Riverfront Vision 2005

Transcription

1 The riverfront area from Esplanade Avenue to the Inner Harbor Navigation (Industrial) Canal is a part of the historic Faubourg Marigny and Bywater neighborhoods. 1 Despite greatly diminished industrial/maritime activity, there have been few recent conversions from riverfront industrial to non-industrial uses. The New Orleans Center for the Creative Arts (a public high school for the arts) moved to its location at Chartres and Press Streets in 1999 and has been the only major conversion of industrial uses since the F. Edward Hebert Naval Support Activity facility was established in 1966 on Poland Avenue. However, the Marigny/Bywater riverfront is now at the focus of many riverfront development options. Proposals for a cruise ship terminal, riverfront amphitheater, and Riverfront Streetcar extension are all in the development stage. As opportunities for redevelopment have become apparent in recent years, there have been a number of planning efforts covering this area. The 1992 Riverfront Strategic Policy Plan supports active industrial uses in the area, but recognizes their decline and recommends the replacement of inactive wharves with open space and mixed-use facilities. The Plan recommends changing the HMLI-Historic Marigny/Treme Light Industrial District and the LI-Light Industrial zoned areas to some type of Mixed Use District to attract a mixture of residential, commercial, and industrial uses that reflects the historic character of the area. It also proposes re-zoning portions of the river s edge to a P-Park District and requiring an RPC Residential Planned Community or similar site plan review for new construction landward of the wharves. The 1992 report by Frederic Harris, Inc., the 1999 UNO College of Urban and Public Affairs Plan, the 1999 Land Use Plan, the 2002 Parks, Recreation & Open Space Plan, the 2003 Smart Growth Bywater Charrette, the 2004 Riverfront Charrette, and the 2004 City Planning Commission riverfront public meetings all share similar recommendations. The common and/or relevant themes of all these planning recommendations for the Marigny/Bywater area include: Create park space along the riverfront and Press Street. Encourage mixed use at key development sites including residential, commercial, and institutional uses with appropriate zoning to support such development. Establish continuous public access along the riverfront and public access through/over the floodwall at key points. Pursue an entertainment venue such as an amphitheater or pavilion at a key node on the riverfront. Establish adequate plan review and public input for new development. Create additional linear transportation options possibly by extending the Riverfront Streetcar, constructing a bike/pedestrian pathway, and/or establishing a river ferry (water taxi). 1 The boundary between Marigny and Bywater is Press Street. Land Use, Zoning, and Access The Marigny-Bywater riverfront contains warehouses, active and underutilized wharves, unused wharf platforms, and a natural batture area. The United States Department of Transportation Maritime Administration maintains two large ready reserve vessels at the Poland Avenue Wharf. Uses landside of the floodwall include a mixture of single and two family residential uses, small businesses, and several light industrial warehouses. Institutional uses along the riverfront include the New Orleans Center for the Creative Arts at Press Street and the F. Edward Hebert Naval Support Activity facility at Poland Avenue. The Marigny section of the riverfront is zoned HMLI-Historic Marigny/Tremé Light Industrial District which requires all new uses to go through the conditional use process. The Bywater riverfront is within an LI-Light Industrial District where most commercial and many industrial uses are permitted without review. The building height limit in the HMLI District is fifty (50) feet, while the height limit in the LI District is seventy-five (75) feet, or fifty (50) feet where the lot is adjacent to a residentially zoned district. The Marigny and Bywater residential neighborhoods on the landside of Decatur/Chartres Streets contain single, double, and multi-family uses within three Historic Marigny Residential Districts in the Marigny and an RD-3 Two Family Residential District in Bywater. Commercial zoning is generally limited to Frenchmen Street, Elysian Fields, St. Claude, and Franklin Avenues, and pockets of corner-store commercial uses. The Bywater neighborhood is flanked by LI-Light Industrial zoning along the Norfolk Southern Railway and Industrial Canal. There is also B1-A Neighborhood Business and LI-Light Industrial zoning in pockets throughout the neighborhood. Currently, the public has no formal access to the riverfront in this segment. Although pedestrians and joggers occasionally enter through railroad openings in the floodwall and move along the wharves. The New Orleans Public Belt operates rail tracks along the riverfront and there are three floodwall openings for trains as they interact with the Press Street rail corridor and the diagonal connection to the Industrial Canal. There is also a Port access roadway on the riverside of the floodwall between Press Street and Poland Avenue. Continuous vehicular access is currently possible from Esplanade Avenue along this roadway by driving on the wharf platform, but the width is not sufficient for large trucks. This unimproved roadway may be accessed through the opening near Alvar Street in Bywater, but there are no floodwall openings in Marigny. Access downriver into the Lower Ninth Ward/Holy Cross is limited to the drawbridge over the Industrial Canal, which is not pedestrian or bicycle friendly. Major proposed developments in the area include a cruise ship terminal at the Poland Avenue Wharf (including moving the Maritime Administration ships upriver to the Pauline Street Wharf), the potential redevelopment of the Naval Support Activity base, and a proposed amphitheater at the Louisa Street Wharf. June

