Helping Create

A Community Road Map for the Next 25 Years

PRA Project #07069

January 2008

ntelligent Designs nspired Results

The West Side Master Plan Executive Summary

11000 West Park Place

Milwaukee, WI 53224

Tel 414 359-3060

Fax 414 359-3070

www.prarch.com

Executive Summary

p. 1

INTRODUCTION

This West Side Master Plan has been developed by Marathon County to create a compelling vision for the future of

the area surrounding Marathon Park This study includes assessment of future county facility needs, physical review

of relevant county structures, and a phased master plan meant to guide future public investment and coordinate

public and private objectives within the study area.

The study process has benefi tted from the participation of a devoted group of people, including a working committee

dedicated to balancing the needs of the community and many area constituents who volunteered their time to

participate in a variety of community working sessions. We are grateful for the feedback provided by all who

participated.

SUMMARY OF CONCLUSIONS

The West Side Master Plan grows from community consensus around a vision of the area as a thriving campus/

community district. The plan suggests a clear strategy to redevelop, and acquire where necessary, a crescent of land

to the south and east of Marathon Park throughout the duration of the 25-year master plan. The plan includes an

existing conditions and space needs analysis of County facilities, an understanding of the historical development of

the area, a full community design & public involvement process, a set of 4 preliminary options with associated fi rst

phase costs, and a fully illustrated preferred option with a 4 phase land acquisition strategy. Together, these elements

create a strategy to maximize the benefi ts of public investment for the entire community as well as determine a clear

road map for future action.

FACILITIES CONDITIONS AND SPACE NEEDS

The study team reviewed the physical conditions of the existing facilities found within the study area to determine if

any buildings were likely to need major reconstruction. Following that the team met representatives of each of the

public organizations found within the study area to determine future space needs. The fi ndings and projections were

reviewed and updated several times over the course of the study with the following results

University Wisconsin Marathon County:

The physical condition of most the existing facilities are good but the lack of available space limits future growth.

Providing a new “Regional Learning Center”, a new Residence Hall, and providing improved Maintenance and

Receiving facilities are warranted. This new space would be phased over time to add approximately 118,000 square

feet of facilities to the campus. Further, this additional space would allow other enhancements to be realized inside

of the existing buildings.

Marathon Park Facilities:

Some of the newer structures were exempt of survey by the study team. Of those reviewed, the physical condition

of most of the existing facilities was found to be fair to good. Some of the buildings also have notable historic

pedigree. Providing additional space for the Judging Pavilion, the Multi-Purpose Buildings 1 & 2, revised

Amphitheater Green Room, and new Horse Barn and Storage are important for continued success of programs that

occur within the park. These expansions provide an additional 22,400 square feet to the facilities, or about 13%.

Executive Summary

p. 2

Also, several improvements in utility infrastructure should be considered as important next steps for the evolution of

the park.

Marathon County Parks Recreation and Forestry Department:

This department is split between two locations: Administrative offi ces are located downtown while the operations

shop is located adjacent to Marathon Park. The physical condition of the spaces is mostly good with the exception

of the storage and greenhouse facilities. Growth from the current 62,000 square feet to a long term total of

approximately 80,430 square feet is projected over the next several decades. Also the department should be

consolidated into one location for effi ciencies in staff communication.

Marathon County Highway Department:

Many of the existing buildings used by this department are in good condition and the rest are in poor to fair

condition. Unfortunately, the department has outgrown its available space and departmental operations are

hampered by the arrangement of existing buildings. This department should be relocated to a new site with a

facility that provides approximately 156,000 square feet of new space.

Marathon County Maintenance Department:

The existing building for this department is in good condition, although it is undersized for both current and future

needs. The need for additional space is primarily driven by the need for secure records storage. The long term

needs nearly double the size of the current facility to 32,000 square feet.

THE STUDY AREA

The West Side of the City of Wausau, WI contains several county owned and operated facilities that form an

identifi able precinct, most recognizable by its principal green space, the 78-acre Marathon Park (Issues &

Opportunities graphic). Other adjacent county uses include the University of Wisconsin - Marathon County

(UWMC), at the eastern edge of Marathon Park; the Parks, Recreation and Forestry Department maintenance

sheds, located to the south of the Park, the County Building and Maintenance Department and the County Highway

Department, both located to the southwest of the Park. In addition to these County facilities, the area is bisected by

an “industrial lead” rail road track managed by Canadian National railway with “distribution voltage” electric wires

within the rail right of way managed by the Wisconsin Public Service Corporation.

