Part 2: Reconnect Neighborhoods
WIS175 and the Search for Critical Places
In 2021 the Federal Highway Administration (FHWA) initiated the “Reconnecting Communities Program” to fix freeways in urban areas:
“the purpose of the [Reconnecting Communities Pilot Program] is to reconnect communities by removing, retrofitting, or mitigating transportation facilities like highways or rail lines that create barriers to community connectivity, including to mobility, access, or economic development. The program provides technical assistance and grant funding for planning and capital construction to address infrastructure barriers, reconnect communities, and improve peoples’ lives.”
This program funded a feasibility study for the WIS 175 expressway over a two-mile segment spans across a highly diverse set of neighborhoods, districts, and subareas. The places in the overall study area have been “disconnected” – pulled apart over decades by the freeway, railroad, topography and public policies. The reconnection strategy for this area began by understanding the historic circumstances and acknowledging, from the outset, that there is no single or simple method for reconnection. Foremost, the pattern of urban from surrounding WIS 175 was evaluated and the pattern of urban form was viewed through the lens of social and economic conditions which have impacted reconnection.
Social & Economic Condtions
Volumes of data measure the social, economic, and political facts of the WIS 175 area. Not all data, however, bears relevance to evaluating feasible strategies for reconnection. Relevant data comes from viewing the issues of disconnection in an historic and geographic context. These data lead to the following useful knowledge about Washington Park, the character of neighborhoods and housings, and the legacy of social and economic inequities.
Washington Park – The Nucleus for Reconnection
WIS 175 borders the entire west edge of Washington Park. In addition, arterial links from WIS 175 extend along both the north and south edges. In sum, WIS 175 and its linkages surround the park and impact its use and value. Conversations among planners, engineers, government agencies, and local community groups routinely emphasize the significance of Washington Park as the heart of the community.
The landscape architect, Frederick Law Olmsted, envisioned a park that was central to the whole city (like Central Park in New York City, albeit much smaller). Olmsted believed that city residents from all backgrounds should have a place to come together in nature. Washington Park was intended to appeal to a wide variety of people, economic classes, and population groups. The park is, a place to socialize, relax, and enjoy the rejuvenating powers of a natural setting.
Many still see Washington Park as a “jewel in the crown” of Milwaukee’s. park system. Since the 1890’s, however, some of the park’s vitality has been lost. On the other hand, the park still has potential to restore some of its urban prominence, continue to integrate nature into the everyday life of the City, serve ongoing community needs and, importantly, catalyze opportunities for urban reconnection.
New or expanded activities and facilities should increase socialization. Such an objective does not rely so much on better traffic engineering, but it does intertwine almost entirely with neighborhood reconnection. Olmsted planned places to meet with friends and to be enjoyed across class boundaries. He emphasized lagoons in many of his parks as social centers for boating and ice skating. Today’s Urban Ecology Center may not duplicate his plans exactly, but it clearly echoes his aspirations in a contemporary manner. The zoo and racetrack are gone but the park still draws visitors and fosters a sense of wonder in nature. The bandshell and music events have remained strong. Picnics may have diminished, but barbecues and tailgating have emerged. The playgrounds, ball fields and a hopefully renewed swimming facility are all consistent with his vision.
Neighborhoods & Housing
Multiple neighborhoods surround Washington Park and abut WIS 175. These neighborhoods contain a wide range of strengths and weaknesses and offer major opportunities for improvements. The housing options in local neighborhoods serve people at different stages of life and different socioeconomic backgrounds. Several housing pockets in these neighborhoods are culturally distinct and have a unique look and feel – an historic condition worthy of preservation. A diverse housing stock helps drive economic resilience to the periodic shifts in the housing market. At the same time, weaknesses in housing economics include lower household incomes, lower home ownership rates, and higher numbers of vacant properties. It will be important to maintain economic diversity, improve value, retain affordability, but avoid gentrification.
Housing types in the study area include single-family homes, upper/lower duplexes, and multi-family buildings ranging from a few units to 20 or more units. Nearby multifamily developments include even larger numbers of units. This housing stock supports multiple lifestyles. Unit sizes also vary which further supports income diversity. However, east of Washington Park and north of Lloyd Street the vacancy rates, property value, and the home ownership rates, are much lower. AS might be expected these areas exhibit with higher poverty rates and levels of racial segregation. In neighborhoods west and south of Washington Park the economic metrics are stronger, especially the Washington Heights neighborhood.
