Just a few months ago it was announced that the City of Milwaukee, with help from the State of Wisconsin, is planning on reconstructing a portion of the downtown area which includes rebuilding of a freeway interchange, its associated on and off ramps, and surrounding city streets. Called the Lake Interchange, it includes the area roughly bordering Michigan Street to the north, Buffalo Street to the south, and Jackson Street to the west (and east to the lake). This is the most significant effort in almost 40 years to transform the lakefront of Milwaukee with the hopes of developing vacant land and a goal of easier access to the shoreline and the Third Ward neighborhood to the south.

Several roundtables have been conducted with the hopes of gathering Milwaukee’s movers and shakers together to make this plan a reality. Many players are involved, including the City of Milwaukee, State of Wisconsin, Milwaukee Department of City Development, and numerous other entities and Authorities Having Jurisdiction. I’ve read the news articles, witnessed a round table discussion, seen the proposed plans, and I’d like to share some of my thoughts and opinions on the proposal. Before we can look to the future, I believe it’s necessary to take a look back at the history of this area in order to better understand how the lakefront and Third Ward got to where they are today.

The Lincoln Memorial

At the turn of the Twentieth Century, Milwaukee was a medium-sized bustling metropolis known for its beer, wheat, cream city bricks, and manufacturing. At the foot of the lake stood the Chicago and Northwestern railroad depot, whose tracks covered the southern part of the Third Ward and hugged the edge of the lake until it curved north through the residential neighborhood. The lake edge back then would be unrecognizable today, as significant efforts to improve it would not happen until the 1920’s. Beginning with Jones Island, the projects also included the construction of the outer breakwater, the Lincoln Memorial, and culminated with a massive infill development which created Lincoln Memorial Drive and today’s Veterans Park and lagoon.

Commission Row

South of downtown lay the Third Ward neighborhood, which at the turn of the Century was rebuilding after a devastating fire that destroyed numerous city blocks. From the ashes rose an almost exclusively Italian community, vacated by the first settlers of the area - the Irish. The new Third Ward quickly became the center of Milwaukee’s wholesale produce market, and in the middle of it all rose a tiny church built in 1905, named The Blessed Virgin of Pompeii.

Maitland Airfied in 1948

Festivities along the lakefront were commonplace once its banks were extended, but none were more popular than The Midsummer Festival. Between 1933 and 1941, this annual event drew thousands of people to the lakefront, and was the precursor to today’s Summerfest. The successful annual event was cancelled during World War II and did not resume afterwards. In the late 1940’s, the area around present-day Summerfest was transformed into Maitland Airport. During the Cold War, Milwaukee installed Nike anti-aircraft missiles on the lakefront to protect itself in the event of an attack from the Soviet Union. A significant social and cultural investment in the city and its lakefront would not happen until the end of the 1950’s, and its effects can still be seen today.

Of the many new developments around the city and the county, the lakefront saw the most significant change, both welcomed and opposed. Beginning in 1957, the Aero Saarinen-designed War Memorial was the first internationally-renowned piece of architecture built in the city. The creation of the expressway system in the mid-1960’s cut through the heart of Milwaukee’s neighborhoods – most notably the lakefront, whose “freeway to nowhere” ended at the foot of the lakefront.

Pompeii Church-1967

Eventually this stub turned south along the lake to connect with the Southside, but the damage of its presence was already too evident; its most notable casualty was the Blessed Virgin of Pompeii Church, and with it went the spiritual center of the Italian community. Summerfest was first held in 1968, and became the nation’s largest music festival, encompassing the entire southern edge of the Third Ward. Eventually the Chicago and Northwestern railroad depot was demolished and a generation later the rail corridor right-of-way was transformed into the expanding Oak Leaf bike trail system.

C&NW Depot

O’Donnell Park rose from those same railroad depot ashes in the 1980’s, creating the first major attempt to link the lakefront to the top of the bluff at Wisconsin Avenue. In the late 1990’s, Milwaukee commissioned architect Santiago Calatrava to design a bold new addition to the Milwaukee Art Museum – one that would draw significant national appraise. Lastly, Discovery World built a new facility south of the Milwaukee Art Museum in 2006, educating the public on the very importance of the Great Lakes, including water technology and conservation.

Since the founding of the city, the lakefront has always been the driving force of Milwaukee's commerce, and has become the center of recreational and cultural development in the region. The assets along the shoreline can be strengthened and transformed by proposed changes to the road ways and pedestrian connections along the lake. But many questions remain. How will these changes impact the city all a whole? Will pedestrian safety be enhanced, and will access to the lakefront from downtown be improved? What additional developments can be envisioned for vacant parcels?

