Case 2: Make Urban Reconnections To Fix Freeway Damage
Defining The Right Mission: WIS 175 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 spanning a 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 plans for this area began by understanding the historic circumstances and acknowledging, from the outset that there is no simple method for reconnection. Foremost in the planning process was evaluating the pattern of urban from surrounding WIS 175 and viewing the form through the lens of social and economic conditions which have impacted reconnection.
Most of the illustrations in this essay were first made public as part of the Wisconsin Department of Transportation (WisDOT) project entitled “Reimagine 175”. From 2023 through March 2025 the author worked on this project at GRAEF, Inc. GRAEF was the lead consultant for the large team of engineers, planners, and designers hired by WisDOT. During his tenure at GRAEF he led the planning and urban design tasks for reconnection. All of the. opinions expressed in this essay are those of the author, not those of GRAEF or WisDOT. The illustraitons shown in this essay are part of the public domain as of this writing (October 2025) unless specifically noted otherwise. Sources for the illustrations are noted using URLs available in 2025.
Althouigh funded throuigh WisDOT, both the City of Milwaukee and Milwaukee County were heavily involved in reviewing and commenting on the analysis and proposals throughout the process. From a planning perspective there were two separate sets of problems which required constant integration and reiteration — the transportation/traffic planning and the neighborhood reconnection planning. To succeed, both sets of problems must be resolved effectively. While transportation and traffic issues remain critical they are also subjects that have received decades of precise and careful engineering analysis, inlcuding issues of safety, speed, costs and benefits, regulation and jurisdiction, construction and operation. In comparison, neighborhood reconnection represents a relatively new professional focus for planners. The problems of neighborhood disconnection and reconnection have histories as long as transportation and traffic issues, The solutions, however, are only beginning to emerge and require far more attention to achieve clarity and success. Consequently, this essay, places the emphasis on the decision-making tasks for neighborhood reconnection surrounding WIS 175. Online sources from WisDOT provide ample description of the transportation and traffic issues
The story surrounding this project is far from over. At this moment there are three alternatives which have moved forward for consideration. All three include both transportation/traffic recommendations as well as neighborhood reconnection proposals. It may take several years before a final integrated recommendation is developed and even longer for its implementation. This essay serves as a critical benchmark from a planning and urban design perspective. Future audiences may find this essay useful as a framework for evaluating the planning efforts in terms of what succeeds, what fails, and how planning and urban desing fits into the larger history of Milwaukee. To begin, the following three illustrations represent key moments, from 2023 to 2025, in the evolution of the plan for reconnecting neighborhoods. Sources for these illustrations are listed later in this essay.
On the left, the 1963 aerial photograph shows the footprint of the exprssway in a white dotted outline. Washington Park (by Olmsted) is clearly visible as is the freeway interchange to/from WIS 175 and I-94.
The center diagram points out the critical compnents of the urban form and pattern which figure prominently in all of the reconnection concepts.
The plan on the right reprsents one of the three propsal that is being carried forward for consideratin and, in the author’s opinion, represnts the best reconnection solution (it is referred to throughout this essay as a “preferred” solution.
Learning The History: The Significance of Washington Park
Volumes of data measure the social, economic, and political facts of the WIS 175 area. Not all data, however, bears relevance to strategies for reconnection. Most relevant data comes from viewing the issues of disconnection in a larger cultural context. Within that larger context, Washington Park stands our as a singular, complex, qualitatiive and highly relevant data point. 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 the park’s 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.
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.
Many still see Washington Park as a “jewel in the crown” of Milwaukee’s. park system. Over time, during the twentieth century, some of the park’s vitality has been lost. On the other hand, the park still has potential to restore 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 park activities and facilities should increase socialization. Achieving such an objective relies, in part, on better engineering of circulation systems, especially for pedestrians. This is just one of the ways in which better traffic engineering intertwines with neighborhood reconnection.
This set of ilustrations presented to the public depicts many of the key components of Washington Park, including its rich history, activities, and ongoing operation. The maps were assembled by Wisconsin Department of Transportation,. Online source:https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Learning The History: How A Freeway Enables Long-term Damage
While Washington Park became the social and cultural asset that has made these neighborhoods cohesive, at the same time the expressway and related infrastrucutre elements became liabilities which could not be overcome. Describing freeways as leading to neighborhood disconnection is akin to referring to cancer as unfortunate but inevitable. These barriers can be mitigated and in many cases removed. Such improvments, however, must begin with an evaluation of how barriers began and interacted with the evolution of the area.
