This past Monday night a public meeting was held to discuss possible streetscape improvements to Downer Avenue and a change in the previously approved plan for Downer Avenue.  The change would replace a proposed medical office building with a small boutique hotel.

The local Business Improvement District (BID) and merchants association have been moving forward on a streetscaping proposal that would use $300,000 of funding from the BID and an additional $300,000 from the Department of City Development to improve the pedestrian experience along Downer Avenue.  Additionally, businesses reached out to Joel Lee, of Van Buren Management, to develop the former Associated Bank location into a small boutique hotel instead of the originally proposed medical office building.  Mike Eitel, representing the area businesses, spoke passionately about the urban environment and how there are trade-offs involved in city life, but these improvements will make the area better for everyone.  He went on to explain that the merchants on Downer Avenue. are “really not at the height of our dynamic growth,” and added, referring to the new hotel proposal, that “I think of it as sort of a way to bring Downer Avenue back.”

Scott Kindness, of Kindness Architecture + Planning, presented the streetscaping plan.  He explained that the plan intends to make the street more conducive to local business and pedestrians.  Specifically the plan would include tripling the size of the tree boxes so trees can flourish and the area around them can be planted, bumping out the sidewalk to create spaces for outdoor cafes near the former Bartolotta and Chancery locations, the use of stamped asphalt in the pedestrian crosswalks, the addition of twenty new bike racks, the replacement of the existing pavers with an updated material, and the burying all the overhead wires along the 2600 block of Downer Avenue.

The preliminary designs for the new hotel were presented by Matt Rinka, of Rinka Chung Architecture Inc. He explained that it would have a 20 stall underground parking garage, and that the hotel would be roughly half the size of a standard hotel.  He added that the materials on the hotel building would include limestone precast panels, granite pieces for some columns, and the restaurant would feature large wooden doors to facilitate cafe dining.

Some questions arose regarding the “lack of parking” in the area and residents feared this would increase the problem.  Matt Rinka attempted to explain that if they built this hotel with a parking spot for each room, essentially overbuilt it, “then we’re designing Bluemound Road,” and that this is an urban area so although parking is always an issue it is expected that not all users of the hotel will drive to it.  He offered a tongue-in-cheek remark that to solve the residents parking concerns by adding more parking stalls “we could make this building taller,” which got a big laugh, but apparently didn’t alleviate the residents concerns.

Joel Lee explained that although financing is not locked in yet, the $5.5 million project is a very manageable level of funding.  He added that the hotel is will be more like an upscale bed and breakfast, and that they have a potential Wisconsin hotel and restaurant operator lined up.  He attempted to summarize saying that “we believe this can get done.”  After a series of questions regarding garbage collection and parking issues he added that “it’s very frustrating and difficult to invest money in the neighborhood that needs it,” because despite the value they attempt to bring to the neighborhood they always face stiff opposition.  He further added that “if you look at the stability of this street it is very weak,” indicating that this new development could help the revitalize the street and local businesses, if it was allowed to move forward.

The topic of Peter Kovac’s litigation against the City of Milwaukee came up and a some clarity was given on the possible outcomes of the litigation.  For example, it does in fact include language asking for the parking structure to be torn down, though it does offer other remedies as well.  It was indicated by Joel Lee that with the lawsuit hanging over the head of the original hotel proposal, no lender is willing to come in and do a flagged hotel.  Interesting enough, Peter Kovac got up and supported the proposed hotel saying “it’s better than the surgery center.”  He was then quick to indicate it is too tall and needs changes so his support came with conditions, but with the outstanding lawsuit it was unexpected.  He went on to say, referring to the garage, “the architecture is all wrong” and that “we’ve proposed a facade change.”

Near the end of the meeting a resident put Alderman Kovac on the spot, asking him if he supported this project.  He responded that it is “my personal opinion is this is a much better use and design than the previous design.”  Although, at times tempers flared on both sides of the lawsuit, a straw poll of the audience reflected general support for the hotel if some adjustments were made.  This proposal is likely to be schedule for the May 18th meeting of the Historic Preservation Commission, with the intention that it would be on the June cycle for approval at the Zoning, Neighborhoods & Development meeting.  The goal on the part of the developer and the BID is for both projects to break ground in October of 2009.

