Estes Square

Master Plan

City of St. Francis

Milwaukee County, Wisconsin
Circuital Consulting Company
May 2013

Table of Contents
I. Introduction 1
Purpose of Plan Update 1
Site History 2

II. Context / Issues & Opportunities

Housing 2
Economic Development 3
Transportation 3
Cultural and Natural Resources
3

III. Site Development Recommendations

Land Use 4
Housing 5
Economic Development 5
Transportation 6
Cultural and Natural Resources/Sustainability
6

IV. Implementation
Phases 7
Responsible Parties 7

V. Summary 8

Introduction
Purpose of Plan Update
In 2003, the City of St. Francis completed its first comprehensive
plan in accordance with Wisconsins Smart Growth Budget Bill. The
comprehensive plan was completed over several months, in part with
the input of dozens of St. Francis residents. The plan addressed nine
elements: Issues and Opportunities; Housing; Transportation; Utilities
and Community Facilities; Agricultural, Natural and Cultural Facilities;
Economic Development; Intergovernmental Cooperation; Land Use;
and Implementation.
Economic development and housing were among the most pressing
issues identified by residents in the public participation process. As
the smallest city in Milwaukee County, with less than 10,000 residents,
St. Francis has limited new development opportunities. However,
a few large portions of undeveloped land remain, all near Lake
Michigan. These parcels hold the most potential for future growth in
St. Francis.

Image Courtesy of 2003 St. Francis Comprehensive Plan

Since the completion of the 2003 Comprehensive Plan, though,

none of the three largest parcels have been developed. The three
parcels include the Archdiocese of Milwaukee and two large parcels
formerly occupied by WE Energies. Because the Archdiocese still
occupies its property, the WE Energies land is the first priority for new
development in St. Francis.
The WE Energies land is subdivided into two large parcels. The larger
parcel lies west of Packard Avenue and faces many environmental
and accessibility challenges. The smaller, 13-acre parcel (see map)
has been capped and is ready for development. However, no
development has been formally proposed for the site. Therefore, the
purpose of this plan is to generate a master plan for the site to guide
the development of one of St. Francis last remaining undeveloped
properties
Introduction

Site in relation to the surrounding area

Page 1

Site History
According to St. Francis historians, the planning area lies less than one
mile south of the original settlement of St. Francis. In 1835, Elijah Estes
walked from Chicago to Milwaukee and claimed 150 acres of land that
included parts of present day Bay View and St. Francis. In honor of
the citys original settler, the 13-acre study parcel will be named Estes
Square.
Formerly part of the now defunct Town of Lake, Estes Square was
part of the Lakeside Power Plant from 1921 to 1983. Much of the site
was used for coal storage and ash deposit and was known to contain
asbestos. As a result, the city of St. Francis permanently capped the
site, making it safe for redevelopment.
The 2003 Comprehensive Plan examined potential uses for the WE
Energies land. Suggested uses included the preservation of open
space, commercial uses, and residential uses. Several residents
expressed interest in making Estes Square the city center of St.
Francis. However, the plan ultimately did not provide a specific
roadmap for the sites development.

Context / Issues & Opportunities

Housing
St. Francis has a high proportion of rental units relative to other
communities in Milwaukee County. In the year 2000, nearly 48
percent of all housing units were rental units. As a comparison, less
than 40 percent of the housing stock were rental units in Cudahy,
South Milwaukee, and Oak Creek.
In addition, the 2003 Comprehensive Plan recognized that the
housing stock in St. Francis contained little variety in housing options.
The plan concluded that most of the available single-family housing
was too small for most families. Several of the public participants
confirmed the conclusion, adding that a larger variety of housing
options would help retain families and keep children in the St. Francis
school district.
Since 2003, two large multi-family developments were built on the
shore of Lake Michigan near Estes Square. One complex consists of
market-rate apartments and the other of condominiums. Several
adjacent parcels remain vacant; most have been bought and sold
multiple times in the past decade.
Based upon the existing housing stock, single-family housing is a
priority for future development in St. Francis as the city attempts to
expand its tax base and retain residents of all age groups. With few
available locations for new single-family residential development,
Estes Square is a prime location for medium to high end single-family
housing in St. Francis.