Aerial Map-1967

I would like to share with you a plan I have developed for this project. Knowing this whole area will be altered, it is a chance to take a fresh look at the lakefront and the Third Ward neighborhood, both from a pedestrian and vehicle standpoint. Like many of you, I have spent significant time at the many attractions along Milwaukee’s lakefront. I’ve driven along Lincoln Memorial Drive, attempting to merge onto the freeway before the intersection lights change red while dodging pedestrians. I’ve been a pedestrian trying to cross Lincoln Memorial Drive, hoping I don’t get hit by one of those same vehicles. Currently, way finding is an issue for both pedestrians and vehicles alike. I believe the lakefront and Third Ward areas can be enhanced by considering the following eight ideas.

Aerial Map-2012

Before I discuss the plan, there are few general statements I think I should make. What I’m about to show you is the first of many steps towards solving the problem; an idea is just that – an idea. This plan does not undermine or otherwise belittle the massive efforts of those who have made the rebuilding of the Lakefront Interchange a reality. This plan is not connected in any way with the plans that have already been made public. I am not being influenced by any party to bring forth these ideas; my experience as a design professional and love of Milwaukee spurned these ideas and a willingness to share them with you. Some items are intentionally left off of the plan for the sake of clarity. For example, the freeway on-ramp to 794 East from Broadway Street and off-ramp from 794 West to Milwaukee Street are not shown. Sidewalks, which shall be on both sides of every repaired street, are also not shown. I use the term “development” as a general phrase. Development in this case means any kind of site improvement, either for private or public use. I show city blocks and miscellaneous areas void of any detail on purpose. The intent is to get the conversation started on what could be done to enhance the new neighborhood. Specific projects have been announced for a few of these areas, but are not considered for this presentation.

Idea #1: Apply the street grid to the Third Ward.
As part of any new plan, it is a good idea to link neighborhoods previously severed by applying practices that make access to both areas easier, in this case the street grid. I believe Lincoln Memorial should be extended south to the end of the Third Ward. Doing so would make the street the backbone of the redeveloped area, and would set the pattern for the other street alignments. Access to Summerfest remains the same, with Mid Gate and South Gate remaining unchanged, as well as secure access points in between. Extending Lincoln Memorial south to the harbor improves traffic flow through the area, and opens up land for development. Possibilities would then exist for creating bridges across the harbor and/or across the Milwaukee River at grade (see idea #7). There should be a seamless transition between downtown and the Third Ward, and street grid helps to create that opportunity.

Idea #2: Narrow freeway footprint.
The current layout of Interstate 794 through this area is outdated and needs to be improved to today’s standards. When the freeway was first built, the planners imagined an interchange on the lake where the freeway would extend north and link with an extended Park East freeway. Fortunately this did not happen, due in large part to protests from city residents. However, by that time the city had already acquired and leveled the city blocks between Ogden and Lyon streets from the lake to where the Park East used to end. Planners were able to stitch the neighborhood back together successfully, and hopefully the same can be done on a larger scale in the Third Ward area. When the Park East freeway extension was scrapped, I-794 became a dead-end freeway. As such, by the time the Hoan Bridge was built and the expressway extended south, it had to be constructed around the existing on and off-ramps. As a result, the freeway footprint became excessively large, and led to a lack of development in the city blocks underneath the zone. Currently the freeway is being demolished and rebuilt between the Milwaukee River and Milwaukee Street, but I believe it should be rebuilt all the way east and south to the Hoan Bridge. By doing so, the opportunity exists to make the footprint as narrow as possible by keeping the main lanes together in both directions and using right-hand on ramps and off ramps. If this is achieved, it would minimize the amount of space underneath the interstate that cannot be used for traditional development.

Idea #3: Clybourn Avenue becomes a two-way boulevard.
Milwaukee has its fair share of boulevards, but none could be more grandeur than this proposal. Clybourn Avenue in its current state is merely a corridor in which vehicles pass through as quickly as possible. Milwaukee needs a centrally-located two-way street lined with more than just hardscape. Transforming this street into a boulevard from the lake to the Milwaukee River will create opportunities for development that are not currently feasible or possible in its current condition. Clybourn should also curve to the south as it approaches the lake. This would create more distance between Clybourn and Michigan streets to alleviate traffic backup on Lincoln Memorial, and increase the amount of land available between them for development. A two-way street will aid in providing access to the lakefront, and the view of Lake Michigan for traffic heading east would be the best in the city. Views of the open space to the east (see idea #6), favorable views of Discovery World and Summerfest would create a focal point at the lake.

