groups that the proposal will be carried through.

5. Evaluate development proposals and negotiate modifications in proposals that might
conflict.0

6. Involve the community, individuals, civic and neighborhood organizations in shaping
the programs.

7. Place the waterfront proposals in appropriate context with the overall comprehensive
plan and capital improvements.

An inter-departmental team should be appointed for waterfront matters each year to work
with the affected city committees. As waterfront development progresses, this team will
need to assess its progress and prepare necessary changes to this plan, the city wide
comprehensive plan, and/or municipal controls and budgeting to achieve the overall goals
of the city.

C. LAND USE CONTROLS

The right arm of land use controls afforded local governments is zoning which is the
designation of the community into various land use categories called "districts" to achieve
a desired future land use plan in accordance with an adopted comprehensive plan for the
public's health, safety and general welfare. In addition to zoning, cities are afforded the
ability to adopt subdivision regulations to control how land is divided, and to adopt an
1.official map" wherein new streets, parks and parkways are designed and adopted by
ordinance, designating their fir-its and locations. Special building setbacks are also
adopted, requiring new buildings to be set back from streets (and waterfronts in this case).
Another form of city land use control is public purchase, which if the land is resold, can be
obligated through deed restrictions to achieve or not interfere with public objectives.

129

D. LAND ACQUISITION

Public land acquisition can be accomplished in different ways, as follows:

*~~~~~ 1. Fee simple
2. Public dedication
3. Public exchange with/for another parcel to achieve public ownership
4. Public write-down of cost with redevelopment restrictions
5. Public easement
6. Deed restriction/covenant allowing or directing a limited public use
* ~~~~~7. Land banking for future private use per public guidelines

E. FUNDING SOURCES

U.S. Army Corps of Engineers

* ~~~~Although planning and development funds were previously available for recreational
harbors, none are currently available.