Proximity to job centers can help drive economic development provided local transit systems can be strengthened. For example, the neighbors are reasonably close to Downtown Milwaukee, Marquette University, Harley-Davidson, Molson Coors, the Milwaukee Regional Medical Center (MRMC), and the Veterans Administration Medical Center. Here, the key to “reconnection” includes broader, more convenient transit.
A Legacy Of Generational Inequities
A long-term legacy of social and economic injustice overshadows the diverse milieu of people in the project area. While social and economic inequities may not be a first-order impact caused by freeways, they do create secondary impacts which, over time, can be far more damaging and lead to permanent inequities in local neighborhoods. These inequities do not impact all residents at all times, but they add up over decades to create a legacy of long-term inequitable impacts. Some examples:
In the 1930’s, the federal Homeowners Loan Corporation (HOLC) mapped neighborhoods on a scale of investment risk (high risk areas were shaded red). Areas labeled high risk were colored red. In became increasingly difficult to obtain mortgages at reasonable rates in these “red-lined” blocks. Over years initial inequity has embedded a chronic cycle of reduced ownership, lower maintenance and physical deterioration. When combined with other social inequities it can still be an overwhelming obstacle to families wanting to buy homes.
Energy burden is also an equity issue. As building insulation and home appliances age they require more energy, especially when measured as a percentage of household income. Over time the scope of work needed for energy efficiency exceeds the resources of occupants and incentivizes absentee owners to avoid improvements.
People who live, work, or attend school near major roads also have an increased incidence and severity of health problems associated with air pollution (asthma, cardiovascular development, disease, impaired lung pre-term and low-birthweight infants, childhood leukemia, premature death). Again, this may not impact everyone every day, but collectively over time this chronic condition creates clear inequities.
These inequities need to be recognized as part of the reconnection problem. New development should not only avoid such inequities but also remediate the legacy that still exists.
Build for Development Capacity & Long-Term Markets
The weakened real estate market conditions in specific subareas of these neighborhood may not be insurmountable. Many local conditions are susceptible to positive change over the long-term, especially investors see game-changing improvements in Washington Park and the WIS 175 redevelopment. Several other conditions also should be considered as positive features supporting local market capacity:
City Homes (17th and Walnut Streets) succeeded despite negative market expectations. The key was using local brokers to sell homes, subsidizing units, and creating strong visual appeal.
The Housing Authority of the City of Milwaukee (HACM) has successfully implemented small scale projects (10-20 units) in multiple neighborhoods that work well and offer housing options priced for affordability.
HACM also helped create the award-winning Westlawn neighborhood with strong visual appeal and a diversity of housing types across a large area.
The Community Development Alliance (CDA) established a program for affordable housing ownership that is feasible and should be used in this project.
The Park West area (noted previously) was weak, but still produced net improvements in surrounding areas, including the Fondy Market, Johnson Park, new industrial development and modest housing along Sherman Boulevard.
The Park East (east of Jefferson St. to Lake Michigan) filled in at a steady pace and today is fully reconnected linking downtown up to Brady Street.
The MRMC has created a major economic boom over the last 25 years in Wauwatosa. Some of this wealth has migrated to less than a half of a mile from the study area.
National Avenue is envisioned as a complete street corridor with multi-modal access for pedestrians, bikes, transit, and personal vehicles and offers a good example for the business development that can occur along WIS 175
The legacy of Washington Heights can be used as a major appeal for developers.
Urban Form / Urban Design
The physical foundation for “reconnection” rests on the integrated geometry of the streets, blocks, parcels, lots, built forms, architectural styles, landscape, and parking systems. This variable – urban form – combines with the social and economic conditions noted previously. All merge to create the urban “texture” or “fabric” that weaves neighborhoods together. These patterns, when analyzed and integrated, can create community reconnection. The analysis of the patterns of urban form surrounding WIS 175 yields five distinct types of places delineated in a diagram and described in more detail along with the accompanying evaluation of the reconnection issues:
Place 1. The Washington Park Perimeter (Public Perception)
Washington Park became the heart of this community before the freeway and still remains the living symbol of the area. If the park goes downhill and loses its value, reconnection becomes impossible. The exterior appearance, along the perimeter, determines general public’s view of the park. If public perception improves, other improvements will gain political support, Three physical features need to be addressed to improve:
The curb appeal on the private property across from the park. Private property must be maintained and improved included building facades and landscaping.