Idea #4: Create standard (but improved) intersections at the Lake Interchange, Michigan Streets and Clybourn Streets.
The idea behind this is not just to create typical intersections at the three crossroads, but enhance them. Extending Lincoln Memorial Drive south into the Third Ward creates opportunities for multiple street intersections, and with that creates potentially hazardous conflicts between pedestrians and vehicles. These three nodes deserve a little bit more attention, as they will be perhaps the busiest in the downtown area. Beginning with the Lake Interchange, I believe there should be a consolidation of on-ramps and off-ramps into a single standard intersection. This is the key to controlling vehicle traffic and providing a sense of way-finding. Providing an additional traffic light here will also help slow down vehicular traffic passing through the area. Secondly, if Clybourn becomes a two-way street, it should also encourage improved traffic movement through the use of another controlled stoplight. However, the intersection that perhaps deserves the most attention is Michigan and Lincoln Memorial. Not only is this one of the most dangerous intersections in the city, but it is the main connection from the lakefront to the top of the bluff at Wisconsin Avenue. Anyone who has stood on this corner can agree there is a feeling of “controlled chaos” as cars race past while pedestrians wait for the light to change. Two ideas come to mind to solve this problem. One option is bold and forward-thinking, and adds a unique architectural element to the lakefront area. The other option enhances the safety of pedestrians, and is a much more conservative approach. The first option would be to separate pedestrian and vehicle traffic completely. The problem with a busy intersection like this is that there is never enough time for both pedestrians and vehicles to safely coexist in an efficient and orderly manner. Vehicles wait in the middle of the road for people to cross, they sneak in between pedestrians, and often times continue through the intersection even after the light has turned red. During the peak of rush hour, it’s evident why there is such a backup of vehicles in each direction on Lincoln Memorial Drive. By completely separating the two, both are allowed to freely navigate without the hazard of conflict. Europe has some great examples of vehicular-pedestrian separation, but none more elegant and striking than the Hovenring Bridge in The Netherlands.

Hovenring

A suspended pedestrian bridge with a slender center mast creates not only a defining architectural icon, but solves the problem of pedestrian safety at a busy intersection. Milwaukee is a place where something like this can be built. There already exists an elevation difference at O’Donnell Park, and a suspended bridge would provide the perfect transition to the lakefront from Wisconsin Avenue. Much like the Brady Street pedestrian bridge terminates at Veterans Park, a similar gentle path can wind its way down to grade. The second option is to improve the standard intersection, by expanding the pedestrian crosswalk width, bringing the street corners out into the road as far as possible and providing islands of refuge within medians for pedestrians.

Improved crosswalk

A common sight at college campuses is a pedestrian-only crossing signal in between light changes. Pedestrians have a certain amount of time to crisscross the intersection in any direction without worrying about vehicles. This approach would be the most cost efficient, doesn’t alienate pedestrians from the street front, and is much more traditional in its appearance and execution. Either option needs to be explored, for the current situation is far too dangerous.

Idea #5: Create an iconic park at the foot of the lake.
Milwaukee is in need of an open space that is iconic; a place where people say “meet me at the ‘thing’ ” or an area where people are drawn to visit and spend time on a massive scale. There are plenty of open spaces along the lake, but most are limited in their ability to accommodate the flexibility that this space can be. Examples of such iconic parks are abundant. Millennium Park in Chicago was built on a former rail yard, yet it attracts millions of people from all over the world. Visitors take their picture at the “shiny kidney bean” (my words). After all, it’s an open-aired space just like any other park, but there is something about the place that draws people to it. Virtually every first-class city in the world has a recognizable common space. In my plan, I show this area as a massive blank space, ripe for fresh ideas. The south edge of the park would hug the line of Clybourn Avenue as it curves south towards the lake. Summerfest gains additional land and an opportunity to renovate the North Gate area. The Cudahy Gardens geometric patterns of the Art Museum expansion would be expressed on the north half of the park, and provide a proper location for the soccer field and extension of the Oak Leaf trail system south into the Third Ward. The opportunities in this open space are limitless; but a few things I could see happening here are seasonal events such as a summertime farmers market or community gardens, a wintertime skating rink, and a permanent art installation (think “shiny reflective kidney-bean-esque”). A permanent structure located on the north end of the Summerfest grounds can serve both this park and Summerfest during the festival season by including a grab-and-go food establishment (something that is currently lacking in this specific area), restrooms and small retail shops. The current open space on thisvery spot needs refreshing and is not a place where people currently spend lots of time. Milwaukee needs an iconic park with a purpose that draws visitors to the lakefront from all over.