Wisconsin Waterways Commission

Authorized by Chapter 30.92 and administered by the Wisconsin Department of Natural
* ~~~~~Resources, funds are available from the Recreational Boating Facilities Program for
matching grants for "Harbors of Refuge" and other boating facilities, usually on a 50
percent basis with the local government.

Funded activities include breakwaters, shore protection and necessary dredging, as well
as general boat launching facilities.

Wisconsin Department of Natural Resources

The department administers several other programs:

1 . Acquisition and development of local parks under Chapter 23.09(20) are potentially
available to develop those elements of a marina setting as a public park, usually a 50
percent match.

2. Land and Water Conservation Funds (LAWCON)

Federal monies available for park related development, usually a 50 percent match
basis.

3. Urban Waterways

A program for funding land acquisition only on a 50 percent match basis.

130

4. Sport Fish Restoration Fund (Formerly Dingle-Johnson)

Federal aid for sport fishing access (piers, ramps and associated parking), usually a
50/50 match basis, although more is possible.

5. Wisconsin Coastal Management Program

Portions of a marina or boat landing may be funded such as pedestrian paths for
public access, path lighting, transient boat docks and environmental educational
facilities.

6. Department of Transportation Funds a Transportation Economic Assistance Program
(TEA) which can fund parkway trails when the trail can be shown to provide an
alternative mode of transportation.

7. Department of Development administers a funding program called the Major Economic
Development (MED) Fund. MED provides low cost financing for projects that create
a significant number of jobs and/or economic impact for a community, such as on
lands adjoining a waterfront.

S. Housing and Urban Development (Community Development Block Grant) Funds since
Green Bay is an "entitlemnent community".

Revenue Sources Other Than From Grants

1 . General Obligations Bonds.

2. Industrial Revenue Bonds (for manufacturing industries only).

3. Tax Incremental Financial (TIF).

4. Lease Agreements.

5. Marina and Other Revenues.

F. INCENTIVES TO PRIVATE DEVELOPERS

Private developers are among the primary participants in most urban waterfront
redevelopment proposals, with profit as the major incentive. Government can serve as a
catalyst for private action as well as perform regulatory functions to protect the public
interest. Government/private sector partnership is especially needed if the proposal is
large-scale, requires detailed market analysis or long-term capital improvement, or has
significant social or environmental impacts.

In recent years, participation by government as part of joint public/private ventures has
broadened the nature of developments to include (in addition to the profit motive) social
objectives such as providing jobs, improving the local tax base, or el-eating recreation
opportunities. Even in such joint ventures, the consideration of the potential return on the

private investment remains the deciding factor. Waterfront redevelopment projects must
ultimately make sense in economic terms in order to attract private capital.

In addition to direct financial contributions, communities have other means of encouraging
private investment, including special tax programs and zoning incentives. These
considerations frequently involve negotiations between local governments and private
interests as part of the complex real estate development process, which includes detailed
analyses of interest rates, cash flows, tax advantages, and land assembly methods.

Soecial Tax Districts

Many states have adopted legislation that allows local governments to establish special
taxation districts. This approach institutionalizes the tax incentive mechanism and allows
it to cover a broad area. The goal is usually to stimulate private investment in specific
areas of the community by reducing the tax burden on existing properties in the district.
In this way, the tax district serves as an incentive for private investors to locate new
enterprises in the area or improve and expand existing structures.

Most special tax districts are established by local governments according to specific criteria
that are outlined in the enabling legislation. In some cases, property owners in a proposed
area may petition the local government for special tax district status. When this occurs,
a majority of the landowners must be in agreement, and the area must meet the
established criteria in order to qualify. Once a special taxation district is proposed, a formal
review is mandatory, which includes public hearings where all property owners in the
district can testify. The local government will then approve or disapprove the application.

Special tax districts can be implemented in a variety of ways, but each has the common
purpose of encouraging private investment in areas targeted for development. The most
common type of district is one that reduces property taxes for specific time periods. The
assumption is that a lower tax rate will be an incentive for new businesses to locate in this
area. Another approach, which primarily affects existing developments, is to exclude the
value of improvements made to a site from the overall tax assessment.

Tax Increment Financino

Urban redevelopment projects often result in substantial increases in local property values,
both on the actual site and in the surrounding area. Utilizing the Statute, these higher
assessments can generate (an increment of) greater property tax revenues for local
governments, and tax increment financing is a method of temporarily using these increased
values to provide funds for redevelopment projects. Thus the increased tax increment over