2 Floodwall opening at Esplanade Avenue with French Market Riverfront Streetcar stop Joggers using the wharf platform truck access way at the Esplanade Wharf Issues and Opportunities Need for riverfront access and open/green space Cruise ship terminal planning and development at Poland Avenue Wharf (and associated truck traffic) Potential redevelopment of Naval Support Activity base Proposed Riverfront Streetcar extension and Desire Streetcar line Current industrial zoning on landside of floodwall Concern of tourism impacts on the neighborhood Building heights and density along the riverfront Riverfront Access Spectacular views of the Central Business District, with the bend of the river in the foreground, are one reason among many that public access and increased open space on the riverfront has been a goal of past planning efforts for the Marigny and Bywater. An agreement currently under negotiation between the Port and the City may help to catalyze the redevelopment of the wharf areas in this segment from Esplanade Avenue to Pauline Street. Under the agreement, some of the vacant and underutilized wharves may be available for redevelopment for non-maritime uses. As mentioned, however, the Esplanade and Mandeville wharves are currently needed by the Port and redevelopment of these properties for non-maritime uses will require relocation of the Port cargo uses elsewhere. The community has expressed strong desire for improved riverfront access and its overall continuity, as demonstrated in surveys and public meeting. This includes support for bicycle and pedestrian paths as well as a desire for improved safe public crossings of rail tracks. Primary access to the Marigny riverfront should occur at the identified major riverfront nodes: the terminus of Esplanade and Elysian Fields Avenues and at the end of Press Street. An existing floodwall opening for vehicular/pedestrian access exists at the end of Esplanade Avenue, although it needs improvements to ensure pedestrian and bicycle safety. The Press Street flood gate is strictly for railroad use (see Map to left); a new opening, or an above-grade crossing, should be created to allow riverfront access to other users. Ideally, additional pedestrian and bicycle access should be created between the Press Street and Elysian Fields Avenue nodes in order to give Marigny residents convenient riverfront access similar to the Vieux Carré. The terminus of Franklin Avenue offers a logical location for a minor nodal access point, given the mixed commercial and residential development along the street and its equal distance between the two major nodes. The ends of Clouet, Piety, Congress, and Alvar Streets offer other good opportunities for minor nodal points in the Bywater neighborhood, based on the availability of existing floodwall gates and their spacing between one another. The Plan also identifies Poland Avenue as a major access corridor. As an arterial street, its prominence in the neighborhood and the potential for redevelopment of the existing Naval Support Annex facility and the Poland Avenue Wharf, warrant improvements to the street to help make it a gateway to the river. Although no floodwall openings exist at this location, one should be created to allow neighborhood access to the river and the proposed Point Park, where the Industrial Canal meets the River. In order to attain the goal of a continuous riverfront pedestrian path, the Riverfront Promenade, each development along the riverfront should be designed to ensure continuity along the riverfront, extending upriver to the Moonwalk and downriver to the Lower Ninth Ward. Potential obstacles to this include the Mandeville and Esplanade wharves, the planned cruise ship and adjacent Maritime Administration (MARAD) ship terminals at the Pauline and Poland Avenue Wharves, and the St. Claude Avenue bridge over the Industrial Canal. While not formally permitted, pedestrians and joggers currently utilize the rear apron of the wharf platform from Esplanade Avenue downriver. If and when future non-maritime development occurs at these wharves, the riverfront promenade should continue from the Moonwalk. Until this point, the Port should consider providing for pedestrian and bicycle access at these wharves, while maintaining secure and functional dockside and cargo uses. Alternatively, improvements could be made on the landside of the floodwall along N. Peters Street to create a new pedestrian/bicycle path. Access around the proposed Poland Avenue Cruise Ship Terminal and MARAD terminals could easily occur along Chartres Street, provided that a means of returning to the waters edge at Point Park is created. As recommended in the 2004 Transportation Plan, the St. Claude Avenue Bridge should be improved to allow for safe pedestrian and bicycle access. Riverfront Parks and Green Space The riverfront between Piety and Pauline Streets is a levee and batture area, no longer containing a wharf platform. Public input and the Riverfront Charrette recommendations support opening this area as a park, with some management of the vegetation. In discussions with the Port and the Coast Guard, it is not clear whether a new wharf could be constructed in this area. Because no wharf platform currently exists, development of the levee and batture may not be feasible for anything but parks and open space. Current Light Industrial zoning does not permit park uses in this area. Therefore, the zoning should be changed to P-Park and Recreation, or an appropriate overlay district could be applied. This new designation should include the adjacent open space areas between the floodwall and Chartres Street, where a sculpture park has been proposed. Along with open space along the riverfront, the community would like to see additional parks within the neighborhood. Two areas consistently mentioned are the Press Street rail corridor and the aforementioned Point Park. These recommendations are also supported by the 2002 Parks, Recreation & Open Space Plan. This open space along the rail corridor has been consistently recommended by the City and citizens for park purposes, which June