Historic preservation is a good thing, when for example it is used to restore City Hall or re-purpose the Grain Exchange because it adds value to Milwaukee.  Unfortunately, when in the name of historic preservation “creative lawyering” is used to save a high-priced view or a surface parking lot, it isn’t such a good thing.  These are just two of examples of how historic preservation laws have been distorted in attempts to stop development projects instead of saving historic structures.  I believe that the spirit of historic preservation regulations are to save significant structures when possible and to encourage their adaptive re-use so these buildings can be enjoyed long in to the future.

In the case of the Downer Avenue redevelopment residents attempted to utilize preservation laws to stop the construction of a parking garage and additional structures.  Although a parking garage isn’t an ideal use or especially impressive architecture, neither was what it replaced, a surface parking lot.  Related parts of the project involved restoration of multiple deteriorating buildings and enhancement of another previously altered structure.  It is fair to oppose the development project on its merits, but in the end the project will achieve many preservation goals that should be supported by the preservation movement.

The Transera project proposed the development of a 26-story condominium tower to be constructed behind the historic Goll Mansion.  It’s important to note that the new building would sit between two other high-rise buildings at least one of which, 1522 on the Lake, sits on land formerly occupied by a mansion.  This is important as the site is now more in context with high-rise development than it is a row of mansions and unlike previous high-rise development along Prospect Avenue this project intends to put the Goll Mansion back in to active use.  Further a recommended preservation technique used to rehabilitate a historic structure and insure its future viability is to integrate it with the development of a modern structure.  For example, the Villard Houses in New York City exemplify a great example mixing old with new with the result being the saving of a historic structure.

It is important to question these efforts because when actions are taken in the name of “historic preservation”, but aren’t truly about historic preservation, this takes away from legitimate preservation efforts.  And legitimate preservation is vitally important to the City of Milwaukee.  One of the great features of our city is its wonderful mix of old and new buildings because this creative re-use of existing structures ties our past to our future, adds character to our streets, creates a unique sense of place and maintains the urban fabric.  The unfortunate truth, is that it is often convenient to utilize historic preservation laws to save a view, slow progress, and protect the status quo.

This past year saw tension grow between New Land Enterprises and East Side residents over the proposed redevelopment of Downer Avenue.  Although the issue isn’t completely resolved, as shown by the ongoing lawsuit, progress has been made towards the redevelopment of Downer Avenue.  At this point the Schwartz building has been rehabbed and medical offices have been added to the long vacant upper floors.  The much debated parking garage has opened and Associated Bank’s move to the new space nears.  Further a couple of storefronts in the Mulkern Building building have been redone and more will be updated as spaces become available.

A reader suggested that we take a few pictures from the top of the parking garage, so after a long delay we present these photos from the top of the Downer Avenue parking garage.

Ogden Avenue between N. Van Buren Street and Milwaukee Street has numerous retail establishments, but how well do they work together?  Quite poorly.  The groupings of stores work fairly well amongst themselves, but as an Ogden Avenue retail corridor they turn their backs on one another.

The result?  Store failings, retail space going unleased, and territorial fights over abundant parking spaces.  Problems akin to a failing suburban shopping mall, but not an organic retail corridor.  Milwaukee has numerous corridors on the east side alone that are successful or on the tip of a rebirth including Brady Street, North Avenue, Oakland and Locust, and Downer Avenue.  None of the other corridors carry the national brand strength that Ogden Avenue possesses with Chipotle, Panera, Pick ‘N’ Save, Blockbuster, Einstein Bagels, UPS, and Starbucks.

So why isn’t Ogden Avenue mentioned as a marquee landmark street like North Avenue, Brady Street, and Oakland Avenue are?