The public right-of-way must look orderly, well maintained, and safer with improved sidewalks, streetlights, furnishings, paving patterns, street parking, and signage. Pedestrian crossing at key intersections (especially at the four corners of the park) must be prioritized.
The landscaped edge of the parkland should be more interesting and attractive. with repaired walkways, trails, lighting and related features.
Place 2. The Washington Park Interior (Social Activation)
While it has not direct link to WIS 175 traffic, the park’s interior design and activities also determine the value as judged general public. If the public value park activities they will value the neighborhoods which, in turn, will improve reconnection. Currently activities must be sustained including music in the bandshell, the urban ecology center, senior center, playgrounds athletic fields, The swimming pool must be reopened and improved. Other activities should be considered including a farmers’ market pilot facility; and or a family-oriented food and beverage facility
Place 3. West Side of Washington Park (Value and Revenue)
The land west of Washington Park within the current WIS 175 right-of-way should be redeveloped to add value and revenue. New development can reinforce the traditional neighborhood design, increase multiple access points and add value at all economic levels with:
Small-scale townhomes (facing neighborhood homes)
Moderate-scale apartment buildings with 3-5 stories (facing the park and businesses)
Safe and easy pedestrian crossings
Garden areas (with access)
Place 4. Neighborhood Crossroads & Main Streets (Goods and Services)
Long-term social and economic reconnection requires revitalization of robust business activities along neighborhood main streets and hubs focused around:
Lisbon Avenue and Lloyd Street
Vliet Street
State Street
Wisconsin Avenue and Bluemound Road
Place 5. Underused Hillside Land (A New Neighborhood)
The dramatic topographic change from Vliet Street down the hillside to State Street defines a unique geographic area for both new natural areas and development. A new right-of-way configuration from Vliet Street to State Street may offer opportunities for unique development, environmental preservation and for connecting natural areas:
New housing with spectacular views as well as direct access to natural amenities.
Environmental conservation and community access to trails and wooded areas.
Connections to Hawthorne Glenn to the west and environmental corridors to the Menomonee River Valley
Urban Design for Reconnection
Urban design solutions should address reconnection in all of the places noted above. Proposals must also accommodate a transportation and traffic alternative that meets the needs and services as defined by WisDOT. This type of combined problem solving – transportation and urban design – has become increasingly important in the last decade as infrastructure problems get worse.
On linear corridors of multiple urban blocks, the market for new development shift incrementally with each block. The area around WIS 175 evidences a high variation in market conditions. It is essential to provide clear flexibility in the types of developments that can be created. The alternative discussed in this essay focus on residential development but include retail goods and services as well as cultural and non-profit activities. These alternatives assume growth will reach development capacity over time, using building forms and concepts consistent with both traditional neighborhood character and modest growth trend. As development unfolds, new TIF revenue will accumulate, some of which can aid affordable housing and risk reduction strategies.
This essay presents only two of the three plans put forth by WisDOT. Those three options were labeled according to transportation planning concepts as follows: (1) end the freeway at North Avenue, (2) end the freeway at the midpoint, and (3) end the freeway to the south. From the perspective of reconnection (the focus of this essay) only the last two options address reconnection effectively. Consequently, for this essay these last two plans are presented and renamed “partial reconnection” and “full reconnection”. Readers are encouraged to view more details of all three options online.
In these two plans, “reconnecting” neighborhoods does not equate to the “highest and best use” principle in the field of property development. In the past the highest and best use speaks to the short-term return on investment for the property owner – not the long-term community wide value. Both views are valid, but only the latter view supports reconnection.