Before the geography was urbanized, the rivers and toopography where the only critical features in the landscape. Indigenous tribes and early settlers navigated such conditions regularly. When railroads emerged that transformed many of the linear patterns of circulation into stronger physical barriers. Railroads also crated legal barrers by establishign rights-of-way. As commercial development grew along th railroad lines, so too did residential growth. Over decades many of the non-residential facilities fell into disrepair and were subject to disinvestment. Railroads bcame dividing lines between neighborhoods disconnecting people on the “other side of the tracks”. Modest disconnections grew and impacted real estate values.
When it became time to plan and build freeways the path of least resistance (and often the least expensive path) followed the railroads, the river corridors, and the areas with lowered property values. Public policies in the form of zoning, land use regulations, and “redlining” also followed along the same lines, now embedded in the landscape. While some forms of infratrucutre have become appealing (such as older canals or reuse of raillines for trails), such trasnormations are much more difficult with freeways. In sum, reconnection of neighbohoods must address, simultaneously, all of the liablities that have emerged: visual, social, economic, and historic. The following diagram emphasizes visually the disconnections between urban places within the reconnection study area for WIS 175.
This illustration diagrams the barriers of expressways, ramps, and railroads that divide and disconnect neighborhoods surrounding Wisconsin Highway 175. Over decades, in the author’s opinion, such disconnections produced social and economic harms that need to be repaired. Source: Wiscconsin Deparment of Transporation, Public Information Meeting #1.
Learning The History: Building On Neighborhoods Diversity
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. For reconnectin, it will be important to maintain economic diversity, improve value, retain affordability, but avoid gentrification.
Housing strutures 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 economically successful 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 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 and reconnection provided local transit systems are strengthened. For example, the neighborhoods are reasonably close to major employment areas: 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.
This illustration shows demographic data surrounding the current alignment of WIS175. While the area is clearly diverse, there is a noticeable demographic difference between neighborhoods east and west of the expressway. The expressway also appears to have amplified the demographic differences surrounding Washington Park. The reconnection of these neighborhoods, and reduction in disparities, is a key goal of the 175 reconnection project. These maps come from the Wisconsin Department of Transportation, Public Information Meeting #1 and reflect publicly available census and GIS data in 2025
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Learning The History: Understanding Inequities Embedded By Freeways
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, the freeways do contribute to and embed 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, physical deterioration and disinvestment. 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 on 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.
This illustration shows the Home Owners Loan Corporation (HOLC) map from 1938 which was the beginning of urban “redlining” inequuities. The portion of the map with darker tones represents the boundaries of the official WIS 175 study area. The areas of the map with the red tone (both inside and outside of the study boundary) represent areas where the HOLC loan policies clearly recommended against mortgage loans thereby setting a foundation for long-term neighborhood disinvestment in home ownership, repairs, and related private and public expenditures. Here too, the disconnection caused by the expressway increased the east-wet disconnection of neighborhoods. This version of the HOLC map was reproduced from the Wisconsin Department of Transportation, Public Information Meeting #1.
Leveraging Potential Of Fixing Freeways: Long-Term Development Capacity & Markets
The weakened real estate market conditions in specific subareas of these neighborhood is far from insurmountable. Many local conditions are susceptible to positive change over the long-term, especially when investors see game-changing improvements in Washington Park and the WIS 175 redevelopment area. 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 neighborhoods from 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 eastward, along State Street, to less than a half of a mile from the study area.
National Avenue in Wests Allis, was 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.
These illustrations show the clarity of the street and block grid that surrounded Washington Park and encouraged equal and continuous connection among the surrounding neighborhoods, especially for pedestrians and bicyclists. The map on the left shows the aerial view of the study area in 1951 before the freeway, with the future ROW alignment (in white) and the roadway centerline (in black). The map on the right from 1963 shows the freeway lanes in white and the ROW in white dashes. In addition the arterial streets (not emphasized) leading to/from the expressway contributed to the disconnection of neighborhoods. The maps come from the Wisconsin Department of Transportation, Public Information Meeting #1. https://s3-us-west-2.amazonaws.com/mysocialpinpoint/uploads/redactor_assets/documents/04774e07f6393526dcc5cf700ada3529a8a94367866279c88e35ca1d116bfacf/78955/2023-05-11_WIS_175_PIM_1_Boards.pdf
Remove Freeways And Fix The City 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 below.