3 Naval Support Activity Base and MARAD ships Photo 2004 Neil Alexander / All Rights Reserved Residential uses alongside light industrial uses in Marigny and Bywater Photo 2004 Neil Alexander / All Rights Reserved Issues and Opportunities, continued would greatly benefit the surrounding neighborhoods. Recent proposals include a memorial dedicated to the Plessey vs. Ferguson civil rights case, as well as a farmers market within the Press Street corridor. These uses should be considered as part of any redevelopment of the area. The proposed Point Park should be created where the Industrial Canal meets the river, extending along the canal to St. Claude Avenue, as part of any redevelopment of the Naval facility. The St. Claude bridge will need to be augmented to provide safe pedestrian and bicycle access. This should be accomplished if the bridge is rebuilt under the Industrial Canal Lock Replacement program. This will also help reduce the isolation of the Lower Ninth Ward. Other Riverfront Uses The rest of the Marigny/Bywater wharf areas have been recommended to be developed with mixed uses including park space, an amphitheater, maritime museum, and other attractions. Considerable investment into the wharf platforms and sheds will be required. The zoning would also have to be modified, or an appropriate zoning overlay could be applied, to permit parks and open space. The Esplanade and Mandeville Wharves are zoned HMLI-Historic Marigny/Tremé Light Industrial which allows any use as conditional, including parks. Commercial uses should be included in order to help offset construction and maintenance costs and park development. The proposed amphitheater at the Piety/Louisa Wharves would be permitted under the current zoning with no required review or public input process. The public has supported the concept of an amphitheater at this location, but has concerns over potential traffic, parking, noise, and height issues. Because of the potential for intense riverfront development projects and the desire to ensure riverfront access and continuity, intense uses on the riverside of the floodwall should be subject to review by the City Planning Commission and the public. Using the conditional use, or a similar process, specific proposals should be evaluated to determine their impact on the community. Intensive projects should also be required to submit a Traffic Impact Analysis. Less intensive uses should be reviewed through the design review process to ensure access requirements and other design guidelines are met. A Coast Guard river traffic control tower occupies the wharf area at the end of Esplanade Avenue. Even if the existing maritime uses are relocated and the wharves opened for non-maritime uses, this tower will need to remain. The Riverfront Charrette proposed, and the public supports, a tower that could also provide education about river navigation issues. A new tower, with public observation decks, could be a focal point for the terminus of Esplanade and Elysian Fields Avenues. Coast Guard representatives have been amenable to such a project, provided that security issues would be addressed. Naval Support Activity Facility The two projects that have the greatest potential to catalyze other riverfront development are the planned cruise ship terminal at the Poland Avenue Wharf and the potential redevelopment of the Naval Support Activity facility. The Naval Support Activity base operates together with a larger base on the West Bank. There is a possibility that the facilities may be downsized under the military s Base Realignment and Closure Act. The City and military officials are pursuing a plan that would consolidate the two bases, moving the East Bank operations to the West Bank. If this happens, the City would continue to benefit from the military presence and the Poland Avenue facilities would be available for redevelopment. Potential uses for the site could include a hotel, condominiums, studios, and a school. Neighborhood residents, while welcoming the potential for opening the Naval Support Activity facility for more public uses, are reluctant to support any high intensity uses such as big box retail or shopping malls. Current LI-Light Industrial zoning requires residential uses to be approved through the conditional use process, but permits most business and commercial uses by right. Because of the size of the development (nearly 22 acres), the impacts of a redevelopment of the facility could be great. Any significant increase in building height would be seen as detrimental to the surrounding neighborhood. Access to the open space along the Industrial Canal should be provided and potential traffic and parking impacts should be studied. In the light of these issues, any proposed development at the site should be reviewed by the City Planning Commission, include public input opportunities, and require a traffic impact analysis. The U.S. Government acquired part of the Poland Avenue right of way for a driveway and parking area for the base in This reduced the street width between Dauphine and the river by 35 feet. Any potential development of the Naval facility should consider re-establishment of this right-of-way in order to improve the capacity of the street, particularly in respect to the proposed cruise ship terminal at the street s terminus. To help further a link with the neighborhood, an observation deck overlooking the cruise ship terminal activities is proposed. Poland Avenue Cruise Ship Terminal The Port has begun a public planning process for the terminal that includes addressing the community s concerns. Truck traffic and routing is a particularly important issue for the adjacent historic neighborhoods with narrow streets. The proposed routing of the traffic from Elysian Fields Avenue, a major six-lane street, to an improved access road on the river side of the floodwall would keep the traffic off the residential streets. Trucks, buses, and taxis servicing the terminal should be directed to this roadway in order to limit impact of cruise related traffic on the neighborhood. The overall design of this new access road is of critical importance for the future development of the Marigny and Bywater riverfronts. The road design will have to effectively address pedestrian and bicycle crossings and access. The road should be appropriately landscaped, fenced, and screened so as not to undermine the June

4 Issues and Opportunities, continued quality of future development along this segment of the riverfront. Furthermore, the Port and the New Orleans Public Belt must work on coordinating railroad and vehicular traffic and crossings. looking for an unblocked street on which to proceed. The traffic system should be monitored for needed directional changes, traffic calming, signage, or other modifications. Poland Avenue Wharf with MARAD ships Another possibility to access the proposed cruise ship terminal is via Poland Avenue. As mentioned earlier, restoring the original right-of-way of Poland Avenue from Dauphine to Chartres Streets would expand the width by 35 feet. The turning radius at Chartres Street would be improved and more on-street parking could be provided. However, Poland Avenue s capacity would still be limited to one lane in each direction. Any increase in traffic should be monitored to maintain the quality of life for residents along and near Poland Avenue. Other concerns include noise and pollution, although the Port has given assurances that terminal operations do not pose these problems. The Port of