23 years is used to fund the project in its initial seven years.

Tax increment financing establishes a method of financing urban redevelopment projects
outside the general fund of a local government, which is derived principally from the
expected increase in property taxes. This technique isolates the additional property tax
revenues produced by redeveloping and upgrading deteriorated properties and uses these
revenues to repay the costs, including retirement of the municipal bonds that were sold to
*()~~ ~finance construction of the public's share in the project. Green Bay has some expertise and

132

experience in this area; two successful Tax Increment Financing Districts have been
created in downtown Green Bay.

TIF revenues can also be used to capitalize special financing programs for private
developers and businesses locating or expanding within the district. Generally, the funding
programs offer more attractive financing than conventional uses.

Business Improvement District

A Business Improvement District (BID) is a special taxation district usually established in
older commercial areas to help businesses with promotion and undertakes minor public
improvements. To create a BID, at least 60 percent of property owners within the district
must agree to the establishment of the funding mechanism. Following the creation of the
BID, a work program and budget are established to determine the amount of tax revenue
needed from each property owner.

133

Appendix

Vill. APPENDIX

A. Glossary of Related Terms.

B. Recommended Maintenance Of.

C. Shore and Stream Development - City of Green Bay Controls.

D. Parkways/Official Map - Public Use Policy, City of Green Bay.

E. Broadway Redevelopment Plan.

F. Renard Isle Future Land Use Plan.

G. Brown County Bicycle/Pedestrian Plan (Draft).

H. Comprehensive Waterfront Plan Survey.
-Questionnaire.
-Results

A. GLOSSARY OF RELATED TERMS

Bulkhead: A geographic line along a reach of navigable water that has been adopted by
a municipal ordinance and approved by the Department of Natural Resources pursuant to
S30.1 1, Wisconsin Statutes, and which allows limited filling between bulkhead line and the
original high water mark, except where such filling is prohibited by the floodway provisions
of this ordinance,

Central Business District (CBD): The largest, most intensively developed, mixed-use area
within a city, usually containing, in addition to major retail uses, governmental offices;
service uses; professional, cultural, recreational, and entertainment establishments and0
uses; residences, hotels, and motels; appropriate industrial activities; and transportation
facilities.

Channel: Natural or artificial water course of perceptible extent, with definite bed and
banks to confine and conduct continuously or periodically flowing water.

Conservancy District/Area: Land designated for the preservation of open space and natural
features including aesthetic qualities and may be also used to preserve watercourses or
retention and storage of water in ponds. Certain open space uses are permitted to provide
private and public access. Also a general term for parkways.

Easement: The rights to a parcel of land that a municipality or franchised utility holds in
order to use or maintain for said portion for specified, defined purposes.

Flood: A temporary rise in stream flow or stage that results in water overtopping its banks
and inundating areas adjacent to channel.

Floodplain: Land adjacent to a body of water which has been or may be covered for
storage of flood water, including but limited to the regional flood.

Flood, Regional: A flood determined by the State Department of Natural Resources and the
Federal Insurance Administration in the flood insurance study for an area or municipality
which is representative of large floods known to have happened to the area and reasonably
characteristic of what can be expected to occur in a particular area. The regional flood
generally has an average frequency on the order of the 1 00 year recurrence interval flood
determined from an analysis of floods on a particular stream and other streams in the same
general region.

Park and Parkway: An area legally reserved on the Official Map, by Wisconsin Statute
62.23.

Parkway; Lineal public open space, often along a river or waterfront, usually for
recreational use.

Rails To Trails: A federal act to give interested parties (governments) the opportunity to
use railroad rights-of-way, which might otherwise be abandoned, for recreational use.

Waterfront: Land or section of town/city fronting on a body of water.

Waterway Setback: (Green Bay Zoning Code) A building setback of 50 feet from the
bulkhead line or ordinary high watermark whichever provides the greater landward
distance, or all waterways within the City of Green Bay.

Watershed: The entire region or area contributing runoff of surface water to a particular
watercourse or body of water.

Zoning: Regulations governing the use and placement of land and buildings.

B. RECOMMENDED MAINTENANCE OF RIVERFRONT PARKWAYS

Left near to natural state with fallen trees, branches cleared from water's path (to prevent
storm water from being blocked).0

No artificial landscaping,

Underbrush and trees trimming only for the purposes of bug or rodent control.

Grass/vegetation to be cut on a bi-yearly mode similar to state highway maintenance
schedules.

Types of Surfaces Found on Trails in Parks/Parkways

Hiking/nature trail - dirt or mnud surface

Walking - wood chips or crushed stone

Pedestrian/bike - crushed stoned or bituminous (black top)

Bike trail - crushed stone or bituminous

Bike lane - paved lane usually parallel to roadways

C. SHORE AND STREAM DEVELOPMENT CONTROLS BY THE CITY OF GREEN BAY

Type Intent