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.
The diagram on the left depicts the key patterns thast form the neighbohods surroudning WIS 175. The key patterns in the context of the site that mut be respected by new solutions include the:
street, block and lot pattern that defines most of the urban area and which has allowed for highly successful residiential growth and activity
neighborhood commercial hubs as well as neighborhood activity hubs for a variety of social, economic, cultural and civic uses
major parks and gardens, including the prominent areas of Washington Park, Wick Field, and Doyne Park as well as smaller garden areas abutting homes and other smaller size land uses.
While this diagram was used throughout the urban design process as a reminder of the key elements of the urban form, it does not feature prominently in public presentations. This version of the diagram was created by the author (2025).
This set of illustrations below depict reconnection iissues ncluding traditional neighborhood housing patterns, potential for new business and commercial activity, new urban places, and, most importantly, the three primary urban design concepts in the upper right. These three options were labeled according to transportation 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. In the author’s opinion only option 3 (end the freeway south) address reconnection effectively and is referred to as the “preferred plan”. Nevertheless, there are still reconnection concepts in all three plans worthy of consideration. The “preferred” plan provides sufficient opportunities to make future neighorhood reconnection a reasonable and feasible outcome. The other options have merit and may be superior from a transportation viewpoint, but are not likely to overcome the long term disconnections created by the expressway and related policies and interventions. Source for the illustration: https://s3-us-west-2.amazonaws.com/mysocialpinpoint/uploads/redactor_assets/documents/01e183bee7f5b4c5fc04cbe26c4a7bd1d92db34622fad8d02019d53b7610093f/96349/2025-04-02_WIS_175_PIM_3_Reconnection.pdf
Fix The City Form: Preferred Plan for Full Reconnection
In Alternative 3, the authro’s preferred plan, the boulevard and an improved street grid begin near Wells and State Streets. This option reconnects the areas east and west of WIS 175 along the entire north/south corridor (from North Avenue to Bluemound Road). This alternative provides reconnection opportunities for the entire corridor and dramatically increases the probability of long-term reconnection. This option creates much higher densities along the edge of Washington Park, thereby increasing the potential for public revenue and reinvstment. The housing shown along 47th Street is smaller scale, intended to harmonize with the residential character on the other side of the street.
There are many opportunites for different types of mutlifamily housing as well as duplexes. While the drawing includes many equally sized footprints for buidligns, as the develpment unfolds it is assumed that different financing and investmanet otoins will alsolead todiffenees in the arhietural cahracter of each building. At the same time, it is assumed that the fronts of all building will align along the street edges. By offering a comprehensive set of opportunities, this plan can succeed as part of an incremental development process — they more places can be used at each stage of the process, the more likely positive reconnection actions will occur. Solutions that offer more limited opportunities risk a higher likelihood of failure. This plan can also be improved by adopting some of the idnividual components of other plans. For example:
As shown in subsequent diagrams, the west side of thenew boulevard south of Vliet Street can include better connections to/from Wick Park — that will make new housing more attractive and increase the potential socialization of the park by increasing access for more people.
As shown in Alerantive 2, the area around Wiscsonin Avenue and WIS 175 can also be increase in desnity which will add value and offer more job opportunites along the BRT.
Finally, at the hubs for commercial and community activity, the footprints shown in darker tone allow flor multi-story mixed use buildings which, over time, can accommodate social and economic actities that will aid socialization and reconnection. Here too, by adding more opportunities there is a higher liklihood that some will succeed.
Fix The City Form: Maximize Local Revenue For Investment
Most critical is the amount of public revenue that can be generated for investment in reconnection. The preferred alternative suggests that this total might be $250 million over 25 years (the next highest estimate is over 25% lower. Depending on the policies of public agencies, these funds can be used for affordable housing, home improvements, park failities, a farmers market, streetscaping and other critical components needed for successful reconnection.
These data are approximations and reflect the work the author undertook while he was working at GRAEF, Inc. New data from GRAEF and/or WisDOT may change these estimates. Most critical is the amount of public revenue that can be generated for investment in reconnection. The table also shows metrics regarding building types, parking and other relevant metrics relevant to long-term implementation.
