Planning District Seven (Continued)

Marigny, Bywater, St. Claude, St. Roch and Desire

The following section provides a synthesis of citizen comments and input gathered at a public workshop held at St. Paul's Lutheran Church on the evening of July 9, 1998 and a follow up meeting on October 8, 1998. Approximately 45 residents and business owners, in five small groups, participated in the workshop identifying pivotal development parcels and land use conflicts and creating a proposed land use map for the district. Approximately 25 residents and business partners participated in the second workshop, and many more filled out a worksheet asking for additions, modifications or other changes to the proposed plan. The resulting input was incorporated into the Future Land Use section and appropriate changes were made to the proposed land use map. The following section summarizes this input. 

Overall, citizens are satisfied with the land use mix in the district. They support neighborhood-based businesses and commercial services, group homes and rehabilitation centers, and existing industrial zones. The major concerns have to do with the conditions of current land use: blighted properties and vacant warehouses, litter, and the poor quality of existing grocery stores. In addition, such non-land use concerns as code enforcement, improved city services, and transportation issues need to be addressed. Participants would like to see zoning, noise, and loitering laws (especially associated with bars and liquor stores) enforced. Transportation access to industrial areas creates numerous conflicts with residential life. Efforts are needed to reduce noise from late-night trains and traffic from 18-wheel trucks through residential streets. They would also like to see improvements in landscaping along major corridors, between industrial and residential areas, and in neighborhoods throughout the district.

To enhance the quality of life in the district citizens recommend change for three major land use issues: 1) conversion of industrial use along the riverfront into open space and mixed use; 2) conversion of vacant industrial land along the Press Street Railroad corridor south of St. Claude Avenue to parkland/green space, and; 3) creation of more parks, recreation, and open space throughout the district. 

The community expressed concern that the redevelopment of the riverfront be consistent with and not negatively impact surrounding neighborhoods. They especially do not want a solid wall of development-such as the Riverwalk-blocking neighborhood access to the River. The following points were recommended to control development along the riverfront:

 
• Ensure pedestrian access to the River at every cross street. 
• Ensure the view of the River is preserved at every cross street. 
• Height limits consistent with the character of the existing neighborhood. 
• Population density limits consistent with the character of the existing neighborhood. 
• Ensure that the neighborhood is not adversely impacted by parking and traffic pressures of riverfront development. 
• Similar controls for development of blocks between Decatur and the River. 

Participants identified a variety of development possibilities in the district. As throughout the city, citizens would like to see the district's numerous abandoned buildings and vacant parcels revitalized. There was concern expressed over the Agriculture Street landfill and changes at the Desire Housing Development. Of greatest significance, vacant and underutilized properties along the river present an opportunity for redevelopment of the riverfront that could permanently change its land use patterns and have a major impact on the adjacent community. 

Regarding the riverfront, residents support mixed use development, but also desire some green space and access to the levee and river, and would like planned buildings to fit in with the scale of existing development (no higher than two stories). These are similar to the views expressed at the District Two workshop regarding riverfront redevelopment between Jackson Avenue and Race Street. It was suggested that vacant brick warehouses at the base of Marigny Street and Port Street be used for high density residential, such as a retirement home, and the derelict Press Street Wharf be torn down and the property given over for green space, residential, or commercial use. 

Participants supported plans to create more green space and reduce density at the Desire Housing Development, but emphasized the importance of having Desire residents involved in the process. Regarding the Agriculture Street Landfill, participants expressed concern that the Superfund site would be unsafe for residential use and suggested that it be used for light industrial or commercial activity or green space. 

Other vacant properties identified include scattered properties and the Press Street Railroad corridor. Participants supported renewing some of the light industrial uses along the Press Street corridor north of St. Claude Avenue, but would like to see parkland and green space south of St. Claude. Citizens had a variety of ideas for the abandoned Kohn Junior High School, including renovation for institutional use, such as a community center, group home, or fire station, or demolition and use as a park and recreation area. They would like to see the St. Roch Market renovated as either a grocery, an open-air produce market, or restaurant, with the neutral ground remaining as green space. Other pivotal parcels identified include the following:

 
• Various vacant lots in the area bounded by Rampart/Frenchman/Mandeville/Royal 
• Brownsfield sites (old gas stations) at Mazant and Galvez 
• Old state offices at Claiborne and Mandeville 
• Vacant lots at Prieur & Music 
• Area between St. Roch and Almonaster-create community garden 

• 2600 block of Desire needs to have blight removed 
• Vacant lot at Esplanade and St. Claude Ave. 