The study area is also surrounded by diverse, yet distinctive, land uses. Stewart Avenue defi nes the northern edge

of the study area while 17th Avenue defi nes the western edge. Each of these is a major route bringing people to

Wausau, but for this same reason, limit direct connections to neighborhoods located across their right-of-ways.

Adjacent neighborhoods with strong connections to the study area include the Werle Park neighborhood to the east

and industrial uses to the south and southwest. Several important institutions exist within these neighborhoods

including Trinity Church and the Lincoln Primary School. The industrial uses to the south, such as Central Storage

and GATM/Wausau Iron Works, are separated from Marathon Park by the railroad tracks but still fi gure signifi cantly

into the future redevelopment of the area. Bus routes and bike routes can be found throughout this side of the City,

which provide alternatives to automobile transportation within the study area.

Executive Summary

p. 3

WHY ENVISION THE FUTURE?

The mix of diverse uses arrayed around the centerpiece of Marathon Park has been a past strength of the study area.

However, the ability to provide public amenities and services may be inhibited if growth issues are not addressed.

UWMC has a need for additional space and an opportunity to pay for improvements using some federal dollars,

the County Highway Department is unable to modernize its operations, and the County Building Operation &

Maintenance Department is running out of storage space. Additionally, the County Parks, Recreation, and Forestry

department requires additional space to continue supporting the properties in its care, including the treasured

Marathon Park. The recreational and educational services that are central to the area’s identity and its future

prosperity are threatened if action is not taken today.

Despite these very real concerns, the west side has unique, high quality resources that have the potential to fl ourish.

The study area can become a vibrant campus and community district with an exceptional public green space at its

core. By unlocking immediate opportunities and creating a strategy for the area’s long term future, this vision can

be realized.

HISTORY OF THE STUDY AREA

Wausau’s west side developed rapidly when the area around Big Bull Falls on the Wisconsin River was identifi ed

as a prime site for lumber operations. The abundant pines and the power and transportation capability of the river

propelled the settlement and expansion of the community. Twelve years after the fi rst mills are established in 1840,

the west side was divided into lots for residential development. Less than 20 years later, in 1867, the Wisconsin

Agricultural Society acquired 80-acres to serve as the community fair grounds. The fi rst Wisconsin Valley Fair

was held only a year later in 1868. At the close of the century, the fi rst rural teacher training school in the State of

Wisconsin was established at the eastern edge of Marathon Park. Rooted in the area’s forest and farming heritage,

this area has provided the City and State with an events space and educational opportunities for more than a century.

Wausau’s prosperity, and that of its west side, was visible as the community continued to develop over the fi rst half

of the 20th century. Marathon Park provided a place for seasonal activities, such as curling and car racing, as well

as a home to the annual spectacle of the summer agricultural fair. Prominent exhibition buildings were added in

1924 in support of the successful fair. The teacher’s training school graduated almost 1,500 educators by the 1940’s

and tight knit neighborhoods fi lled out between downtown to the east and the western edge of the city along 12th

Avenue. A network of rail lines grew throughout Wausau linking individual industrial enterprises and allowing the

transport of materials in and out of the City, thus spurring further growth. The County highway and operations shop

maintained area roads from it present site, which at the time was the western edge of town.

Decline, change, and new growth transformed the west side over the second half of the 20th century. By 1963,

industry and associated rail spurs had started to disappear. Milling and manufacturing companies along the western

edge of the river – at the end of Sherman Street in the south and along 1st Ave in the north – had left and rail

spurs were discontinued. The once robust neighborhoods serving these enterprises lagged as manufacturing jobs

Executive Summary

p. 4

disappeared. A few new “light industrial” businesses arrived at the western edge of the City with direct access to

the new highway allowing easy transit to points north and south. UWMC becomes established as a 2 year college

in 1947, part of the State’s 13 college system and enlarged the preexisting rural teacher’s college. Marathon Park

continues to be an outdoor recreation resource and fairgrounds, as well as expanding its role as an indoor activities

space with the addition of the Youth Building (now known as East Gate Hall).