* ~~~~~Comprehensive Plan

Comprehensive or Master Plans, or To portray long range goals and
their component project plans, objectives of a community in
adopted per 62.23(3), Wisconsin a map and text format
Statutes

Official Map Intent

A map illustrating proposed streets, To preserve proposed new streets,
parks, and parkways, adopted per parks, and parkway areas by withholding
62.23(6), Wisconsin Statutes new building permits, to enable
* ~~~~~~~~~~~~~~~~governments to acquire such
lands through purchaseor dedication

Zoning Intent

Regulations governing the use and To restrict the use of lands and structures
* ~~~~~placement of new land uses and according to public regulations to promote
structures, in text and map format, the public's health, safety and general
adopted per 62.23(7), Wisconsin welfare
Statutes

Also, includes regulations pertaining
* ~~~~~to floodplains and wetlands, as
required by Wisconsin Administrative
Rule

D. PUBLIC USE POLICY OF CITY OF GREEN BAY PARKWAYS ON THE OFFICIAL MAP

Laws/Ordinances Governing Use

1. City zoning and official map (regulation of building permits and subdivision plats).

2. State NR 116, NR 117, Chapter 30 Wisconsin Statutes.

3. U.S. (Corps of Engineers), Section 10; 404.

Purpose of Parkway/Stream Areas (In Priority)

1. Drainage of watershed.

2. Floodplain storage area.

3. Erosion control/ice management.

4. Water quality - surface non-point source.

5. Recreational path.

6. Natural/aesthetic division/linkage of development.

7. Water quality - groundwater.

8. Wildlife habitat within urban system.

Use of Parkways/Streams in City (In Priority)

1. City/State.

a. Central channel to be open and unobstructed for drainage.
b. Floodplain is equally important to be always available and open.
c. Protect channel banks from erosion up to top of bank.
d. Government has right to enter and clear away obstructions and debris.

2. Adjoining Public. Occasional private recreation in the parkway; lawns, picnic overflow,
trail area, occasional use with general public pedestrians.

3. Educators. Schools, scout and similar use for outdoor education.

4. General Public. Regular use of larger parkways for passive recreation, only occasional
use of small parkways.

E. BROADWAY REDEVELOPMENT PLAN

The Broadway Redevelopment Plan was developed by the firm of Howard, Needles,
Tammen and Bergendoff for the City of Green Bay's Redevelopment Authority and was
* ~~~~~approved in the Spring of 1994.

The proposed plan encompasses an area from Mather Street to Mason Street and from
Chestnut Avenue to the Fox River. The goals and objectives of the project were to
revitalize and enhance the entire Broadway District, and in the process create a more
attractive and desirable location for commerce and recreation. It is the plan's intention to
establish an explicit connection between the Broadway District, the city's waterfronts and
the main business district located on the eastern side of the Fox River.

The plan's recommendations include, but are not limited to:

* Creation of a continuous public waterfront access from Main to Mason Streets through
the use of pedestrian trails, open space, promenades and plazas.

* Provide for public and private boating facilities for both transient and residential or
leased docking.

* Promote, solicit and develop a mixture of residential, commercial, retail and
professional developments within the district.

* Any and all development within this redevelopment district will be cognizant of the
area's history and turn of the century style architecture. Buildings of architectural
significance will be refurbished and those that are not or are in too poor of condition
will be razed and hopefully rebuilt with infill in keeping with the development.

* * ~~~~~The Redevelopment Authority will also pursue and encourage cultural and educational
facilities to be built within the area.

For further information and details of the redevelopment, see the Broadway District
Redevelooment Plan.

F. RENARD ISLE FUTURE LAND USE PLAN

Renard Isle is a man made island located about 800 feet off shore from Bay Beach Park in
the Bay of Green Bay.

The island was designed by the Army Corps of Engineers as a confined disposal site for
polluted (but not hazardous) dredged materials from the Green Bay Harbor entrance and
channel. The current island is 55 acres, with plans for a possible expansion of up to 1 83
acres. The expansion plans are currently on hold due to environmental questions.

Plans for a pedestrianlemergency vehicle causeway from the park's shoreline dike area (just
west of the present Bay Beach Park area to the island's southeastern shore) have been
drawn. The island itself will contain areas for passive recreation (maintained), passive
recreation (natural), and a wildlife sanctuary with areas being wooded, grass lands, beach
areas and a nesting area for herring gulls. The schedule of when this project will begin is
undetermined until the question of expansion is settled.