In this project, two viewpoints were combined: planning for (1) the best transportation solutions and (2) the best community-wide reconnection. This way of thinking yields two reasonable plans as follows:
Preferred Plan for Full Reconnection
The boulevard and an improved street grid begin near Wells and State streets. This alternative provides reconnection opportunities for almost the entire corridor and dramatically increases the probability of long-term reconnection. A more robust urban design is illustrated in this full reconnection alternative with lots of opportunities for incremental changes as development markets shift over time. This option reconnects the areas east and west of WIS 175 and along the entire north/south corridor (from North Avenue to Bluemound Road).
Moderate Plan for Partial Reconnection
The boulevard and improved street grid begin near the middle of the corridor, between State Street and Martin Drive. This alternative provides significant reconnection for about half of the length of the WIS 175 corridor included in the study. This urban design envisions a less valuable pattern of built form compared to the “full reconnection” plan. Nonetheless it offers discrete segments of development clusters, while still allowing for the street grid to continue through key location to Wahington Park. A wider boulevard replaces part of the expressway and uses a curvilinear alignment along the west edge of the park to slow traffic but still express an urban image. Unfortunately, north-south reconnection is diminished where the expressway remains south of Vliet Street where it transitions to a boulevard
These data are approximations and reflect the work the author undertook while he was working at Graef, Inc. They reflect his opinions and judgements. New data from Graef and/or WisDOT may change these estimates.
Plan for the Washington Park Perimeter
Moderate Plan: A new “garden walk” with a modest landscape borders the west side of the new boulevard to enhance the value and image of the housing clusters. This garden walk, when combined with improvements around the other three edges of the park will help residents view the park as reconnected along all four sides. The north and west edges of the park are also enhanced with a continuation of the Hank Aaron trail. Improved park edges will boost the values along the south, east, and north edges. This requires investment in streetscaping, improved park landscaping adjacent to the right-of-way, street resurfacing, and owner-based property improvements such as façade repairs, painting, and siding. Collectively, these will boost the perceived value and marketability of housing in the area in both the short and long term.
Preferred Plan: In the full reconnection preferred option, there is a much stronger and valuable edge condition on the west side of Washington Park because of a wider garden walk, more connections to housing, and a narrower street between the housing and the park. This added improvement will reinforce developer interest in investment, especially if the remaining perimeter of Washington Park is also improved. In addition, the Hank Aaron trail continues along the park perimeter. Other improvements are similar to the “partial reconnection” option including streetscaping, improved adjacent park land, street resurfacing, and owner-based property improvements such as façade repairs, painting/siding, and continuation of the historic character. Collectively this design will boost the perceived value and marketability of housing in the area in the short and long term.
Plan for the Washington Park Interior
Moderate Plan: The reconnection to all neighborhoods requires improvement to the park interior. Current park activities, including Urban Ecology Center, senior center, and bandshell, help sustain the perceived value of the park and boost the appeal of the surrounding area. Other improvements should include:
Expansion of the senior center
A farmers’ market (as a source of nutritious food, as well as a social meeting place)
Reinvestment in the pool (repairs or rebuild)
A family-oriented restaurant
Collectively such new and continued functions demonstrate the public’s commitment to the park, reduce the perceived risks and increase the perceived rewards from new development.
Preferred Plan: As in the “moderate plan”, new park improvements should include the pool, a farmers’ market, and family restaurant. It is worth emphasizing that a refurbished or new pool will also help restore confidence for both local and new investors. Along with the Urban Ecology Center, senior center and bandshell, this will dramatically increase the perceived value of the park and boost the appeal of the surrounding area. This design option also allows for expansion and or relocation of the senior center.
Plan for Redevelopment of the West Side of the Park
Moderate Plan: The moderate plan option locates new residential units in the expressway’s current right-of-way. These residences have views and easy access to/from the park. Direct, at-grade connections on Lloyd and Vine streets, Washington Boulevard, Galena, Cherry, and Vliet streets are critical to the social and economic value of each block. The built forms harmonize with the buildings and streets of the neighborhood. Market appeal can be improved by emphasizing the “garden walk” (emphasized more effectively in the preferred design option). The plan also includes small-scale semi-public places with quiet, intimate gardens that, from a market perspective, are more likely to attract higher value-creating investors. A diversity of housing types and built forms includes 2-3-story townhomes and 3-5-story apartment buildings along the north and south ends of each block. This will facilitate mixed-income housing, avoid the appearance of a single project, and match the visual diversity in the neighborhood.