These maps illustrate the five types of places that form the basis for the design concepts critical to reconnecting neighborhoods surrounding WIS 175. The illustration comes from the Wisconsin Department of Transportation, and are located, as of 2025, online at :https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Fix The Form By Fixing Urban Places: Washington Park Perimeter and Public Perception
Washington Park became the heart of this community before the freeway was planned, 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 park perimeter, determines the general public’s perception of the park and its context. If public perception improves, other improvements will gain political support. While perimeter improvement can be made in all options, it is assumed that this may not involve funding from WisDOT, with the exception of those traffic improvements that improve safety pedestrian continuity. Overall, there are three physical features needed to improve the perimeter:
The curb appeal on the private property across from the park. Private property must be maintained and improved included building facades and landscaping. This should only be proposed in concert with, and approval of the property owners. Improvements might include grants and loans.
The public right-of-way must look orderly, well maintained, and safer with improved sidewalks, streetlights, furnishings, paving, street parking, and signage. Pedestrian crossings at key intersections (especially at the four corners of the park) should be prioritized (especially with regard to pedestrian use by teenagers and younger children).
The landscaped edge of the parkland should be more interesting and attractive. with repaired walkways, trails, lighting and related features.
Throughout urban history, the perimeter of major parks and gardens become places of great value. It is the perimeter of such urban places — the location of real estate — where built form, from individual residneces to major civic buildings, achieves its highest value. The illustrations come from the Wisconsin Department of Transportation, and are located, as of 2025, online at :https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Fix The Form By Fixing Urban Places: Washington Park Interior and Social Activation
The reconnection to all neighborhoods requires improvement to the park interior. Inside the Park, current activities must be sustained including music in the bandshell, the urban ecology center, senior center, playgrounds and 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. 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.
The preferred design option also allows for expansion and or relocation of the senior center along with a farmers’ market serving as a source of nutritious food, as well as a social meeting place. Collectively such new and continued functions demonstrate the public’s commitment to the park, reduce the perceived risks and increase the potential rewards from new development. The prferred opitns also includes property develoopment which, if manged effectively, can generate $250 million in revenue over 25 years. While some new park improvements can be funded throiugh expected government action and philanthropy, there are always critical components that are not typically paid for from these sources and which can best be implemented by genrating new revenue.
Like many parks in Milwaukee County, Washington Park has become a beloved local place. Throughout this project, every group that has commented on reconnection plans has supported the value of the park personally and to the surrouindg neighborhoods. The future of reconnection and the future of hte park are one and the same. The illustrations come from the Wisconsin Department of Transportation, and are located, as of 2025, online at :https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Fix The Form By Fixing Urban Places: The Revenue Potenetial of The West Edge of Washington Park
The land west of Washington Park, within the current WIS 175 right-of-way, should be redeveloped to add value, including both economic value in the form of new public revenue as well as social value in the form of new residents and activities. New development reinforces traditional neighborhood design, increases multiple access points, and add value at all economic and social 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, courts and plazas (with access)
This preferred 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 harmonious visual character and therefore greater harmony with Washington Heights. The garden walk, a pedestrian promenade with a classic double row of trees, 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. Direct, at-grade pedestrian connections to the park (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. The preferred housing development includes both 2-3 story town homes facing neighborhood housing as well as 3-5 story apartment buildings facing the park and located along the north and south ends of each block. This pattern helps ensure market options for mixed income housing stock within each block and along each street edge. In the few 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 investors seeking higher economic value and thereby yielding higher public revenue for the community. Other alternative plans offer similar attributes but not at the same level of quality and quantity thereby reducing chances of successful reconnection.
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. 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-seeking investors. The illustrations come from the Wisconsin Department of Transportation, and are located, as of 2025, online at :https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Fix The Form By Fixing Urban Places: Activating Underused Crossroads & Main Streets
Long-term social and economic reconnection requires revitalization of robust business activities along neighborhood main streets and hubs as shown in the urban pattern diagram, located at:
Lisbon Avenue and Lloyd Street
Vliet Street
State Street
Wisconsin Avenue and Bluemound Road
The four at-grade intersections in the preferred plan (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 major difference when compared the other design options 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. The hubs along Wisconsin Avenue (near the BRT) seems isolated but may experience increase in value independent of the other areas.