Today, few industries remain active along the rail. Instead many businesses sit vacant or in disrepair. The burst

of business growth that occurred after the arrival of the highway, a mere 50 years ago, is now moving westward to

occupy sites with greater expansion potential. The neighborhoods are rebounding slowly, but still have signifi cant

patches requiring improvement. The County Highway Department, once on the edge of town, is now penned in

on all sides by the bustling west side. UWMC added fi ve more buildings and substantially increased its student

population. Soon, it will fi nd itself running out of space. Marathon Park added additional space for indoor activities

and fi eld sports as well as a grandstand for large shows during the Fair, but parking for everyday activities, and

especially during large events has become problematic to the point of threatening the grand white pine trees so

closely identifi ed with the park.

COMMUNITY DESIGN & PUBLIC INVOLVEMENT PROCESS

To assist in the creation of the West Side Master Plan, County administrators, City staff, neighbors, business

owners, elected offi cials and other stakeholders came together for a community Design Workshop (Oct. 13, 2007)

and an Open House (Oct. 17, 2007). Attendees of the Design Workshop assembled to learn about the area, discuss

their concerns and hopes, and draw a map describing the future of the West Side. The mapping exercise created

an opportunity for participants to create a picture of their own long-term vision of the area and to illustrate how a

coordinated effort could meet the needs in the area over the next several decades. At the following Open House,

participants learned about the area and the results of the Design Workshop. Community member were able to ask

questions about the process and add their own comments and recommendations to the notes and graphics produced

at the design workshop.

The notes, maps and subsequent open house comments became the basis for developing several design options

considered by the Committee. This robust community process – including a newsletter that summarized the

outcomes of the Design Workshop and Open House events– gave residents an opportunity to have their voices heard

by the planners and ensure that the West Side Master Plan addressed their concerns and hopes for the future of the

area.

A FUTURE VISION OF THE WEST SIDE

The community planning process revealed consensus around a vision of the study area as an exciting place with

opportunities to play, learn, live and work – a place that makes the most of the unique natural and educational assets

thriving there today. The West Side will be:

• A vital emblem of the community’s forest and farming heritage: a district defi ned by Marathon Park

- a stunning green space in the heart of the city that combines the tranquility of a majestic pine forest, the

excitement of a regional event space, and the camaraderie of everyday play areas for all ages.

Executive Summary

p. 5

• A place where campus and community come together: a coherent educational corridor that provides

learning and employment opportunities for both a student population and the nearby community that draws

people and resources to the area.

• A place of welcoming gateways and special thresholds: a district that beautifi es and redefi nes the

southern entrance to Marathon Park, the public face of UWMC, and industrial properties along West St. and

which maintains the walkable, diverse, multi-use character of the area.

• A district with neighborhood friendly services and amenities: a place transformed from corridors

of declining, poorly maintained and underutilized buildings being to a place with pedestrian friendly,

landscaped sidewalks that link areas for socializing and recreation – home to new Marathon Park uses that

draw people together.

PRELIMINARY OPTIONS

With this vision in mind, the Committee set out to fully describe how it could be realized over the next 25 years.

Four options, each including a phase one cost comparison, were created to explore the tradeoffs between different

approaches to realizing this unique campus/ community district. The options included using only currently owned

County land (Option #1 the County/Campus No-Growth plan) as well as different strategies that included acquisition

of property from willing sellers over the duration of the long-term vision (Option #2 the Park & Camps, Option #3

the Compact Campus, and Option #4 the Education Quadrangles).

Each option was discussed in detail and evaluated for its ability to meet a set of criteria rooted in the assessment of

the County’s facility needs, and the discussion that took place as part of the community planning process. Several

committee meetings, including an open meeting with an opportunity for public comment, led to selection of the

preferred alternative #3 Compact Campus. This option met the greatest number of committee criteria including:

meets the identifi ed program needs, has lower fi rst phase costs, preserves public building value, includes nearby

parking, creates a convenient concentration for educational and park uses, and provides a desirable level of

visibility for a proposed, federally supported, Regional Learning Center associated with UWMC. The Master Plan

proposes creating a fl ourishing and diverse district that is a center of student and community activity. The physical

description of the Master Plan can be described as “A Crescent” providing supportive educational, recreational, and

service activity around the green heart of Marathon Park

In addition, since option #3 Compact Campus requires land acquisition over time, a phasing plan was developed in

conjunction with an illustrated plan of the West Side Master Plan’s campus/community 25-year vision. Phase one

involves acquiring parcels between 6th & 7th Ave as well as at the corner of 7th Ave and Pardee St. to allow maximum

fl exibility for immediate action items. These lots also defi ne the ends of the evolving 7th Avenue campus precinct

and achieve near term goals while setting the stage for the transition of the area over the duration of the 25-year

vision. Phase two concentrates on additional land acquisition near the current campus and the parcel to immediately

south of Marathon Park at the corner of 10th Ave and West St. Phase three anticipates the relocation of the County