Idea #6: Consolidate off-ramps at Jackson and Van Buren Streets.
One of the confusing things about coming to the lakefront by vehicle from the west is the number of exit choices. Should the user be in the right-hand lane or left-hand lane? Van Buren or Jackson streets? Lakefront or Port of Milwaukee (does that mean the same thing to a visitor)? Part of the issue is the original Lake Interchange was designed for a different era. It was a means of moving vehicles through the area as quickly and efficiently as possible. While this is still a priority given the volume of vehicles it handles on a daily basis, it has outgrown its capacity and should be reconfigured for better access to the Third Ward and downtown. The earlier points of consolidating the lake interchange intersection and keeping the freeway deck together overhead helps create a more efficient freeway system, but we cannot ignore the progression of exit options as a vehicle approaches the downtown area. If anyone has ever travelled this stretch of freeway, you’ve seen vehicles abruptly switch lanes from the right side all the way to the left, as the user realizes they need to exit the freeway at Jackson/Van Buren. People are a bit confused as they approach the lake, and the decision-making should be easier for vehicles travelling at 100 feet per second. I suggest the former Jackson/Van Buren exit ramp should be consolidated into one exit discharge onto Van Buren Street. Both Van Buren and Jackson streets can remain one-way as they currently are north of Clybourn Street. Jackson Street can be reconfigured as a two-way street south of St. Paul, and Van Buren would retain its two-way status south of St. Paul. I also believer Pompeii Square should be moved to the former site of the church its named after; giving it a little more significance than its present location, and be configured to face south onto St. Paul Street for increased access.

Idea #7: Build a bridge over the Milwaukee River at south end of the Third Ward.
Building a bridge to link the Third Ward with the Fifth Ward is quite possibly the most important key to the future viability of this area. I believe the absence of development or general interest in improving the district can be pointed to a lack of access. Currently there are only two major arteries that serve the Third Ward – Water Street and Milwaukee Street, and neither provides an opportunity to serve the southern tip of the Third Ward. Creating the street grid as noted in idea #1 only goes so far; people need a reason to go there, even if users are just passing through. That’s exactly what the bridge does. Expanding Lincoln Memorial Drive into the area helps increase traffic presence, but this major thoroughfare cannot terminate at the harbor. By continuing Lincoln Memorial over the Milwaukee River to South Water Street and eventually National Avenue, it creates a true corridor where an increase of activity will be seen and hopefully development will ensue. The bridge also alleviates traffic congestion for folks leaving the area; as anyone who has tried to exit Summerfest at the end of the night knows all too well there are major headaches as thousands of people wedge their way out of the area. The bridge would also provide an opportunity to extend the Oak Leaf bike trail to the Southside and its newly created counterpart, the Kinnickinnic Trail.

Idea #8: Construct a roundabout on Erie Street.
Normally I am not a fan of roundabouts, but in this case I believe it makes sense for a few reasons. If the street grid is applied to the lower area of the Third Ward, it creates an intersection at Erie, Polk and Jefferson Streets that cannot be resolved with a traditional intersection. If an access point is created at the harbor, Erie Street will no doubt become busier, and with it a need for the vehicular traffic to be better controlled. A roundabout not only slows down traffic, but protects pedestrians at the intersection and would be a nice compliment to the adjacent park land to the north. The shortcomings of roundabouts are well known; they are tough for larger vehicles and semi-trucks to navigate, they take up lots of space, and they potentially increase the number of vehicle-pedestrian conflicts. However, in this situation I believe the roundabout has more positives than negatives, and should be considered for this intersection. As part of this transformation, I believe there are two structures that should be rehabilitated to inform and educate the public on the history of the lower Third Ward area.

C&NW Bridge-1938

The abandoned Chicago and Northwestern coach house was once the gateway into Milwaukee from points south, serving the double-track main line of the railroad that brought passengers and freight into Milwaukee. The Milwaukee River swing bridge was once an engineering marvel, a vital link on the once heavily-traveled rail route. Both of these structures should be transformed to highlight the historical importance of the Chicago and Northwestern railroad in Milwaukee. Possible ideas include a C&NW museum in the coach house, showcasing pictures of the once-famous railroad company. The vacant land to the north of the coach house still contains abandoned tracks – a perfect location for a permanent installation of a C&NW locomotive, caboose, or other railcars. The swing bridge could serve as an extension of the Oak Leaf bike trail, or provide a place for short-term railroad exhibits much like the coach house could. There are endless possibilities for these two structures, but I believe they should be rehabbed to their former glory.

In closing, the plan I’ve shown is an intensive endeavor to create a diverse neighborhood in the lower downtown / Third Ward area of Milwaukee. This area should aim to be a mixed-use development that is an extension of the already thriving northern part of the Third Ward. The redevelopment should include more than just the reconstruction of the Lakefront Interchange, and encompass more than those concentrated city blocks around it. There needs to be a seamless connection between downtown and the Third Ward, which in essence could tie the whole region together. The lakefront in its current state is a patchwork of development – a little here, a little there – and this plan offers the chance to knit the patchwork together into one seamless connection. Let’s challenge Milwaukee to think about the larger picture.