Blighted areas identified for revitalization include corridors north of St. Claude along Franklin Avenue, Marigny Street, and Port Street and the area bounded by Robertson, Louisa, Marais, and Montegut. Residents would also like to see St. Claude become a pedestrian-oriented shopping district similar in scale and character to Magazine Street. 

Summary Schematic District Map

The schematic map which appears on the facing page summarizes comments recorded on district maps as an exercise during the workshop. The summary schematic is an attempt to graphically represent the most frequent and consistent comments made by citizen participants. For ease of interpretation, various local landmarks, such as parks, housing developments, and large-scale developments, have been included. 

Section VI: Proposed Land Use for Planning District Seven

Planning District Seven contains many assets, both actual and potential. Neighborhood cohesiveness and diversity, "raffish charm," convenience to downtown and of neighborhood services, the balance between residential and commercial uses, and historic architecture are some of the positive features cited by residents. 

The neighborhoods of Marigny and Bywater, both local historic districts, have received a great deal of revitalization in recent decades. Marigny, known as New Orleans' first suburb, is characterized by architecture similar to that of the Vieux Carré. Its land use is governed by a set of zoning regulations developed specifically for the Marigny and Treme' historic districts, and most residents believe the regulations are well-suited to the area, if they are enforced. In Bywater and St. Claude, as well as in the area south of Florida Avenue and east of Louisa, jigsaw-embellished cottages create a townscape similar to the Irish Channel and share many of Marigny's features, such as convenient access and an appealing mix of uses. 

The Riverfront is the greatest potential asset for the community. As the Riverfront Strategic Policy Plan (1992) and New Century New Orleans Master Policy Plan recommend, redevelopment of underutilized waterfront areas would provide numerous economic, recreational, and social benefits to the community as well as the city as a whole. As noted below, there are several other redevelopment opportunities of significant importance to the District's future.

Despite its many assets, District Seven has experienced one of the city's highest rates of population loss between 1980 and 1997. It also has a high percent of vacant structures and its average income in 1990 was only slightly more than one-half that of the citywide average. While the presence of two of the city's largest public housing developments somewhat skews these statistics, District Seven is nonetheless an area struggling for stability. 

Issues/Problem Areas:

The District faces four arenas where there could be dramatic changes over the next ten or more years -- renovation or complete redevelopment of the two large public housing projects, reuse of the warehouses and wharves along the riverfront, changes along the Industrial Canal corridor in conjunction with the relocation and widening of the lock, and the extension of the streetcar system through the district. 

In the course of developing this plan, nearly every participant described the need for better enforcement of existing regulations, more park or green space, and the need to reduce conflicts and improve appearances around existing industry and along the rail corridor. The residents' assessment of problems is confirmed in detailed neighborhood plans as well as in the daily duties of the City Planning Commission to research zoning applications. Other significant issues included:

· Blighted and vacant property, including numerous large, highly visible properties whose development could affect the character of the surrounding area; 

· Deterioration along the two major corridors, St. Claude and the Claiborne/Robinson pair, as commuter routes to St. Bernard Parish. 

· Reuse of the Agriculture St. landfill site. 

· Conflicts between existing industry and adjacent residential areas; 

· Concern about increasing commercial intrusions into residential area, especially in conjunction with live entertainment and / or alcoholic beverage sales; 

· Noise, litter and related conflicts associated with stores selling carryout or fast food or alcoholic beverages; 

· Truck traffic and parking; 

· Dumping and abandoned vehicles; 

· "Shade tree" mechanics; 

· Poor quality, inadequate maintenance, or simple lack of, various city facilities and services, including streets, drainage and sewerage lines, and parks;

Plan Recommendations:

Proposed land use in District Seven has been designed to reflect appropriate recommendations from the Riverfront Strategic Policy Plan and New Century New Orleans Master Policy Plan, guidance from professional planners, and citizen input. Particular attention is given to providing adequate park and recreation space; to the appropriate scale and types of uses in areas likely to be redeveloped; to increased job opportunities in new or consolidated industrial and business parks; and to improving the living environment through new buffer areas around housing, improved access to more stable and diverse stores, and reduced numbers of blighted or vacant houses. 