The former Lakeside Power Plant.

Image Courtesy of the Transport Company
Introduction

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Economic Development
In part due to its location, St. Francis does not boast a major
commercial center. Its main commercial areas include the Whitnall
Square Shopping Center, a small industrial park, and the southern
most portion of the Kinnickinnic Avenue commercial corridor. In
the past few years, the city has attempted to establish a small retail
center on the west side of Packard Avenue, directly adjacent to Estes
Square.
In many ways, St. Francis has been unable to develop a major
commercial center because it has long been overshadowed by its
neighboring communities including Bay View, Cudahy, and Oak Creek.
The lack of a high-traffic transportation corridor is another major
obstacle to the development of a major commercial center. Each of
the major thoroughfares that pass through St. Francis (i.e. Howard
Avenue, Kinnickinnic Avenue, Lake Drive, etc.) experience their lowest
traffic counts within and around the city.
Public participants from the 2003 planning process appeared to
acknowledge these issues, as many suggested development of
neighborhood-scale retail. Estes Square, in particular, is an ideal
site for small-scale retail development due to its location at the
intersection of Howard Ave and Lake Dr and its proximity to the new
multi-family complexes on Lake Michigan.

Transportation
Compared to its neighboring communities, St. Francis has few major
arterials. Although the Lake Park freeway passes through St. Francis,
the majority of its traffic exits west, away from St. Francis. In fact,
Howard Avenue is St. Franciss only major east-west road.
The Milwaukee County bus system serves St. Francis, but its service
is largely concentrated in the western half of the city. Only the South
Shore Flyer travels past Estes Square. Extending routes 89 and 50 to
Estes Square could increase commercial development opportunities.
Context / Issues & Opportunities

Image Courtesy of 2003 St. Francis Comprehensive Plan

Recent streetscape improvements along Howard Avenue combine

with the lakefront trails to provide adequate bicycle access to Estes
Square. Bicyclists are able to reach the site from all directions using
either dedicated trails or designated bike lanes. There is also potential
to develop trails through the former WE Energies site and the
Archdiocese land to increase accessibility from western Bay View.

Cultural and Natural Resources

St. Francis claims an abundance of natural resources. Its eastern edge
borders Lake Michigan and its numerous connected parks. It is also
home to some of the last remaining original forest in southeastern
Wisconsin and several additional parks. The 2003 public participation
process revealed that St. Francis residents take pride in the retention
of green space. Any new development should attempt to retain as
much green space as possible.
St. Franciss community center is one block west of Estes Square on
Howard Avenue. Its public library, city hall, and fire and police stations
are all located less than one mile southwest of Estes Square.

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Site Development Recommendations

Land Use
The current St. Francis zoning map designates Estes Square as
a B-1 Limited Business district. However, this designation is not
consistent with the needs of the city or local market demands. Given
that established commercial districts in St. Francis are struggling
to compete with neighboring municipalities, it is unreasonable to
expect Estes Square to achieve different results. Accordingly, larger
commercial efforts should remain focused on existing business
districts.

Image Courtesy of 2003 St. Francis Comprehensive Plan

Estes Square is, however, a good location for neighborhood-scale

retail and office development. The influx of higher-income residents in
the adjacent lakeshore condominium and apartment complexes has
increased the local disposable income level in recent years. Moreover,
there are several home lots available for purchase on the larger
former WE Energies property.
To further establish the local market, the majority of Estes Square
should be reserved for single-family residential development. The
addition of households would also help promote the expansion of
the Packard Gardens Retail District across the street. Accessibility is
a primary motivator for the development of single-family residential
units. The site is minutes from Bay View, Cudahy, and the Lake Park
Freeway. It is also a few short blocks from St. Francis High School,
making it an ideal location for families with children.
In keeping with the wishes of St. Francis residents, part of the parcel
should be reserved for public green space.