The island is presently owned by Brown County but managed by the Army Corps of0
Engineers. The plan calls for the island, when no longer needed or used for dredge spoils
disposal, to be turned over to the city or city/county to be managed and developed as
described above.

See Renard Island Future Land Use Plan, 1978-1988, for further information.

G. BROWN COUNTY BICYCLE/PEDESTRIAN PLAN (DRAFT 1994)

This pedestrian/bike plan points out the need for communities to look at the pedestrian and
* ~~~~~bicyclist's needs for safe, pleasurable and direct as possible routes to accommodate his or
her transportation needs. Municipal government are required to provide networks of
transportation to its citizens. Green Bay's waterfronts in many cases would provide the
most logical and safest routes for this portion of the overall transportation network,

For further information regarding this plan, see Brown County Bicycle/Pedestrian Plan
(Adopted 1994).

H. PARK, RECREATION AND OPEN SPACE PLAN

The Park, Recreation and Open Space Plan is a comprehensive plan written by the Park and
Recreation Department and the City's Planning Department. This plan, along with long
range recommendations to maintain, improve and insure adequate recreational space and
facilities for the citizens of Green Bay.

The need for adequate recreational space and facilities has been recognized as a
prerequisite to good mental and physical health. Parks and open space are the most
common and logical way for a city to preserve, protect and enhance environmentally
significant and/or sensitive areas for the benefit of present and future generations.

This plan is currently in the early stage of being revised and will be consistent with the
Comprehensive Waterfront Plan.

Refer to Park, Recreation and Onen Soace Plan 1 990-1995 for further details on this plan.

1994 COMPREHENSIVE WATERFRONT PLAN SURVEY

This survey was distributed through a number of public offices and private businesses in
the City of Green Bay in the Spring and early Summer, 1 994. It was also published in the
Green Bay Press Gazette for return on May 10, 1994.

Over 500 surveys were returned, with valuable information including numerous additional
comments added by respondents. The results are included here.

City of Green Bay
Plan Commission
1994 Comprehensive Waterfront Plan

Do you have 10 minutes?

The City of Green Bay,through a grant from the Wisconsin Coastal Management Program, is
currently updating the 1984 Comprehensive Waterfront Plan. To facilitate the planning process,
we are asking for public comment regarding your ideas, wants and needs for use and develop-
ment of the city's waterfronts.

The Comprehensive Waterfront Plan will include all shorelines along the Fox and East Rivers,
Duck, Mahon, Baird, Beaver Dam, Nicholson and Willow Greeks, as well as the shoreline of the
Say of Green Say.

For further information or questions, call the Green Say Planning Department, Roger Anderson,
448-3400.

Please fold and mail the completed survey to:

Green Bay Planning Department
Room 608
100 North Jefferson Street0
Green Say
WI, 54301

Thank you very much for your cooperation and valued input.

1. Are you a resident of the City of Green Bay? 0 Yes 0 No
If not, what community? Allouez. Howard. De Pere 336 163

2. Do you work within the city limits? 0 Yes 0� No
362 92
3. What is your age? 0 0-18 0 19-35 0 36-55 0 56+
5 86 283 114

4. Should the city encourage beautification of privately owned
waterfront properties? 0 Yes 0 No E Undecided
450 17 46
5. Do you think the City of Green Bay is making proper use of its
waterfront resources? Many ,owents of the nature wue mst [ Yes 0 No 0 Undecided
do nore. Iok at this city or that. 43 397 57
6. Would you like to see more public access to the city's waterfronts? 3 Yes 0 No 0 Undecided