Preferred Plan: This urban design offers many more options for the design and diversity of residential units on the former expressway right-of-way. Appealing housing locations are linked to views of the park as well as safe, comfortable and enjoyable access. The diversity of building opportunities allows for more visual diversity and therefor greater harmony with Washington Heights. The garden walk links housing not only to the park but also to activities further south and into the valley. A direct, at grade connection on Lloyd, Vine, Washington Boulevard, Galena, Cherry, and Vliet streets is also critical to the market value for each block. There is greater diversity of possible housing development plans in the preferred option with both 2-3 story town homes as well as 3-5 story apartment buildings along the north and south ends of each block. This can ensure market options for mixed income housing stock within each block and along each street edge. The areas where the parcel geometry does not favor marketable buildings can be used for small-scale public places that are quiet, intimate gardens that, from a market perspective, are more likely to attract higher value-seeking occupants.
Plan for Crossroads & Main Streets
Moderate Plan: The four at-grade intersections at North Avenue, Lisbon Avenue, Lloyd Street and Vliet Street all establish a sustainable market opportunity for nonresidential community-oriented investments. At first, they may focus on small businesses that are oriented towards the local population, but, if they include new types of uses, they will create a strong sense of reconnection. The degree to which these intersections promote reconnection and increase the perceived market value will depend largely on (a) creating pedestrian connections that are safe, appealing, and encouraging and (b) convenient access for local parking and bicycle movement. The hubs along Wisconsin Avenue (near the BRT) and State Street are isolated but may experience increase in value. In this alternative the development pattern is largely self-contained and may appeal to investors independent of the other areas.
Preferred Plan: The four at grade intersections at North, Lisbon, Lloyd and Vliet streets all establish a much stronger long-term, market opportunity for nonresidential community-oriented investments. They too will focus on small businesses that are oriented to the local population and will create a strong sense of reconnection. As with the moderate design option, the degree promotion of reconnection depends on creating good pedestrian connections and convenient access for local parking and bicycle movement. The major difference when compared the moderate design option is the new at-grade intersection at State Street. This is a powerful opportunity to boost the market value of the overall project. This design concept requires some relocations which can be mitigated but, in return, it creates an entirely new development opportunity. This option creates an economic gateway to the area by integrating the growing development potential east-west on State with the potential growth north-south on WIS 175. The hub along Wisconsin Avenue may be perceived as highly isolated and but can still increase in value in the long term assuming the BRT succeeds. The development pattern is largely self-contained but, if viewed in conjunction with the economic opportunity at State Street can increase the perceived value of the boulevard and this location.
Plan for Underused Hillside Land
Moderate Plan: The hillside is an especially high value area for potential development. These units will be perceived as a relatively independent enclave of housing. It can include both smaller scale townhomes as well as large apartments along the edge of the boulevard. Over time, this enclave will be perceived as a natural neighborhood extension of development along the northern sections of WIS 175 to Lisbon Avenue. Housing in this are also includes potentially attractive park and environmental features to the west (Wick Field), other nearby environmental features and appealing “long views” over the valley.
Preferred Plan: In this urban design concept, the hillside is a stronger, more cohesive high value area for potential development. These units will be perceived as a stronger independent enclave. It too can include both smaller scale townhomes as well as large apartments along the edge of the boulevard. The at-grade intersection at State Street is especially critical to the market value of the overall project. This can boost market opportunities for non-residential uses at this location. Housing in this area includes potentially attractive park space to the west (Wick Field) as well as current environmental areas. As with the moderate plan option, this enclave will be perceived as a natural neighborhood extension of development along the northern sections of WIS 175 to Lisbon Avenue. Collectively this will create a strong market perception, especially if the development is designed and planned with continuity.
Plan For Reducing Ineqities & Builidng Equitable Wealth
In any plans the risk for new private development needs to be mitigated though support from other public agencies. Achieving risk reduction is always a controversial subject but it is also necessary. The urban design concepts in these proposals offer a variety of ways to reduce market risk. At the same time, reduction of market risks should be paired with reductions in inequities. Agreements or policies can be proposed for effective affordable housing along with TIF financing and subsidies.