More specifically, in conjunction with more public space and access along the riverfront the 1999 Land Use Plan recommends mixed use redevelopment at a low scale compatible with existing buildings and nearby residential uses. Mixed use is also recommended for portions of the major street corridors such as St. Claude and Franklin Ave. The Plan recommends concentrating industrial activity in the existing Gentilly Industrial Park, along the Industrial Canal, and a few other locations such as the Agricultural St. Landfill and a portion of the Desire Housing site. Housing Authority plans for Desire and Florida are supported, as are plans for streetcar lines along St. Claude and, possibly, along the riverfront. New green space and buffer areas are proposed throughout the District, sometimes because currently there is no nearby recreational area, and in other instances because a transition or buffer is needed between residential uses and industry or major transportation corridors. These and other recommendations are discussed below.

Increase Green Space, Landscaped Buffers, and Recreational Opportunities: Both the need and the opportunity to add green space and parks in District Seven are among the greatest of all the districts. As mentioned earlier in the text and in the 1980 Land Use Plan, District Seven contains the smallest percentage of park space of any district in the city and its increase should be a top priority. A measure of how deeply the residents missed green space came during discussions about pivotal parcels: for nearly every parcel, a few if not several participants suggested park use as a preferred redevelopment. Particularly in District Seven, new green space can provide necessary transition zones or "urban resting places" between land uses, to relieve the tension of a hyper-dense development or the conflicts associated with the proximity of different land uses. Several specific opportunities to better separate such uses, screen less attractive areas, and meet existing as well as future recreational needs, are highlighted: 

Parks and Green space buffering residential from industrial uses in the Desire and Florida Housing Areas: The Plan recommends the creation of green buffers between industrial and residential uses throughout the district, but particularly in these two public housing developments where the planned demolition and redevelopment at reduced densities create unusual opportunity. Especially in the Desire area, large new green space and recreational areas would provide a safe area for recreation and a break between heavy transportation corridors, cargo cranes and swingsets. The Plan supports a safe and healthy neighborhood for all residents of the city. Use of buffers is a step toward accomplishing this goal. 

Landscaped Transportation Corridors -- Press St. Corridor, Elysian Fields, St. Roch (above St. Claude), Franklin Ave., Almonaster, Florida Ave., and St. Claude: In contrast to older areas uptown and in Mid-City, District Seven has few tree-lined streets softening the built environment and providing relief from the sun. Neighborhood associations have sponsored and maintained some planted areas, but too often the neutral ground becomes a temporary parking area or a series of horseshoe pits, leaving behind rutted and bare ground. The District contains several arterials widely used by the entire community, and some, such as Florida and St. Claude, serve as major gateways to the city and commuting corridors to St. Bernard Parish. Their improved appearance through landscaping and other streetscape improvements, including storefront renovations, would strengthen not only the small commercial uses along the corridors but also the adjacent residential communities. Such improvements must anticipate or perhaps be done in conjunction with the extension of the streetcar line.

The rail corridor along Press St. offers some unique opportunities to extend public access to the riverfront and to enhance the NOCCA setting. The 1999 Plan includes a major new green space in the Press Street corridor. More near-term improvements can occur in the wide right-of-way from St. Claude to the River, to provide attractive public access to the new NOCCA school and the riverfront. Longer term, the switching yards between Florida and St. Claude would be removed or shifted to an expanded industrial area above Florida Ave. and the entire corridor converted to public green space. 

New Recreation Areas and Public Space: In addition to the opportunities in the Desire and Florida Housing areas mentioned above, new recreation areas include the Kohn School site (bounded by Alvar, Johnson, Mazant and Roman Streets) as a park/playground or even a track and field facility. Changes along the riverfront offer important opportunities to continue the public access and recreation areas developed along the downtown and Vieux Carré waterfront. The Plan proposes the addition of open space on the levee between the Mandeville Street and Poland Avenue Wharves, including the demolition of the derelict Press Street Wharf. Also shown is creation of a pedestrian corridor along the river between the Vieux Carré and Bywater, which may entail the conversion of the Governor Nicholls Street, Esplanade Avenue, and Mandeville Street Wharves to public use. The extension of the riverfront streetcar line may also be feasible in this corridor. Complementary riverfront redevelopment is discussed below.