New Orleans does not obtain permits from the City for its maritime operations, including cruise ship terminals. Because of the public nature of a cruise ship terminal, and the adjacency of the Poland Avenue facility to the neighborhood, the project should be reviewed by city agencies. At a minimum, an extensive traffic impact study for the area should be conducted with review and approval by the City. In addition to addressing trucks servicing the terminal, a comprehensive plan for transporting the large numbers of passengers to and from the terminal should be created. Riverfront Transit An extension of the Riverfront Streetcar downriver has been suggested to service the neighborhoods, cruise ship terminal, and other potential developments. As is the case with the Lower Garden District, an extension would bolster development along the route. Some have noted that this project may compete or be combined with the proposed Desire Streetcar line on St. Claude Avenue. Additionally, routes connecting the Riverfront Streetcar to the proposed Desire line along Elysian Fields or Poland Avenues has also been suggested. A Purpose and Need Assessment Study should be conducted in order to determine priorities and needs. Route alignments should be designed to give greatest access to the community, preferably on the landside of the floodwall. Also suggested was a water taxi or ferry system transporting people along the river, similar to the John James Audubon. This mode would offer an exciting alternative transit option, although navigational and safety concerns will need to be addressed. Additional parking capacity at the French Market parking lots on Elysian Fields Avenue could help to alleviate any future parking pressure in the area. Any facility at this location should be a mixed use development possibly containing office, residential, commercial parking, and ground floor retail/service uses and be designed so to fit harmoniously with the adjacent historic neighborhood. A more detailed design plan is needed for the foot of Elysian Fields Avenue to create a connection with the riverfront, enhance aesthetics, and suggest ways to improve traffic safety. A traffic circle that addresses the traffic flow from N. Peters Street, Esplanade Avenue, Elysian Fields Avenue, and potential new developments may be considered. Existing Light Industrial Zoning Public riverfront workshops conducted in Spring 2004 and previous planning efforts indicate support for a variety of uses in the Marigny and Bywater riverfront areas. These include green space, working wharves, trade schools, multi-family residential, restaurants, retail, open-air markets, studios, museums, performance venues, and an amphitheater. The community emphasizes that new uses should be compatible with the existing residential neighborhoods and should not generate significant additional truck traffic on the minor streets. Current zoning along both sides of the floodwall in the Bywater and the Press Street corridor is LI-Light Industrial. The district is a relatively thin strip, often only one block wide, adjacent to the residential neighborhood. This district does not permit parks and open space but allows industrial uses that are too intense for their proximity to the neighborhood. The zoning in this area should be modified to accommodate the publicly desired range of residential, commercial, and low intensity light industrial uses. The Historic Marigny Light Industrial zoning within the Marigny neighborhood authorizes no uses as permitted and a wide variety of uses as conditional. In order to encourage compatible development, the zoning should be modified to authorize parks, single and twofamily dwellings, and small cultural or commercial uses as permitted uses. A range of industrial uses such as truck stops, scrap metal and tire collection, open storage of building materials, and animal husbandry should be considered for prohibition. Rail crossings along Press Street Industrial uses along N. Peters Street with NOCCA beyond. Traffic Flow, Rail Crossings, and Parking As warehouses are gradually replaced with residential and commercial uses, truck traffic may diminish while automobile traffic may increase. Although large developments will be required to submit a traffic impact analysis and mitigate certain effects, the cumulative effects of all development may alter the traffic flow. Traffic flow is also impacted by the rail corridor at Press Street, where trains often block the streets parallel to the River and cause sudden and significant increases of traffic on side streets by drivers June

5 Esplanade and Elysian Fields Avenue Major Node with Governor Nichols, Esplanade, and Mandeville Wharves Photo 2004 Neil Alexander / All Rights Reserved Entergy substation at Elysian Fields Avenue Node Issues and Opportunities, continued Nodal Development As discussed earlier, gateways to the riverfront occur at nodal points that are at the ends of major and minor streets leading to the river. At these points, existing access obstacles such as the railroad tracks and the floodwall will need to be overcome. The three major nodes within this segment of the riverfront are at the ends of Esplanade/Elysian Fields Avenue, Press Street, and Poland Avenue. The intensity of development of these nodal points has been debated throughout much of the planning process. The Marigny neighborhood has expressed strong opposition to increasing the allowable height along its riverfront. Residents expressed support for low-rise, low-density buildings that will be compatible with the existing neighborhood scale. Residents view increased high-rise development as detrimental to the historic character of the neighborhood. Residents from this area also expressed concerns of future development walling off view corridors to the river. Opposing arguments contend that zoning along the river should permit for greater height and density. Throughout the planning process, the development community has lobbied for building heights of 120 and higher along the riverfront to allow for views of the river above the floodwall or levee. Developers claim that the building process has too many restrictions and instead of support, neighborhood groups often criticize developers for wanting to invest in the community. When planned properly, developers believe that riverfront development can be compatible with adjacent historic neighborhoods and at the same time capitalize on riverfront views by allowing varying heights. In an effort to better manage where new development should occur, the