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EAST WASHINGTON AVENUE Old East Side Master Plan EAST WASHINGTON AVENUE Old East Side Master Plan Better Urban Infill Development Program Dane County, Wisconsin August 2000 OLD EAST SIDE MASTER PLAN ACKNOWLEDGEMENTS Design Team Tim Griffin Ruth Koontz Susan J.M. Bauman, Mayor Mike Lamb Mark A. Olinger, Director, Dept. of Planning and Development Bradley J. Murphy, Director, Planning Unit Peter Musty Rich McLaughlin Bill Smith Project Staff Lucy Thompson Archie Nicolette, Planner II – Project Manager Bill Lanier, Planning Technician Debora Morgan, Program Assistant III Workshop Space Donated by the Salvation Army City Resource Staff Team East Washington Avenue BUILD Project was funded by the Dan McCormick, Traffic Engineering Rob Phillips, Engineering Dane County Better Urban Infill Development (BUILD) Program. BUILD provides planning assistance to Dane County Judy P. Olson, Assistant to Mayor communities and the city of Madison for redevelopment and infill development planning projects. BUILD is a component of East Washington BUILD Advisory Committee Ald. Barbara Vedder, District 2 – Chair the Dane County Executive Kathleen Falk’s Design Dane!: Susan Agee, Emerson East Creating a Diverse Environment through Sensible, Intelligent Growth Now. Ken Balkin, Ella’s Deli & Ice Cream Parlor Barbara Foley, Neighborhood Committee Lou Host-Jablonski, Urban Design Commission Representative prepared by David Leucinger, Schenk-Atwood BIKO ASSOCIATES, INC./TOWN PLANNING COLLABORATIVE Ald. Kent Palmer, District 15 joint venture Greg Rice, Madison East Shopping Center © 2000 – City of Madison, Wisconsin OLD EAST SIDE MASTER PLAN TABLE OF CONTENTS PREFACE . .ii Pedestrians and Bicycles . .26 Specific Areas . .26 INTRODUCTION Union Corners . .26 The BUILD Program . .1 Madison East Neighborhood Retail Area . .27 The Capital City Gateway . .1 Starkweather Creek/Salvation Army Site . .30 East Washington BUILD Project Goals . .4 STH 30 Gateway . .32 Public Participation . .5 PLAN IMPLEMENTATION BACKGROUND AND ANALYSIS Next Steps . .32 Previous Studies and Plans . .6 Implementation Techniques . .33 Context . .8 Zoning Code Amendments . .33 Urban Geography . .8 Public Realm . .34 Design and Appearance . .10 Land Use . .34 Transportation and Circulation . .11 Movement Networks . .34 Redevelopment Principles . .13 Urban Ecology . .34 Built Form . .35 PLAN RECOMMENDATIONS Urban Standards . .35 Architectural Standards . .35 Place-making . .19 Advertising Signs . .36 Land Use and Development Opportunities . .20 Organizational Structure . .36 Employment Anchors . .20 Residential Development . .21 APPENDICES Neighborhood Commercial . .21 Traffic and Circulation . .23 A. Citizen Workshop – Questions and Answers . .37 Transportation Planning Goals . .23 B. Issues and Expectations Advisory Committee . .42 Vehicular Movement . .23 C. Sample Urban Codes and Standards . .43 Transit . .23 D. Streetscape Examples for East Washington Avenue . .51 i OLD EAST SIDE MASTER PLAN PREFACE Guiding principles are presented for new, incremental construction of roadways, pathways, open spaces, buildings, The East Washington Avenue corridor is a gateway into the and landscaping that will help create valuable places for Capitol and governmental center of the State of Wisconsin. everyone in Madison. The Old East Side Master Plan has four key Over the years, the image of this gateway has changed, components that demonstrate the community’s commitment to sometimes expressing the magnificence of Madison, the Capital encourage a strong sense of community, generate sustainable City, and other times not. Whether the Gateway Corridor will economic and social systems, and create a better quality of life once again demonstrate the magnificence of the City is entirely for local residents and business owners. up to the citizens of Madison. In the Introduction section, the historical significance of the This plan recognizes the project area’s place in the Gateway project area is described in the manner in which the design Corridor. It reviews the historical evolution through two team determined community priorities. Automobile-oriented centuries of human settlement and urban building. It also development patterns from 1950 through 1990 created a examines the effect a lack of physical planning and sustainable business climate more interested in the passing traffic on East development initiatives has had on the Old East Madison area. Washington Avenue than the commercial service needs of local Therefore, this plan describes future opportunities for this area neighborhoods. There is a strong opportunity to redevelop to be successful and contribute to the regional significance of attractive commercial services and civic places that are the Capital City Gateway. comfortable for pedestrians, bicyclists, and