Mixed Use Category: As defined for the 1999 Land Use Plan, the mixed use land designation is a hybrid category that encourages a flexible mix of residential, commercial, office and certain light industrial uses. This category is particularly suited for the riverfront area and a few corridors in District Seven. As should be expected of neighborhoods appreciative of their historic features and the mix and scale of existing development, Marigny and Bywater residents are particularly interested in the new mixed use category of land use. However, the support comes with much caution since specifics about scale, design, density and associated transportation limitations must still be carefully developed during the upcoming stages of writing new zoning regulations. The opening of the riverfront and the extension of the streetcar line, both of which enjoy strong neighborhood support, are going to create a natural movement of people downriver from the Vieux Carré. One fear is that development, particularly along the riverfront, may be too intense or possibly too visitor-oriented. Neighborhood involvement in the writing of new standards for the mixed use category, as applied in parts of District Seven, will be critical to assuring a scale, density, parking and access requirements, and other features to make such mixed use (re)development a good, supportive fit. 

Neighborhood Mixed Use along the Riverfront: One of the major changes anticipated by the 1999 Land Use Plan is the continued decline of maritime and other industrial activity along the riverfront between the Governor Nicholls Street Wharf and the Poland Avenue Wharf. The district as well as the city as a whole would benefit economically and socially if this valuable riverfront property were put to different uses. The 1999 Plan thus anticipates not only new pedestrian corridors and green space, but also mixed use along the river to encourage the renovation of abandoned one- to three-story brick warehouses for commercial and low to medium density residential use. The mixed use concept also anticipates the construction of new mixed use buildings of similar scale and design. This area includes the new NOCCA development. While the size of some of these buildings and the proximity to the Vieux Carré might suggest Urban Mixed Use as an appropriate category, Neighborhood Mixed Use has been applied to emphasize the importance of the lower scale, less intense, more restricted range of uses envisioned along the edges of the neighborhood. 

The changes would continue the process of reopening of the riverfront to public use as begun at Canal Street and the Vieux Carré. Here, however, instead of something like the highly tourist-oriented Aquarium, the new New Orleans Center for the Creative Arts provides an anchoring activity center more compatible with the scale and residential character of the area. Nearby, a recent proposal for reusing part of an existing warehouse for a praline kitchen/shop, suggests the diverse, smaller scale activities envisioned along the riverfront. The Marigny/Bywater neighborhoods are already recognized for the number of artists and artisans who have found the moderately priced housing and the range of buildings suitable for studio space attractive. Small shops, cafes, and studios along the riverfront would support gallery activity and fit in with the traditional mixed use character of the area. Farther downriver, starting at Piety Street, even less intensive mixed use development is recommended.

From the above assumptions about scale, design, density, and transportation limitations, planning for the development of the area must proceed not only with great care but also with creativity. The building of public parks and pedestrian corridors, especially in the riverfront neighborhoods, is going to require substantial funding. Creative application of the standards for the mixed use areas here may identify some level of commercial or institutional development-open to the public and perhaps complementary to NOCCA- that could accommodate recreational needs and generate funding for open space (perhaps in the form of development or leasing fees). 

Neighborhood Mixed Use on Other Corridors: Neighborhood-scale mixed use is appropriate on St. Claude Avenue to encourage pedestrian-friendly commercial revitalization.  Construction of the streetcar line will help facilitate revitalizing this historic street with a character similar to Magazine Street.  Similarly, mixed use on Frenchmen Street as far as Washington Square, and on Elysian Fields and on Franklin Avenue north of St. Claude would reflect current uses.  During preparation of new zoning regulations, some consideration is recommended as to a low-intensity mixed use district which allows or encourages live entertainment.  Great care is needed in this area of regulation, however, as many residents cited instances of conflicts with entertainment uses in other parts of the neighborhood.  Also, the neighborhood is extremely concerned that the commercial and entertainment activities along Frenchmen St. are encroaching too much into the small residential areas immediately beside it.  Furthermore, care should be taken when translating the Land Use Plan classifications into zoning.  For instance, the Plan, with community agreement, indicates low density residential along the portion of Franklin Avenue within the Marigny.  However, residents have indicated strong support for the retention of commercial activity in existing clusters along Franklin Avenue. (paragraph amended July 25, 2000)

Neighborhood and Regional Commercial Corridors: The only general commercial area recommended in District Seven is the area of the Winn-Dixie site at the intersection of Almonaster and Franklin. A wide variety of stores and services already exist along both streets, and both streets are major corridors providing convenient access from numerous areas of the city. 