The multiple neighbohood “hubs” should include different non-residential activities including small local retail outlets, professional services, community activities and institutional uses. Such activities follow an increase in residential density and local income. The illustrations come from the Wisconsin Department of Transportation, and are located, as of 2025, online at :https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Fix The Form By Fixing Urban Places: Leverage Underused Hillside & Create A New Neighborhood
The dramatic topographic change from Vliet Street down the hillside to State Street defines a unique geographic area for community growth. This area should include urban places for multiple types of residential develooopment as well as environmental preservation and for reconnecting natural areas:
New housing with spectacular views of, and 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 wihtin the Menomonee River Valley
The hillside, and the underutilized land, in the preferred plan includes a stronger, more cohesive high value area for potential development. These units will be perceived as a stronger independent enclave. Housing should include both smaller scale townhomes as well as larger 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. 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.
Hillside housing, when designed sensitively by talented architects, can become a catalyst for community growth. The hillside int he preferred planoffers such opportunities along with an at-grade community gateway and activity hub at Satte Street. The illustrations come from the Wisconsin Department of Transportation, and are located, as of 2025, online at :https://hdp-us-prod-app-graef-engage-files.s3.us-west-2.amazonaws.com/7517/1450/2420/2024-04-30_WIS_175_PIM_2_Reconnection_Boards.pdf
Mitigate Inequities: 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 needs 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 should focus 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 rests on the principle of property ownership and emphasizes the importance of community-backed development. In this model, cities should be major property managers 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 go much further and decide specific types of housing, 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. If the City establishes a program for neighborhood wealth building (or, in terms of this project, “neighborhood wealth reconnection”) WisDOT might forgo payments for the transaction as compensation for decades of neighborhood wealth debilitation.
Analyze Equity A Based On Urban Design
This tables below lists the criteria for equitable reconnection in this project and the actions needed in each of the 5 five types of places to reach a high level criteria for reconnection. The valuations are based on empirical observations, metrics, and reports from community participants, agency staff and past work in the project area. Observations derive from the frequency, magnitude, and significance of proposed actions as they impact reconnection and associated inequities.
These three sets of critieria (physical, economic, social) represent the three crucial components of an equitable reconnection plan. In some ways the degree to which a plan satisfies these three criteria can be considered conceptually equivalent to the idea of a “level of service” use to measure the realtive value of transportation plans.
After defining the crucial criteria for evaluating a plan in terms of its “reconnection” value, those criteria need to be appied to each alternative plan and to each of the five types of places listed along the left side of the table. Unlike other aspects of transportation planning, reconnection planning involves more qualitative issues that must be judged as nominal or ordinal using the expertise of experts and/orothers knowledgeable about the circumstance. This was the basis for evaluating the preferred alternative as superior to the others frm the standpoint of equitable outcomes for reconnection.
Navigate 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.
Sort Through The Maze of Ideas
As in any complex project with general and abstract goals (like “neighborhood reconnection” and “traffic improvement)”) there are many concepts illustrated that may be useful. the following concepts were developed to help solve the larger problem of urban reconnection. These concepts represent the opinion of the author and should not be considered as approved by WisDOT, GRAEF, or the other consultants involved in the project. Many of these ideas do, however, overlap with those concepts approved by WisDOT. In addition, the project is still underway and final outcomes may change the approved concepts substantially.. The source of these drawings are the personal files of the author that were developed during his tenure at GRAEF with support from other members of the planning and urban design team. As noted they are not intended as solutions for traffic or transportation problems but solely for neighborhood reconnetino and reduction of the longstanding inequites that have accrued in the area.
This sketch shows a different design concept for the hillside, connecting the housing directly to Wick Park and providing a more robust circulation and street system. This option also shows a higher level of development intensity along Wisconsin Avenue, consistent with a stronger business hub that might develop in relation to the new BRT system. Finally, the dark brown line shows more pronounced trail system, for hiking and biking, that interconnects more parks and environmental areas. All of these concept can be incorporated into the preferred plan.
Throughout the process the authore, and other members of the urban design team, develop hand sketches such as this one, to examine different street and block systems, building forms, and circulation systems. This behind-the-scenes work was critical to devleoping feasible, effective outcomes.