City Planning Commission staff has carefully considered both sides of this issue. To address potential negative impacts and promote smart growth of the riverfront, nodal area characteristics were closely examined. The NOCCA development is an example of a successful project where adaptive reuse of historic warehouse buildings alongside new modern buildings resulted in compatibility. The new building, which runs parallel to the floodwall on the riverside of the campus and further from the residential neighborhood, has an average height of approximately 63 feet and a maximum height of 78 feet. The community welcomed the opportunity to have superior architectural design combined with this unique use, an arts high school of exceptional reputation, as a complement to the neighborhood. With this as a model, some increased height along major access corridors should be considered to encourage exceptional and creative design, new residential uses, public open space, improved access and pedestrian amenities. This will also allow for increased density away from the neighborhood core. Development proposals that seek to rise above the allowable height should vary the massing of the building, combining low-rise portions on the residential side of the site to offset higher elements on the riverside. Existing historic buildings should remain, but could be augmented in a way to allow for taller development while maintaining their architectural integrity. Design standards, including floor-to-area and open space ratios, should be developed to ensure such developments meet goals for increasing access, creating desired land uses, and enhancing the pedestrian environment and unique character of the neighborhood. These standards may include appropriate landscaping, paving, signage, and other streetscape amenities and could be applied through a planned development district review process or conditional use where required. By directing more intensive development to a few select locations in this way, a balance between market demand for river views and community desires for low-rise structures and quality design can be achieved. In all areas of the riverfront, and at nodal points in particular, superblocks or developments spanning more than one city square should not be allowed in order to maintain the historic street grid, allow maximum public access, and maintain view corridors. Analysis of individual major nodes began with a focus on two city squares in each direction (upriver, downriver, and landside) of the node. Planning recommendations for development of the nodes vary based on existing conditions (including available parcels, land use, and parcel size), economic development trends, and the relationship of existing neighborhoods to the corridor. The results of this detailed analysis and planning recommendations are as follows: Esplanade & Elysian Fields Avenue Node The Esplanade and Elysian Fields Avenue node is a meeting point of two historic districts and neighborhoods, the Vieux Carré and Faubourg Marigny. The node encompasses the Gov. Nichols, Esplanade and Mandeville Wharves, the square with the U.S. Mint building in the Vieux Carré, and five squares in the Faubourg Marigny (see map to the left). The Marigny part of the node between Esplanade and Elysian Fields Avenues contains a 60-foot high hotel building, two surface parking lots and several smaller historic mixed-use structures. Downriver of Elysian Fields Avenue, there is a vacant funeral home, Entergy power station, and an active warehouse facility. While the U.S. Mint and small historic buildings along Esplanade Avenue/Frenchmen Street are off limits for redevelopment purposes, other parcels that have redevelopment potential have been closely examined as to their potential for increased density and height. These include the vacant funeral home, surface parking lots and underutilized wharves. In addition, the potential relocation of the power station and redevelopment of this site will go a long way toward the improvement of this prime urban space. The maximum building height at the Esplanade/Elysian Fields Avenue node in the Faubourg Marigny is 50 feet, under either the HMLI-Historic Marigny Light Industrial or the HMC-2 Historic Marigny Commercial Districts. Elysian Fields Avenue, with its 160-foot wide right of way, could withstand certain taller developments, perhaps as high as 75 feet, if the proposal s design June

6 respects the surrounding low rise historic structures. Increasing the allowable height for these sites improves the ability of developers to offer river views beyond the floodwall or the levee. Currently, with a 50 foot height limit on the landside of the floodwall, only a few units could have a river view above the floodwall or the structures on the riverside which may rise to 35 feet. Unlike NOCCA, the 100-foot tall Christopher Inn on Royal Street is an example where improper massing and inappropriate design resulted in a development that is not compatible with the neighborhood character or scale. Setting development standards such as floor-to-area and open space ratios should ensure varied setbacks and avoid box-like development. Press Street Node with NOCCA parking lot and National Rice Mill beyond Press Street Wharf with NOCCA on left and National Rice Mill beyond Press Street Node The Press Street node marks the union of the Marigny and the Bywater historic districts and neighborhoods. The three squares that make up the Marigny side of the node (SQs 17, 19, and 144) are zoned HMLI-Historic Marigny Light Industrial and currently have a maximum permitted height of 50 feet. These parcels include both historic and modern warehouses, and NOCCA. Portions of square 144, within the node, are zoned HMR-3 Historic Marigny Residential and should not be considered for more intensive development due to their low-rise residential nature and width of surrounding streets. The Bywater side of the node also includes historic and modern warehouses, as well as the NOCCA parking lot (SQ 20) and a large brickyard (SQ 22). Current LI-Light Industrial zoning permits development up to 75 feet throughout the district, which extends along Chartres Street to Poland Avenue. Development adjacent to residential districts, which occur along portions of the lakeside of Chartres Street, must be no greater than 50 feet in height at the property line. The historic Rice Mill warehouse (also on SQ 20) is vacant and offers an excellent opportunity for redevelopment. The building currently rises to 56 feet, which may allow only a few