transit riders. STUDY AREA Diagram of the East Washington Avenue Corridor with key intersections, features and the East Washington Avenue Study area indicated. ii OLD EAST SIDE MASTER PLAN The Background and Analysis section provides a physical description of the study area. It describes previous studies and planning work, the framework, and the principles the design team used for this plan. The Plan Recommendations have four themes. Placemaking discusses and recommends enhancements to the East Washington Avenue Corridor project, being prepared by HNTB, through the study area. The Land Use and Development theme constructs an argument for mixed-use, pedestrian-oriented infill and redevelopment of parcels within the project area, and new commercial development to serve surrounding neighborhoods. The Traffic and Circulation theme constructs an argument for traffic and roadway engineering supportive of the emerging mixed-use, pedestrian-oriented corridor development. Corridor-wide themes are discussed for The newer open Eastside Shopping Center at the edge of Madison in 1956 four specific areas: Union Corners, East Madison Neighborhood Center, Starkweather Creek and the STH 30 Gateway. Finally, the Plan Implementation section describes a procedure and set of ordinance changes, based on urban design principles, that will guide the future development of viable neighborhood centers along the corridor. The Plan includes a strategy for the City of Madison to work consistently in the interest of the local community by providing cost-effective public realm improvements, compact land use, multi-modal transportation choices, and preservation of the local urban ecology. iii OLD EAST SIDE MASTER PLAN iv OLD EAST SIDE MASTER PLAN INTRODUCTION • The opportunity to encourage mixed-use development and provide a range of infill development opportunities. The BUILD Program • The opportunity to have a public discussion about the area. The Better Urban Infill Development (BUILD) Program was The Capital City Gateway created to use viable existing urban models and community- It would be difficult to plan for a future for the East based design processes to generate property redevelopment and Washington Avenue Corridor gateway without understanding reinvigorate community activity. Dane County administers the how it came to be such a prominent entrance to the Capital City program to assist local governments in preparing plans to redevelop and promote infill development in specific locations in the first place. Once this is understood, the design and development framework for the corridor established by this that are rundown and may appear unattractive for reinvestment. Plan becomes clear. The corridor has always been an important Additional and improved residential development is functional access to the Capitol; it is the Plan’s purpose to once particularly targeted as an urban revitalization strategy to improve local property values and generate customers for again celebrate that role. improved local commercial and service opportunities. The East Washington Avenue project consisted of a multi-day design workshop. During these focused planning events, the design team held meetings to identify community goals and values. The design team produced a series of graphic products that demonstrate integrated urban design and planning alternatives as well as strategies necessary for implementation. There are several reasons why Dane County has supported this effort through the BUILD program. These include: • The need to encourage development in areas where there is already existing infrastructure. • The importance of providing jobs near services. • The opportunity to enhance existing neighborhoods and businesses. • The chance to avoid developing productive farmland. • The need to provide more residential choices for the The Capitol is the terminus and focal point of the East Washington Avenue Corridor. community. • The need to clean up contaminated sites. 1 OLD EAST SIDE MASTER PLAN The Original Plat significant location or termination – the Madison plan possesses Madison’s rich planning history benefits from the work of John none of the splendid features of L’Enfant’s great plan for Nolen in the first decade of this century. However, the Washington. The excellent and well differentiated street plan of underlying structure of blocks, streets, and building lots was the latter finds no true echo in Madison. There are no open not originally Nolen’s idea. Rather, Madison’s urban structure squares, triangles, or circles at the intersection of streets, no was first determined by James Duane Doty, and Madison’s first reservation of fine sites for public buildings other than the plat map was drawn by the Green Bay-based surveyor John Capitol,...” Suydam in 1836. It was Doty’s intention
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