While WIS 175 replacement needed to resolve inequities, it is only one part of the answer. Other urban policies and programs – both public and private – must contribute to overcoming the historic economic and social inequities in the study area. Two of the most important conditions to overcome are the lack of landownership opportunities and the lack of available financing for historically marginalized population groups in the study area.
Urban policies must on community wealth building programs. Specifically, in the case of reconnecting the neighborhoods surrounding WIS 175, remediation of the negative socioeconomic outcomes of the last several decades requires neighborhood wealth building. Neighborhood wealth building builds on the principle of property ownership and emphasizes the importance of community-backed development. In this model, cities should be major landowners while establishing reconnection programs and policies. Put simply, cities must exercise much greater control over urban development.
Cities as corporate entities can own and develop land. While they can always regulate the value of land through zoning, as owners they can regulate outcomes, property management, buy/sell agreements, deed restrictions, etc. As noted elsewhere, the City of Milwaukee can build and rent units, lease land to other owners, or establish direct developer agreements with new owners to enable and require reconnection outcomes. Developer agreements between the owner/seller and a new lease or deed restrictions can specify uses and policies in terms of parking, view corridors, building heights, rent structure, and sales structure.
While the state and WisDOT do not need to participate in this approach, they can assist directly by eliminating compensation for land disposition to mitigate the historic impact of inequities. If the City establishes a program for neighborhood wealth building (or, in terms of this project, “neighborhood wealth reconnection”), WisDOT could forgo payments for the transaction as compensation for decades of neighborhood wealth debilitation.
The Road Forward
At this time, fall 2025, the planning process has not been completed. Additional analysis may prevent adoption of the two plans described above for any or all of the following reasons:
Higher Level Jurisdictional Shifts To Shelve the Project
State or federal level policies or funding might reduce or eliminate the goal of “reconnection” thereby decreasing the degree of reconnection, the redevelopment potential, the funding for improvements, or related matters. This type of major shift in the implementation process occurs in many cases, especially due to changes in political leadership or local economic conditions. IN some cases, for example (like the Park West project), local government completely shelves the project in favor of other priorities.
Changes In Project Goals To Ignore the Reconnection Mission
Local community priorities always change and, in cases like reimagining Wis 175, can change pans significantly. For example:
It may be decided not to include any new residential development (this might dramatically reduce the opportunities to generate public revenue for related neighborhood improvements)
Conduct the project in phases such that the most significant changes (in and around Washington Park) are postponed indefinitely
Change the funding for internal Washington Park Improvements
The City or County may decide to transfer and ownership to other private organizations (both for-profit and/or not-for-profit) who, in turn, might change the goals for redevelopment from neighborhood reconnection to other community goals. For example, a private sector developer might choose to build 5 story buildings at one end of the corridor and then await market shifts before developing a subsequent parcel. Alternatively, a developer or not-for-profit agency might wish to build affordable housing units for large areas of land and avoid the complexity multi-income housing.
Plan Adoption To Implement Reconnection
The most difficult andmost appropriate challenge will be adopting either of the plans (moderate reconnection or preferred reconnection). Both versions will require:
A regulatory framework (like form-based code or regulating plan) to ensure that all opportunities remain open for effective reconnection
A funding agreement among the various levels of government involved in the project success (State, County, and City) which, in turn, might include some shared funding investments.
A not-for-profit agency that can manage a complex development scenario inclusive of both market-rate housing as well as affordable housing.
A redevelopment plan, adopted by the City, inclusive of options for community wealth building (such as a “land development trust” or equivalent group that can specific detailed development t concepts that fit the neighbors)
While this last pathway forward may be closest to the initial project goas, past experience hit freeway projects has taught us that implementation only occurs with continued perseverance on the part of the local community and leadership.
Mixed Futures – The Long Term For 2035
All of the freeway projects noted in these essays unfold over a longer time period, often with many ups and downs along the way. The future change of neighborhoods around WIS 175 is just starting. The plans shown here are good starting points, but it will take another 10 years at least to get a sense of the ultimate direction.
The implementation scenarios described here represent just a few possible directions. In practice every freeway project leads to some sort of change often incorporating some of the proposed recommendations. Readers interested in the process might wish to follow future changes in the WIS 175 neighborhoods over the next decade.