446 24 29
7. Would you like to see more pedestrian/bicycle paths developed
along waterfronts? Msny cmtent sayirg we nust do this 3 Yes 0 No 0 Undecided
(sae had very strong beliefs in this). 408 32 59
8. Would you like to see more waterfront areas for environmental
and passive recreation purposes? r Yes 0 No 0 Undecided
383 56 60
9. Do you presently use existing pedestrian/bicycle paths along the
Fox or East Rivers? D Yes O No
280 209
10. Do you feel these pedestrian/bicycle paths should be interconnected
with city parks and other major areas of the city? 0 Yes 0 No 0 Undecided
355 48 96
11. If paths were expanded and interconnected, what would you use them for?

247 0 A. Recreational Use C D. Would Use Rarely 54
8 0 B. Transportation (i.e., Work, Shopping) [ E. Would Not Use 27
162 0 C. Both A & B Most people w would use as transportation wu also use for recreation.

12. How many times per month would you use expanded and interconnected pedestrian/bicycle paths?
00-4 05-9 0 10-20 021+
205 126 91 21
13. Do you use existing public parkways along waterfronts? 0 Yes 0 No
Which ones? Most often listed was Green Isle in Allouez 368 4
or Riverfront Wk in Ce ntral Business District.
14. Do you own /have use of a boat or water vehicle? 0 Yes 0 No
What type? Of those with boats, nany had t,. or rore. 263 236
169 0 Outboard 0 Inboard 0 Sailboat E Canoe/Kayak 0 Pontoon 0 Jetski
3 0 Other 65 52 74 9 11

15. Do you use local waterways for fishing? 0 Yes 0 No
Which other recreational uses 181 314
Waterskiiri often listed
16. How often do you use a watercraft per month? (during boating season)
0 0-4 0 5-10 0 11-20 0 20+ O N/A
118 124 40 24 193
17. How far (miles) do you travel to use the watercraft?
0 0-4 0 5-10 0 11-20 0 20-50 0 50+ O N/A
64 85 39 46 57 208
18. Do you use the city metro boat lauch? 0 Yes 0 No 0 N/A
110 247 140

19. Do you use or have you used the city's marina
(located at Holiday Inn City Centre)? E Yes [] N28 E NI
11724
20. Do you believe the number of available boat slips in 79 220 200
Brown County are adequate at this time? 0 Yes [ No 0 Undecided
Five years from now? 0 Yes M No6 0 Udecided
22 266
21. Do you dock your boat at a marina? U Yes 52 C] No225 0 N/A 222
In Brown County? 0 Yes 42 0] No138 0 N/A 319
If not, which county D:or, marinette, conto, KReaus'e

22. If boating facilities were improved and capacity increased would
your usage of the areas's waterways increase? 0 Yes C] No 0 Undecided
186 136 127
23. If more landings and facilities were to be built, where should they be built?
1370 A. Along Fox River East Shore 121. D. Bay Shore West
1540 B. Along Fox River West Shore 170 0 E. Bay Shore East
630 C. Along East River

24. How should improvements and expansion of boating facilities be paid for?
9 0 A. Public Funding 23 0 E. Combination A & C
14 0 B. Private Funding 53 0 F. Combination B & C
77 0 C. User Fees 1�7 0 G. A,B&C
21 0 D. Combination A& B

25. Do you believe that the beautification and development of the
A very strong yes response.
city's waterfronts would have a positive impact (i.e., more
tourism, more jobs) on the community's economy? 0 Yes 0 No 0 Undecided
469 12 18
26. If you could have any new facilities you wanted on our waterfronts, what would they be? Please check ( v )
and add to the list if you wish.
#27 #28 27 #28
.- 8 0 A. Active Sports/Recreation Areas 54 5 0 M. Pedestrian Walkways
17 32 0 B. Bandshell/Outdoor Music 16 19 0 N. Picnic Areas
32 19 0 C. Bicycle Paths 39 20 0 O. Restaurant/Outdoor Cafes
23 40 0 D. Boat Launching Sites 13 101 l P. Retail Activities
23 32 0 E. Boat Harbor with Slips/Moorings 38 8 0 Q. Riverfront Parks
20 45 0 F. Botanican Gardens/Conservatory 2 89 0 R. Ship Loading (Overlooks/Overviews)
11 7 0 G. Elderly/Disabled Access & Facilities 4 21 0] S. Street End Parks