Site Development Recommendations

Page 4

Housing

Economic Development

By many accounts, the St. Francis housing market is over-saturated

with rental units. Accordingly, the Estes Square Master Plan calls for
mostly single-family units. Overall, the master plan allows for the
addition of 53 single-family units and 5 market-rate apartment units.

Due to its somewhat isolated location and low to moderate traffic

counts, Estes Square is not suited for large-scale retail development.
Accordingly the master plan calls for several small retail and office
spaces. These spaces will be able to capture the higher income
households that will occupy the residential units in Estes Square and
the lakefront developments. In the long-term, Estes Square and the
Packard Retail District will serve as a secondary commercial district
with specialty shops. Large-scale commercial development should be
reserved for the expected future redevelopment of the Archdiocese
land just north of the site.

The majority of the proposed single-family units are side-by-side

townhomes. The townhome style preserves space on the site, in turn
allowing for more units and a maximum amount of green space. Each
unit includes its own private yard, and nearly all units are directly
adjacent to public green space, thus increasing property values.
The townhomes should be available in a range of prices, but all should
be of a high quality to attract higher income levels and property
taxes to St. Francis. Smaller units in similar markets commonly range
between $250,000 to $300,000. The larger, higher quality units in the
master plan should range between $300,000 to $500,000. Although
homes of this price range are few and far between in St. Francis,
their location along the lakefront coupled with the proposed green
space and commercial development will attract buyers searching for a
trendy, yet quieter neighborhood.
Overall, the 53 single-family units would result in total property values
of between $15 and $20 million. Importantly, each unit is large enough
to help retain families with children, in turn supporting the St. Francis
school district.

Site Development Recommendations

The master plan includes a variety of commercial spaces, all focused

on the southern portion of the site to capitalize on the intersection of
Lake Drive and Howard Avenue. In total, the master plan includes:

6 Live/Work Units,
7,000 square feet of restaurant space,
8,000 square feet of retail space, and
9,000 square feet of office space.

The city should place preference on local shops, as planning process

participants expressed a desire for specialty retail and locally-owned
businesses to keep revenue in St. Francis.

Page 5

Transportation

Cultural & Natural Resources / Sustainability

Given the limited accessibility to Estes Square, the master plan seeks
to create new transportation options for all travel modes. Two new
east-west streets bisect the site while one new north-south street
further divides the property. The new street grid breaks the site down
into several small blocks, creating multiple options and access points
for site users.

One of the main focuses of the Estes Square Master Plan is the
creation of additional public spaces. Many planning process
participants in 2003 stated that green space was important to St.
Francis, and is part of what distinguishes it from other communities.
Accordingly, the northern third of the site is designated as a new park
area, complete with a small pavilion for organized events.

Primary automobile accessibility will remain from Lake Drive and

Howard Avenue. However, the series of new streets allows for
vehicular-pedestrian conflicts to stay at a minimum at any one
intersection. This helps to place a priority on bicycle and pedestrian
traffic.

The park acts as the hub for trail connections to the rest of Estes
Square, the WE Energies property, and the lakefront. The park
connects to the southern portion of Estes Square through a narrow
parkway bordered on one side by housing units and on the other by a
stormwater swale. The parkway continues the park-like setting while
transitioning to the slightly more urban atmosphere of the rest of
Estes Square.