units to have river views if development on the riverside of the floodwall is permitted to rise to 35 feet as proposed. Allowing greater height up to 75 feet for additions to this building will encourage its adaptive reuse, provided the historic qualities of the building are respected and maintained. Changes would also require approval by the HDLC. The adjacent brickyard immediately downriver across from Chartres Street is an ideal location for development that could enhance the node and contribute to the evolving mixed-use character of the neighborhood. The NOCCA parking lot provides necessary parking for the facility. However, this site represents the primary access opportunity to reach future riverfront development. Provided that NOCCA s parking needs could be met at another nearby location, this site should be developed primarily for public open space that fosters access to the river. Rail cars on the riverside of NOCCA and the floodwall, with views to the city beyond Warehouses along Press Street near Chartres Street. June

7 Poland Avenue Node As with the Press Street node, the Poland Avenue node is zoned LI-Light Industrial. The Naval facility at the end of Poland Avenue, which encompasses nearly four city squares and rises to 68 feet, offers an ideal opportunity for mixed-use development if it is vacated by the Navy. However, the square bounded by Poland Avenue, and Lesseps, Chartres and Royal Streets (Square 129) contains approximately 20 smaller structures that are primarily residential. It is not likely that redevelopment greater than 50 feet can be achieved without dramatically altering the historic character and use of these residential buildings. Therefore, no additional height should be permitted for these properties. Minor Nodes: Franklin Avenue, Clouet, Piety, Congress and Alvar Streets Minor nodes offer the opportunity for additional pedestrian and bicycle riverfront access from the adjacent neighborhood. Minor nodal points should be developed with less intensity than major nodes because of their overall small scale residential character and smaller street width. Design standards need to be established to ensure a pleasant and safe pedestrian environment with adequate lighting, quality paving, signage, and landscaping. As mentioned, minor nodes for this segment are designated at Franklin Avenue and Clouet, Piety, Congress, and Alvar Streets. East Bank Naval Support Activity base with Industrial Canal beyond Photo 2004 Neil Alexander / All Rights Reserved Riverside of the floodwall On the riverside of the floodwall, the heights of existing wharf sheds are typically between 25 and 35 feet from the wharf platform. In order to allow for river views from nodal developments on the landside of the floodwall, structures should not exceed 35 feet on the riverside of the floodwall. Certain exceptions such as the relatively transparent Coast Guard signal tower or other observation towers may be considered. Development and Neighborhood Character Previous planning efforts and the riverfront public workshops indicate a strong desire to maintain local character along the riverfront and throughout the adjacent neighborhoods. The community consistently mentioned art as a unifying theme and recommended strengthening the visual presence of the many artists that live in the neighborhoods. Preservation and rehabilitation of the architecturally and historically significant structures was recommended to maintain the character of the area. The community also recommends emphasizing the history of the area with historical markers and memorial parks. It was also important to maintain a connection with the maritime uses including some way for the public to view maritime activity. The potential impact of more tourists in the neighborhoods has been met with a mixed reaction, but it could have a positive impact on the commercial vitality of the area. Poland Avenue with floodwall beyond East Bank Naval Support Activity base June

8 National Rice Mill building at the Press Street Node Rail Corridor at Esplanade/Elysian Fields Avenue Node Recommendations Land Use and Zoning: 1. Rezone the natural batture riverfront from Piety to Pauline Streets to P-Park and Recreation, or establish an appropriate overlay district, to permit a park at that location. Combine this with a small sculpture park on the landside of the floodwall in the vicinity. 2. Modify the zoning, or establish an overlay district, for the Esplanade, Mandeville, Press, Louisa, and Piety Wharves to permit parks. Allow some commercial uses such as an amphitheater, but require major development proposals to have public and City Planning review. 3. Accommodate a new cruise ship terminal at the Poland Avenue Wharf. Include public access improvements in the project. 4. Support efforts to retain the City s military presence by consolidation of the Naval Support Activity facilities and redevelopment of the Poland Avenue site. Closely evaluate any redevelopment of the site through the conditional use or planned development district processes. 5. Re-evaluate the Light Industrial and Historic Marigny Light Industrial zoning within the proposed Riverfront Overlay District. Prohibit specific industrial and commercial uses that are incompatible with the adjacent residential areas. In the HMLI District, consider authorizing parks, single and two family dwellings, and certain cultural and commercial uses as permitted. 6. Maintain and improve green space along Press Street and the Industrial Canal. Access and Transportation 1. Allow public access to the riverfront open space through existing openings in the floodwall such as those at Clouet, Congress / Gallier and Piety Streets. Create access points at Esplanade Avenue and Press Streets as part of riverfront nodal developments. Create new floodwall openings in Marigny, potentially at Franklin Avenue. 2. Designate and clearly mark at-grade pedestrian crossings of the New Orleans Public Belt railroad tracks and access roadway. 3. Establish a continuous, ADA compliant pedestrian and bicycle path along the riverfront with physical separation between them for safety purposes. Require developments to provide this promenade and link with adjacent developments. Provide a clearly marked alternate route along Chartres Street around the proposed cruise ship and Maritime Administration terminals at the Pauline and Poland Avenue Wharves, returning to Point Park. 4. Create safe pedestrian and bicycle accommodations on the St. Claude Avenue bridge. 