Highway Department on a remote site, the redevelopment of the site for Marathon Park administrative and

maintenance needs, and the transition of the current Count Parks, Recreation, and Forestry maintenance department

Executive Summary

p. 6

to Marathon Park recreational activities. The fi nal phase of the plan includes acquisition of remaining parcels

adjacent to the campus and Marathon Park – a completion of the crescent of supportive educational, recreational,

and service activity around the green heart of Marathon Park.

KEY ACTIONS FOR A CAMPUS/COMMUNITY DISTRICT

Four essential elements form the strategy for creating a vital district for the city’s residents. This strategy, that

balances community priorities and uses public resources responsibly, demonstrates how the County can structure its

future actions to lay the groundwork for improvement to and investment in the area. These four elements – which

will require collaboration between the county, city, private owners and the larger community – complement and

reinforce one another. Not fully effective in isolation, all four elements are required to realize the West Side Master

Plan vision.

1. Build on the unique natural asset and identity of Marathon Park

• Make improvements to Marathon Park, including immediate renovations and improvements to

landscaping, the amphitheater locker rooms, park utilities and stormwater handling infrastructure,

developing bicycle paths, the Multi-purpose building, as well as construction of a new horse barn,

judging pavilion, and storage.

• Acquire additional land for park support including overfl ow parking for large events, such as the

Wisconsin Valley Fair, additional greenhouse and maintenance operations space, recreational

activities space as well future expansion needs.

2. Build relationships to identify and acquire land as it becomes available

• Create a funding mechanism to enable direct purchase of land where possible for land in the

crescent to the east and south of Marathon Park.

• Negotiate acquisition of parcels in the crescent surrounding Marathon Park, seeking immediate

purchase of the parcels, 6th & 7th and 7th and Pardee St., identifi ed in phase one of the detailed

phasing strategy.

3. Foster a vibrant campus district that draws investment and also serves the immediate community.

• Create a transit plan that diversifi es ways to reach and enjoy the area, include items such as, re-

stripe parking to increase effi cient use of surface parking resources; provide small amounts of

surface parking adjacent to new uses where possible for convenience; create a remote parking

and shuttle service to increase capacity without dedicating (or paying for) space for car storage;

identify new bus stops to maximize access via transit; and consider improving pedestrian and

bicycle facilities to encourage use of the area without a car.

• Add new uses, such as a Regional Learning Center (eventually a residence hall and other campus

facilities), that serves both community members and students, bringing investment and activity to

the area that benefi ts everyone.

4. Unlock new county service or educational opportunities – administrative offi ces, residence halls,

courts, athletic fi elds

• Redevelop parcels adjacent to Marathon Park’s southern entry on 10th Ave, not only to provide

space for park activities proximate to the park, but also to create a safe, attractive and direct

Executive Summary

p. 7

connection between the Park and adjacent Neighborhoods.

• Relocate the County Highway Department and redevelop the parcel at 17th Ave & West St. to

provide additional space for Marathon Park maintenance needs and a more attractive community

edge along Marathon Park’s southern side.

• Acquire other parcels w/in the crescent immediately adjacent to Marathon Park to provide

additional space for campus, park or County administrative expansion that will add to the

realization of a cohesive campus/community district on the West Side of Wausau.

CONCLUSION

The county is at a critical juncture – a time when it should prepare for the West Side’s future or possibly miss

opportunities to ensure the study area’s ongoing success. The County should act now to capture the benefi ts offered

by the thriving recreational and educational opportunities that are emblems of the city’s forest and farming heritage.

By supporting the West Side Master Plan, the County can unlock local and regional scale benefi ts for the entire

community and help assure the vitality of this distinctive and appealing district within the City of Wausau.