Neighborhood commercial areas are widespread in the District and often are effective as boundaries to residential areas. Fostering a less intense land use such as this, as a transition area between, say, industry in one area and residential uses nearby, is another way to provide a buffer -- a transitional area -- between two less than compatible uses. The proposed neighborhood commercial corridor along Poland Ave. is such a transitional area between the heavy industry along the Industrial Canal and the nearly adjacent residential uses. Industry is fairly well contained between the Canal and Poland Avenue. However, in the fringes along Poland Avenue this activity is spotty, disorganized and unsightly. The residential neighborhood on the west side of Poland is suffering in part because of the eyesore, noise, and pollution. In this case, a buffer of small-scale neighborhood commercial has been planned along the street. The intent is to develop neighborhood services for the isolated residents and to have a transitional area to alleviate the pressure between high-intensity maritime industry and family living quarters. The impact of industry must be mitigated in order for revitalization efforts to take place. 

Consolidation of Industrial Development: Another major, long-term change is the creation of a consolidated industrial district in the Desire area. With current residential use in such poor quality, much of it isolated and surrounded by industrial activity and already slated for demolition (Desire Housing Development) or Superfund remediation, the city faces a bold opportunity to undo the decades of poor planning in the area and relocate citizens closer to the rest of the New Orleans community, closer to jobs, transit networks and commercial and public services. Such relocation would also help with the blighted housing problem in other neighborhoods. Some (or all) of the Desire Housing site could then be reused for commercial and light industrial uses to create new economic activity in an area well serviced by interstate, railroads, and water transportation.³ Ultimately, from a land use perspective, the Norfolk Southern Railroad Yard, which occupies a vast area in the middle of the district and creates traffic problems, blighted conditions and drug activity along its borders, would be better off operating in the new industrial park, away from residential areas.

³This statement, developed over the course of the Land Use Plan workshops, is inconsistent with HANO’s master plan.  This indicates that as plans become more certain, a public meeting process must reconcile the inconsistencies as a means of achieving community consensus.

The 1999 Land Use Plan also creates new green space as buffers along the edges in this area, and if residential use is continued on the site, it provides for an extensive park for recreational use and as a buffer zone. 

The existing Gentilly Industrial Park and the heavy maritime/shipping related industry along the Industrial Canal would continue as viable, and valuable, centers for employment located near major shipping and transportation corridors. Monitoring truck access routes and adding landscaped screens or small buffer areas would help stabilize and improve investment opportunities for residents and smaller businesses in the surrounding areas. Funding for such improvements, as well as for efforts to revitalize the small neighborhood-scale mixed business and residential uses along the major transportation corridors of Claiborne, Robinson, and St. Claude, could be available as part of the proposed mitigation program for the lock relocation and widening. 

Other Recommendations: Many issues in the city's neighborhoods are beyond the scope of a general Land Use Plan to address. Some problems, such as noise, 'shade-tree mechanics,' abandoned vehicles, and so forth, depend upon firm, consistent enforcement of existing regulations. Others must await more detailed small area or neighborhood plans, or the changes to the regulations in the Comprehensive Zoning Ordinance. The following recommendations are offered to guide such future undertakings:

 
• Reduction of spot zoning: Spot zoning, the singling out of one parcel and treating it differently from other similar parcels, is more evident in older historic communities than elsewhere in the city because more neighborhoods were initially built with corner stores and sometimes other shops or even light industry within the residential area. Thus, rezoning to allow a commercial or office use to resume activity is often preferred to seeing the building remain vacant until the only choice is demolition. Through this Land Use Plan, the revision to the CZO, and the remapping of the new zoning districts, many spot zones will be eliminated. However, the existing business will continue as a legal non-conforming use. Over time, these businesses will be replaced by ones more in keeping with the neighborhood until, at some point, the property use conforms with the zoning. 

• Live entertainment, ABO's, commercial encroachment: Revisions to the CZO are urged to consider creative approaches that allow such activities under reasonably controlled circumstances (perhaps through City Code changes rather than CZO regulations). In conjunction with changes to city regulations, a small area study is recommended for the area bounded by Elysian Fields, the River, Esplanade Ave. and St. Claude Ave. (The Marigny Triangle), with the intent of protecting the residential uses while supporting the corridor of restaurant and entertainment uses.