5. Require and closely review a traffic impact analysis for the proposed cruise ship terminal and any other large development proposals. The analysis should address transporting passengers to and from the terminal in addition to service vehicles. 6. Conduct a Purpose and Need Assessment Study for an extension of the Riverfront Streetcar (perhaps with a loop to St. Claude Avenue along Poland or Elysian Fields Avenues). 7. Explore a water taxi or ferry system transporting people upriver and back. 8. Monitor traffic flow for the cumulative effects of riverfront redevelopment. Implement modifications to the street system as necessary. 9. Consider mixed use facilities with commercial parking and ground floor commercial at the French Market parking lots on Elysian Fields Avenue. 10.Consider restoring the full width of Poland Avenue from Dauphine Street to the river as part of any redevelopment of the Naval Support Activity facility. Design: 1. Enhance the Coast Guard s river traffic control tower to become a visual landmark and public amenity with educational information and a viewing platform. 2. Create focal points and install landscaping around identified activity nodes, pedestrian entrances to the riverfront, and major corridors such as Press Street and Esplanade, Elysian Fields and Poland Avenues. Minor corridors include Franklin Avenue, and Clouet, Piety and Alvar Streets. 3. Create development standards to ensure exceptional design quality along the riverfront. 4. At selected major nodal points consider greater heights and density. Review proposals at these locations using special design standards and review procedures. 5. Develop an urban design plan for the foot of Elysian Fields Avenue to create a connection with the riverfront, enhance aesthetics, and improve traffic safety. Coordinate this plan with revitalization plans for the French Market. 6. Install lighting and strategically place call boxes along the riverfront promenade. Apply urban design standards which promote and increase public safety. 7. Work cooperatively with the Port of New Orleans to ensure local building code and design review of cruise ship terminals. Maintain height and massing restrictions that are compatible with existing development. Create height restrictions on the areas riverside of the floodwall that are consistent with public input. 8. Preserve and rehabilitate architecturally and historically significant structures along the riverfront. 9. Prohibit construction spanning the distance of more than one city square. 10.Emphasize the presence of the area s arts community with locally-produced public art. June

9 The riverfront area from the Inner Harbor Navigation (Industrial) Canal to the St. Bernard Parish line is part of the historic Holy Cross neighborhood. The construction of the Industrial Canal in the 1920s helped to isolate the neighborhood from the rest of the city. This isolation, along with the diminished industrial job base and damage from Hurricane Betsy in 1965 caused significant neighborhood disinvestment in the latter half of the 20th Century. The number of vacant industrial sites in proximity to the riverfront present opportunities for redevelopment that could help stabilize the neighborhood. The 1992 Riverfront Strategic Policy Plan and the 2004 Riverfront Charrette both recommend maintaining the industrial component of the neighborhood, although the 1992 plan did recommend changing the LI- Light Industrial areas on the upriver and canal edges of the area to P-Park and Recreation 1. However, the 2004 Charrette recognizes that some industrial areas could be redeveloped and that there should be a pedestrian connection along the riverfront linking the open levee areas to Jackson Barracks. The 1999 Land Use Plan calls for mixed use development within the industrial area with increased green space and linear connectivity along the riverfront. The 2002 Parks, Recreation & Open Space Plan echoes the Land Use Plan and also recommends an expanded Delery Playground. The 2004 Transportation Plan addressed the isolation of Holy Cross by recommending a pedestrian/bicycle path across a rehabilitated St. Claude Avenue Bridge. The common and/or relevant themes of all these planning recommendations for the Holy Cross area include: Encourage mixed use redevelopment or improvement of existing industrial parcels. Increase riverfront green space. Establish riverfront linear connectivity. Improve pedestrian and bicycle access across the St. Claude Avenue Bridge. Industrial Canal to Parish Line (Holy Cross/Lower Ninth Ward) Land Use, Zoning, and Access The Holy Cross neighborhood is predominantly single and two family residential with a large riverfront industrial area stretching from Flood Street to Delery Street. The downriver end of Holy Cross is flanked by the Jackson Barracks military installation. The upriver border is the Industrial Canal with the Holy Cross High School occupying a large portion of this end of the neighborhood. From the St. Claude Avenue Bridge to Flood Street, a levee along the Industrial Canal and Mississippi River serves as a public green space with an impressive view of the river and the Central Business District. From Flood Street to Jackson Barracks, the industrial area that reaches two to four block lengths inland from the water s edge is primarily underutilized, and many parcels are vacant. The zoning of the Holy Cross residential area is RD-3 Two Family Residential. This limits building heights to forty (40) feet. The industrial area is divided into two Industrial Districts: Heavy Industrial from the Parish Line to Charbonnet Street and Light Industrial from Charbonnet Street along the riverfront and extending up the Industrial Canal. The Light Industrial zoning limits building heights to seventy-five (75) feet while the Heavy Industrial District has no height limit. In both of these districts, if the lot adjoins a residential district then the height limit is instead fifty (50) feet. The majority of the area from St. Claude Avenue to the levee is in the Holy Cross Historic District, which reviews construction and demolition proposals to ensure that the historic character of the neighborhood is maintained. The water s edge is continuously accessible from the Industrial Canal to Flood Street and there is a walking path and some pedestrian amenities such as benches along the levee. From Flood Street to Jackson Barracks, public access is permitted on the landside of the Port-owned riverfront industrial facilities. Alabo Wharf and Holy Cross / Lower Ninth Ward Riverfront Photo 2004 Neil Alexander / All Rights Reserved 1 This zoning change was never enacted. June