Is the lack of a transit connection the Achilles heel for Ogden?  Certainly not.  The street is served by the ever-popular 30 bus line, along with the 11 bus line.  The heavily traveled 10 line also crosses Ogden Avenue as well just east of the retail stretch.

Is it a lack of diversity that prevents growth?  Certainly not.  A full range of housing borders the street from every side, including condos both new and old, apartments both expensive and cheap, and a brand-new, mixed-use public housing facility.

Does that diversity create crime?  Not as evidenced by my subscription to Milwaukee’s e-notify service.

Parking shortages (even if it’s just a perception)?  Absolutely not.  There is a massive parking lot as part of the East Pointe Marketplace, more than ample street parking (all unmetered), and a parking lot for the former John Ernst Cafe building.  Not to mention all of that parking is free.

So what’s the issue?  The orientation of the buildings in the middle of the district (image showing storefront orientations).  Instead of facing the street like the rest of the storefronts do, the East Pointe Marketplace building that contains UPS, Einstein, Starbucks, Blockbuster, etc. faces towards the parking lot.  This is heavily detrimental to the street.  People at nearby Panera, Karma, and Chipotle don’t interface directly with the East Pointe Marketplace retail building.  If they’re coming from or going to the north they may walk past the Pick ‘N’ Save, but outside of Einstein Bagels (the eastern most tennant), there is little to no engagement by the other establishments in the East Pointe Marketplace building.

This, however, didn’t seem like much of an issue until the mixed-use 601 Lofts building opened along with the completion of the new Convent Hill building (before photo, after photo), another mixed-use building with street-level retail.  The building now has three occupied business condos, including the recently profiled IT Gallery.  Those three units interact well with John Ernst building units (Panera, etc) and likewise are well-connected with Coldwell Banker and currently unoccupied unit on the corner of Ogden and Van Buren.

The Housing Authority of the City of Milwaukee (HACM), owner of the Convent Hill building, has yet to lease either of its retail units despite being within 100 yards of some of most recognizable retail stores in the country.  What should be a great walkable street starting on Van Buren and running currently to the edge of Convent Hill is certainly walkable, but far from lively or cohesive.  The back of the East Pointe building that faces Ogden St isn’t horrendous, but certainly doesn’t activate the street.

This small design flaw imposes all kinds of hidden costs.  The most obvious of which is the inability for the street to market itself beyond individual establishments (you go to Brady Street, you don’t go to Ogden Street, you go to Chipotle or Starbucks), this limits the number of potential customers any of the businesses might interact with.  This inability for the street to be perceived as a destination limits the desirability of retail units along the street lowering occupancy and failing to encourage more businesses to organically cluster.  This problem has manifested itself in the two Convent Hill units, two failed wine stores, and a long period where there wasn’t anything in the Karma Bar & Grill unit after Vivo closed.

The biggest cost though is the opportunity cost for a future development on the parking lot at East Pointe.  As it’s structured now you couldn’t replace the lot with a building because the storefronts all would be immediately adjacent to the new building, instead of the street.  The Pick ‘N’ Save building is fine, because the privately-owned portion of Jackson Street would buffer it.  So instead of possessing a great developable asset, the Mandel Group (East Pointe developer) is stuck with a giant surface parking lot that certainly isn’t the highest and best use.

A debatable hidden cost is the Park East parcel under contract with RSC & Associates that abuts East Pointe.  If the East Pointe building was orientated to complete the street it’s quite possible that Milwaukee County would have received more (and potentially better) proposals on the RFP they issued for the parcel.  Unlike non-leasing of the Convent Hill units, RSC & Associates’ inability to get their development off the ground appears to have little if anything to do with the rest of Ogden Street and is a story for another day.

Mandel shouldn’t be completely faulted for the awkward development though, as the Marketplace complex was planned well-before the new urbanism movement took hold in Milwaukee (and nation-wide).   Unfortunately, I think just about every developer in the city would have made the same mistake, especially considering at that point it was at the end of the former Park East freeway stub and the John Ernst Cafe was still the John Ernst Cafe, not three separate restaurants.