At one point in the planning process one of the transporation opitons considred levaing the expressway at its current grade, aproaixmely 30 feet below street level. If this were to occur, oneof the intriguing design options suggested creating a “sunken” garden blow street level which, if designed in a creative way, might become a city-wide attraction and, at the same time allow the expressway to retain some of its present alignmnets.
One of the early development concepts suggested the use of “enclaves” or courtyards of housing between the existing park and the residential neighborhood to the west. This would have created a series of smaller gardens along the new WIS 175 boulevard which would maintain some of the view corridors into the park. In addition the meandering street alignment along park edge was more consistent with some of the park’s original picturesque carriageway.
This sketch expored the idea of rondabouts located to slow traffic and integrate with circulatin inside the park. This design laso tried to emphasize new gardens and larger public places between the park and the neighbohood.
The bright yellow line in this design reprsenets a landscaped promenade that not only runs along the wet side of the park but also continues north and south (even into the valley). This promenade, which was later renamed as the “garden walk" could become a signature feature symbolizing reconnection and implementing a form of pedestrian reconnention while adding value to new development.
Whatever it is, the way you tell your story online can make all the difference.
Acknowledge Changes To 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. On the other hand, other forces may shift public policies in favor of improving and strengthening the project mission.
The intial intent of this project includes both transportation planning and reconnection planning. Both of these fields require complex, often ill-defined, issues to be resolved. When both fields are combined, the problems and solutions become even more intricate. At this stage WisDOT has intgrated all of the transportion and reconnectin plans into three alternatives, all of which are moving forward for consdieration. Two of these three options are depicted in the following illustations.
The two options shown above include the urban design concepts shown previously, albeit in a different graphic format which needs to emphasize transportation and traffic decisions more than urban design decisions. Nonetheless an observer can see the critical urban design concepts embedded in the drawings. The lower drawing, Alterntive 3, is in fact, the preferred plan noted by the author. The visual complexity of the drawing with photographs, keys, notations, mutliple line weights and colors, and explanations is a fair representation of the problem complexity and the diversity of interests from stakeholders. Not shown is alternative 1, which can be found online, which replaced most of the expressway and, as noted frequently in this essay, is inconsistent with effective neighborhood reconenciton and equitable development. https://graef.mysocialpinpoint.com/wisdot175/wisdot-175-pim3/
Preserve & Prioritize The Reconnection Mission
Local community priorities always change and, in cases like reimagining Wis 175, local plans may change significantly. For example, it may be decided to:
exclude 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
transfer land 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
engage a private sector developer who might choose to build five story buildings at one end of the corridor and then await market shifts before developing a subsequent parcel.
engage a private sector developer or not-for-profit agency to build affordable housing units for large areas of land and avoid the complexity of multi-income housing.
Implement Reconnection
The most difficult and most appropriate challenge will be adopting the preferred plan (or similar version of the plan). Among other issues, adoption 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 specify detailed development outcomes that fit the neighbors)
While this pathway forward may be closest to the initial project goals, past experience with freeway projects has taught us that implementation only occurs with continued perseverance on the part of the local community and leadership.
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. The implementation scenarios described here represent just a few possible directions. In practice every freeway project leads to some change incorporating some, but not all, of the proposed recommendations. Readers interested in the process might wish to follow future changes in the WIS 175 neighborhoods over the next decade.
Remember information sources
Wisconsin Department of Transportation held several large public meetings as well as numerous smaller public meetings with neighborhood groups, stakeholders, and others. This list shows some of the many public sources used by the author in assembling information for this essay. In instances where graphics were not, to the authors knowledge, made part of the public domain, the source for the information is noted as such in the captions. When no source is listed, it is the work of the author. As of October 2025 the following online URL will direct readers to this website:
https://s3-us-west-2.amazonaws.com/mysocialpinpoint/uploads/redactor_assets/documents/04774e07f6393526dcc5cf700ada3529a8a94367866279c88e35ca1d116bfacf/78955/2023-05-11_WIS_175_PIM_1_Boards.pdf. This site iIncludes aerial imagery from 1951 and 1963; historic freeway mapping; map with redlining; Washington park history; physical infrastructure and barriers; zoning; existing land use; parks and facilities; demographic; transit routes; bike and trail maps; future transportation projects; safety overview