10 Holy Cross / Lower Ninth Ward levee path Pedestrians mix with vehicle access roads and railroad tracks behind Alabo Wharf Issues and Opportunities Expanding open/green space along the riverfront and providing continuous access along the riverfront Redevelopment of underutilized industrial sites Creating new residential and mixed use riverfront development Mitigation of impacts of the proposed Industrial Canal lock expansion Riverfront Access and Green Space The Holy Cross riverfront levee area spanning from the Industrial Canal to Flood Street is not only used as open/green space for walking and jogging, but is improved with some lighting and benches. Zoning for this area is LI-Light Industrial which does not permit park uses. In order to protect this valuable riverfront asset for the community, the zoning should be changed to P-Park and Recreation. River s edge access from Flood to Delery Streets is blocked by industrial uses. While the public is allowed to walk or bike on the landside of the wharf facilities on the top of the levee, the path is not marked, nor is it uniform. The path travels at times along rail tracks, vehicle access roads, a levee dirt path, and loading zones for wharf-side sheds. In the levee-top segments, a more natural, unpaved path should be maintained in accordance with the community s preference. The proposed new segment of the path on the landside of industrial facilities and the rail tracks should be paved. Further, access at the Delery end of the levee-top path is partially blocked by a fence that exists to restrict vehicle access but is a barrier to pedestrians as well. A gate should be constructed to allow pedestrians and bicyclists through to Delery Street while restricting vehicles. In addition, improved landscaping and lighting at this location will improve the safety and attractiveness of the riverfront and the Delery Playground. Other nodal points where improvements to the pedestrian environment should be made are those that already offer a link to the neighborhood at regular intervals and where access patterns have already been established. These include the terminus of Deslonde, Andry, and Alabo Streets. Caffin Avenue should also be prioritized as an access corridor, directing access around the existing industrial sites at the river s end of the street, or through these sites if they are redeveloped. Access is also restricted further downriver in front of Jackson Barracks due to security reasons, although the attractive portion of the levee at this point is separated from the facility by a brick wall and barbed wire. Access should be permitted on the riverside of Jackson Barracks by modifying the physical separation if necessary to address security concerns. This would connect the riverfront pedestrian path to St. Bernard Parish. Improvement or Redevelopment of Industrial Uses There has been little new development or redevelopment in the Holy Cross area. New construction consists of some infill housing and commercial development on St. Claude Avenue. The community supports maintaining a certain level of industrial uses within the district in order to retain jobs in the neighborhood. That not withstanding, the community would like to see the vacant riverfront and landside industrial sites redeveloped with a use or uses compatible with the neighborhood. Potential uses could include green space, residential, artist studios, trade schools, or light industrial uses with minimal truck traffic. Tourism-oriented uses are unlikely to be viable. High-rise buildings are viewed as generally inappropriate given the surrounding historic low rise neighborhood. Industrial Lock Expansion Project The Holy Cross community has consistently expressed concerns regarding the environmental and quality of life impacts of the lock expansion project. Holy Cross has limited access to the rest of the city because of the Industrial Canal and Jackson Barracks. Access problems would be worsened during the construction of the proposed Industrial Canal Lock Expansion project. Rehabilitating the Claiborne Avenue Bridge and the historically-significant St. Claude Avenue Bridge will also effect traffic in the area. Impact mitigation could include addressing expansion of the green space along the canal that connects with the riverfront green space. There are also opportunities through the mitigation process to develop the linear connection through the existing riverfront industrial area described above, and to expand the Delery Street Riverfront Playground. Also included in the proposed lock expansion project is the rehabilitation of the St. Claude Avenue Bridge which should include a safe pedestrian/bicycle lane, and sufficient width to accommodate the Desire Streetcar route into the Lower Ninth Ward. Industrial Canal to Parish Line (Holy Cross/Lower Ninth Ward) Recommendations Land Use and Zoning: 1. Change existing LI-Light Industrial zoning along riverfront and Industrial Canal from St. Claude Avenue to Flood Street to P- Park and Recreation in order to protect the levee open space uses. 2. Re-evaluate the zoning for heavy industrial sites between Flood Street and Jackson Barracks adjacent to the riverfront to facilitate green space and neighborhood-oriented mixed use or residential development. Create buffers between any remaining industrial and residential uses. 3. Expand green space along the riverfront from Flood Street to Delery Street on the landside of the wharf facilities and along Sister Street by the Industrial Canal. Transportation and Access: 1. Improve the continuous pedestrian/bicycle path along the riverfront from the current terminus from Flood Street to Delery Street on the landside of the floodwall by constructing a clearly marked, paved path with security separations from the wharf side facilities. 2. Permit pedestrian access on the riverside of Jackson Barracks to connect with St. Bernard Parish while addressing the security needs of the facility. 3. Create neighborhood pedestrian entrances to the riverfront at Deslonde, Andry, Alabo, and Delery Streets, and at Caffin Avenue. 4. Provide safe bicycle and pedestrian crossings as part of any rehabilitation to the St. Claude Avenue bridge, as well sufficient width to allow for a potential streetcar route. Preserve the historic character of the bridge. Design: 1. Maintain height restrictions compatible with existing development. 2. Install lighting and landscaping around pedestrian entrances to the riverfront such as those mentioned above. June