How does this situation get fixed to allow the corridor to flourish?  It’s certainly not going to be a cheap fix.  While I’m typically not a fan of TIF’s for non-brownfield or currently occupied land, one might work here.  If the city of Milwaukee was able to create a TIF or help guarantee a loan that both reversed the building to face Ogden and created an additional multi-story building on the current surface lot, it would be a huge win for the neighborhood (not to mention the city-owned Convent Hill building and adjacent land).  Unfortunately, I don’t think that’s in the cards anytime soon, as the slumping housing market would make such a deal economically infeasible at this point, along with likely complaints that would arise from other developers for giving what they would perceive as a “hand-out” to Mandel.

For now, Milwaukee is just going to have live with a painfully obvious “what if” on Ogden Avenue.

UPDATE: Somehow, despite living a block off of it and living in East Town for four years, I managed to call Ogden Avenue “Ogden Street” for the duration of this article.  That has now been fixed.  Thanks to Michael Horne for pointing that out.

The high profile Sydney Hih building and Downer Avenue redevelopment project were the main items on the agenda for this commission meeting.

The initial item regarded the proposed interim historic designation for the Sydney Hih building. The developer requested it to be held over and as it had been previously presented the developer had no immediate intention to demolish the building. Although Sandra McSweeney questioned how many times it could be held over and whether or not there was a limit, it was held again.

The highly contentious and overly litigated Downer Avenue parking garage came before the commission again. This time it was to request a change to the Certificate of Appropriateness (”COA”). The request was actually prompted by future tenant Associated Bank. The bank has taking issue with the lime green color that much of the building is slated to be stained. Specifically the request was to allow the developer to paint the scored panels white instead of the green stain. Although paint wasn’t the first choice for the building because some of it has already been stained the only option available is to paint it. Also discussed at length was if this change would impact the wall facing into the neighboring properties’ backyards. This request wasn’t addressing that side other than to stop it from being stained green. Throughout the discussion there were hints to the troubled history of the project as Sandra McSweeney claimed the color was part of the “muddy water” and Pat Balon said “we have several dangling issues regarding this project”. In the end it was approved with Sandra McSweeney abstaining from the vote.

The last item of interest was a slight change to the COA for another building that is part of the Downer Avenue redevelopment project. Of interest was that the first portions of the Mulkern Building to be redeveloped will be the two vacant storefronts and then will proceed as tenants depart the building. Because the requested change was minor it was approved quickly.

New Land Enterprises‘ $55 million Downer Ave. development project is going up quickly despite pending legal action. The first phase consists of a parking garage, designed by Scott Kindness of Workshop Architects, that includes first floor retail and has undergone numerous redesigns in an attempt to better fit the neighborhood. Despite the changes some neighbors felt these concessions didn’t go far enough and filed a lawsuit against the City of Milwaukee and DAPL LLC seeking to stop construction . The results of today’s hearing is unknown at press time but it is seems New Land Enterprises and the City of Milwaukee believe this case will be dismissed as development has moved ahead at a brisk pace. Despite the contentious nature of the project the overall goal of adding density and new business to the Downer Ave. district should have the long run impact of bringing vibrancy and business back to this urban commercial district.
UPDATE A second hearing will be held on 2/1/2008. Additionally the judge felt there was some wrong doing on the City’s part though as of yet didn’t issue an injunction that would of stopped construction. More details can be found in the jsonline article.

Related Links
Historic Preservation Commission Meeting - Monday, May 14, 2007
Resolution 061440

The controversial Downer Ave area development that includes an 11-story high rise hotel/condo building and a parking garage on Downer Ave has finally broken ground. The neighborhood was polarized on this issue and certain residents were outraged to say the least but overall this is a good development for the area. The added foot traffic that the new medical offices, hotel guests and condo residents will bring should bring needed vitality back to the street. Further the renovations of the historic buildings are long over due and the work already done looks great.

To follow what’s going on I’ve started a flickr set, Downer Ave. New Land Enterprise Development, that I will update with new pictures to keep track of the progress.

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