21 38 M H. Fishing Piers/Areas 7 56 0 T. Swimming Areas (Traditional)
27 96 0 I. Movie Theater/Performing Arts 8 go 0 U. Swimming with Slides & Water
Features
12 37 0 J. Nature Studies o10 73 0 V. Tourist Attractions
30 23 0 K. Nature Trails 3 66 0 W. Winter Uses- Ice Boating, Fishing
6 32 0 L. Pedestrian Overlooks 3 121 0 X. Roller Blades
Other:

27. Of the above, which three are MOST IMPORTANT to you? M 1 0 2 Q 3 C

28. Of the above, which are the LEAST IMPORTANT to you? X 1 P 2 I 3 U

29. Do you believe the city should acquire waterfront properties for
recreational use/environmental preservation as they become
available? ] Yes 0 No 0 Undecided
442 17 2
Very strong yes response with coment that we have missed many opportunities in the past. MMntioned
often was Nbrthest jhineering site.

30. In your opinion has the water quality of area waterways in the past 10 years

* )33. 0 Somewhat improved
127 [C GVast rajority respaled as irj v (slightly or greatly) or
1 0 Slighrtly degraded cacmnted that we still have a lonkg way to go.
1 CSlightly degraded
7 a Significantly degraded
22 0 No change
Please add comments here

Fold here

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............------------ ---W-CONI-
GREEN BAY PLAN COMMISSION 5W4 3 0 1
ROOM 608- CITY HALL 448-3400

B. F. PARULESKI. AICP
PLANNING DIRECTOR

GENERALIZED, COMMON COMMENTS
FROM WATERFRONT SURVEY
July, 1994

1. The City of Green Bay has been very slow and is running behind most other cities
whose central business districts are located on waterfronts. Cities noted included
Sheboygan, Milwaukee, Minneapolis/St. Paul, Boston, Pittsburgh, Cincinnati, St.
Louis, and more.

2. The city has done a good job and people are pleased with the central business
district's riverwalk and marina but feel these must be expanded. Pedestrian/bike
trails should be lengthened to include the full length of the Fox and East Rivers. The
areas of green space associated with the trails should be larger.

3. Green Bay is not doing enough. Our valuable resources (waterfronts) must be utilized
for the greater public good.

4. We must promote our city as a waterfront city. In order to do this, we need
waterfront parks, pedestrian/bike trails, waterfront restaurants with boat docking
located within walking distance, and entertainment facilities with live music. Tourism
should be promoted to make Green Bay a "Port of Destination" which in turn will
bring added capital to our local economy.

5. Festivals/events should be scheduled on a regular basis.

6. Retail and speciality shops located near to and accessible to the waterfront.

7. The city should buy all waterfront property it can to increase public access now and
ensure it for future generations. By the city owning the waterfront, the city can
control its uses and destiny.

8. Aesthetics of Green Bay's waterfront must be improved. No more waterfront parking
lots or ramps. Future building should be oriented toward the waterfront, and when
parking is associated with the new construction, it should be located street side not
waterside.

9. Green Bay lacks bike trails and lanes. Biking should be promoted as a mode of
transportation. Rails-to-trails pedestrian bike trails between Green Bay and De Pere
strongly supported.

10. The importance of green strips along waterfronts to act as a natural filtration system
* ~~~~~~for the water before entering the area's rivers and bay.

11. The city government has been too concerned with not spending money. When
spending money now to purchase waterfront properties, the city will be able to
control them and increase the future tax base by its proper utilization. The city
officials have not listened to what the public wants but often bends to special
* ~~~~~~~interests.