While parking for residents and businesses meets St. Franciss current
zoning requirements, much of it is reliant on street parking. This
reduces the need for surface parking lots, creates an extra buffer for
pedestrians from travel lanes, and encourages the use of alternative
modes of transportation by reducing the advantages of automobile
travel.
Addtionally, a complete network of sidewalks and designated bike
lanes is provided by the master plan. Pedestrians are able to travel
around and within the site with ease by avoiding superblocks. Each
new street also has at least one designated bike lane, making bicycle
travel throughout the site easily recognizable and safe.
Finally, the main street in Estes Square is designed to be a shared
street. In this concept, curbs are removed so that cars, bikes, and
pedestrians are all at the same level. Driving lanes are narrower and
typical street elements, such as streetlights, are placed on the street
to further enclose the driving lanes. The shared street places the
pedestrian, not the driver, at the highest priority, thus encouraging
walking. Pedestrians and bicyclists always have the right-of-way on
shared streets, so drivers must be more attentive and drive at slower
speeds.
Site Development Recommendations

Estes Square is designed to be a sustainable community in multiple

facets. As previously mentioned, walking and biking are the prioritized
transportation methods. In addition, Estes Square should utilize
stormwater best management practices. Due to its proximity to Lake
Michigan and the past use of the site, environmental sustainability
should be a priority.
The master plan design accounts for stormwater retention and
infiltration in multiple ways. Two bioswales run along the eastern
edge of the north-south bisecting street. These bioswales collect
stormwater from the southern portion of the site and transport it
to the stormwater swale in the middle of the site. In wet weather
conditions, the swale will flood and take on the appearance of a pond.
In dry weather conditions, the pond will dry up and become a wet
prairie. The use of native plants will help ensure that the plants are
drought-resistant and virtually maintenance-free after the first few
years. Finally, several of the residences in Estes Square should utilize
green roofs to capture water where it falls. Used in combination
these best management practices will reduce the burden on the
existing storm sewer connections.
Page 6

Implementation
Phasing
The size and cost of the Estes Square development will likely require
multiple developers. Consequently, the City of St. Francis should work
to coordinate developments to ensure the success of the project.
The first phase should include the residential developments,
infrastructure improvements, and park construction. Little grading
is needed on the site, so landscaping costs should be kept to a
minimum. The main costs to the city will be right-of-way construction
and the pavilion. These should be put in place in phase one, though,
to encourage the second phase of development and provide
amenities to residents who purchase homes in phase one.
The second phase of development will include the southern third of
the site. Although these properties are of higher value because of
their location at the intersection of Lake Drive and Howard Avenue,
they are somewhat dependent on the increase of residential density
that phase one will provide. Additionally, the phase two commercial
developments will have a higher value after the construction of
adjacent housing due to the expanded customer base.

Implementation

Responsible Parties
The first step toward the implemenation of the Estes Square Master
Plan is to amend the citys zoning code to allow for mixed-use
development on the site. Common restrictions such as minimum
parking requirements and minimum setback requirements should be
adjusted to allow for this catalytic project.
Additionally, city officials should create a set of architectural
guidelines to simplify the design and review process for developers.
This will clarify expectations as well as accelerate the development
process.
Upon the development of guidelines and amendments to the zoning
code, city staff will be responsible for drawing interest to the site. The
community development authority and public works departments
should work together to create detailed site plans for presentation to
business owners and developers. Doing so will reduce uncertainty and
ensure the cohesiveness of development on the site.
City staff will also be required to maintain communications with the
Wisconsin Department of Transportation as the new right-of-ways
are established. In particular, the shared street will require extensive
planning as it is a new street design in the state. Staff should be
prepared to assist WisDOT with concerns so as to reduce the level of
uncertainty of its implementation.

Page 7

Summary
Although mentioned as an area of interest in the 2003 Comprehensive Plan, St. Francis does not have a specific plan in place for the former
WE Energies property, Estes Square. This proposed master plan will act as a guide for the development of the site in a manner consistent with
the citys wants and needs. In a compact 13-acre site, Estes Square will introduce modern housing options, neighborhood-scale retail and office
space, and new park and recreational space for all residents of St. Francis. Estes Square will embody the vision for St. Franciss future.

Summary

Page 8