Planning District Two... (Continued)

Central City/Garden District

Section V: Community Participation

The following section provides a synthesis of citizen comments and input gathered at a public workshop held at the Kingsley House on the evening of July 7, 1998 and a follow up meeting on October 6, 1998. Approximately 70 residents and business owners, in six small groups, participated in the workshop identifying pivotal development parcels and land use conflicts and creating a proposed land use map for the district. 

In general, workshop participants expressed a desire for more green space in the district, particularly access to the Mississippi River at the area between Race and Felicity Streets. Participants indicated strong support for maintaining areas that are currently residential as well as keeping new commercial activity on main thoroughfares. An emphasis was placed on the need for protecting residential integrity through future land use designations and zoning. The citizens have great concern for the scale and type of commercial activities, desiring primarily neighborhood commercial developments. Encroaching development, both commercial and institutional (specifically by existing medical facilities), were identified as cause for concern. Beautification efforts in many areas (such as the Tchoupitoulas corridor) and buffer zones between industrial and residential land uses would also improve the quality of life in the district. Participants supported potential development of general commercial activities, specifically a grocery store, on the north side of St. Charles Avenue near Polymnia Street, if the development conformed to design and scale standards preserving the historic nature of the street. 

Pivotal Parcels

Citizens indicated a variety of development possibilities in the district. These included riverfront property (both developed and undeveloped), abandoned and blighted structures, and vacant parcels. The riverfront property receiving the most attention was the area slated for development as Riverfront 2000, located upriver from the Ernest N. Morial Convention Center, in a formerly industrial area between Tchoupitoulas and the Mississippi River. Abandoned or blighted buildings and vacant parcels were identified throughout the district with the community providing many creative suggestions. 

The Tchoupitoulas corridor, especially the undeveloped riverfront area near the Convention Center, was discussed as pivotal for potential development. Participants support Mixed use development, but also desire some green space and access to the levee and river, and would like new buildings to fit in with the scale of existing development. While a large area was discussed for future redevelopment, residents indicated that the scale of riverfront development should differ on each side of Race Street. The area uptown of Race Street on Tchoupitoulas is appropriate for Neighborhood Mixed use with the downtown side of Race appropriate for Urban-Scale. Concern for a loss of sunlight as well as a view of the river was expressed. The following comments record additional concerns expressed in the meeting.

• Riverfront 

- Mixed use 

- access is very important 

- some green space desired 

- height restrictions on MICO/Riverfront 2000 site 

• Keep view of river-do not cut off sun light 
• Jackson Avenue & Tchoupitoulas Street-formerly paint factory, ferry entrance 
• Finish Tchoupitoulas Street corridor 
• Renew warehouses on riverside of Tchoupitoulas Street-bring in jobs 

• Former city incinerator on Washington Avenue 
• National Maritime Museum building on Tchoupitoulas 
• Empty hospital at Jackson Avenue and St. Thomas 
• Blighted store on Austerlitz and Coliseum Streets 

• Property between Baronne/Street/St. Charles Avenue/Polymnia Street/St.Mary Street ("Albertson's site") 
• Washington Avenue & Magazine Street 
• Jackson & St. Charles Avenues 
• Oretha Castle Haley & Martin Luther King Jr. Boulevard 
• Orange & Annunciation Streets 
• Camp & Pleasant Streets 
• Magazine Street & Jackson Avenue 
• South Peters next to Convention Center 
• Jackson Avenue and St. Thomas 

The schematic map which appears on the facing page summarizes comments recorded on district maps during the workshop. The summary schematic is an attempt to represent graphically 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 Two

With a varied and colorful history of land use and people, Planning District Two encompasses a unique area of New Orleans. Current land uses in the district range from single-family residential to heavy industrial, a result of development over the past 200 years to meet a variety of the city's needs, including commerce and industry, as well as residential dwellings, green space, eclectic shopping, dining and art galleries. As one of the oldest parts of New Orleans, this District has many significant architectural treasures including a large collection of 19^th Century Greek Revival structures in Coliseum Square, unique Creole and Victorian cottages in the Irish Channel and mansions with a mix of architectural styles. With its large and valuable stock of historic buildings, its proximity to the Central Business District, and the significant quantities of undeveloped or underutilized properties near the Convention Center and in Central City, District Two has reasons for optimism in the years ahead.

The population in the District is diverse, with demographic representation by all socio-economic groups found in the city. Compared to the city as a whole, the district experienced the faster rate of population decline and decline in total number of housing units in the last three decades. However, the district experienced growth at a higher rate than the city in average home value and average monthly rent. The rate of annual growth in average household income in the District is projected to exceed that calculated for the city, but average household income levels in the District will remain $4,000 less than for the entire city, at $19,618.

Issues/problem areas:

District Two has a wealth of the city's architectural heritage, but much of it is crumbling. While residents express satisfaction with living in the area due to the strong sense of community, ambience, and general neighborhood character, they have recognized that ignoring the lingering problems of disinvestment and urban decay in the community will inhibit any meaningful improvements. The main issue confronting District Two is one of balancing a dire need for redevelopment and revitalization of the distressed neighborhoods while, at the same time, protecting and preserving their historic character and architecture. Many local, as well as national examples show that goals of economic development and historic preservations could, or should be one and the same. However, the success of this "dual" approach relies on the determination of all segments of the community to work together and articulate strategies for a successful revitalization of the area. An enormous step has already been taken in some areas of the District (Lower Garden District, Irish Channel) where the community is meeting this challenge through the formation of formal (the Community Resource Partnership) or informal partnerships. A recent dispute regarding the location of a major supermarket in the Central City neighborhood gave a rise to a heated, but much needed discussion on the future of Central City. 

In the course of developing this plan, citizens have identified these and other problems related to the existing pattern of land uses in District Two. The residents' assessment of problems is confirmed in detailed neighborhood plans as well as by the daily duties of the City Planning Commission to research zoning and subdivision applications. Briefly, they are as follows: 

• Disinvestment and blight, accompanied with high vacancies and abandonment of properties throughout the District; 
• Problems relative to the improvements of public housing developments and their effective integration with the surrounding neighborhoods; 
• Disinvestment and blight in some commercial corridors, and development pressure in others; 
• Pressure from institutional uses -- particularly Touro Hospital and Trinity School -- on the adjacent residential neighborhoods (traffic congestion, parking problems, noise, litter); 
• Proliferation of certain types of problematic uses (bars, bed and breakfast operations, package liquor stores) in some neighborhoods while there is an absence of needed stores and services (quality grocery stores, repair and personal services); 
• Increase in nonconforming uses due to the lack of enforcement of the existing regulations; increase in spot zoning which creates conflicts and destabilizes neighborhoods; 
• Incompatibility of industrial uses with adjoining residential neighborhoods (truck delivery traffic, noise, environmental and health concerns); 
• Lack of adequate access to the river, lack of recreation and green space, bike paths; 
• Inadequate respect for historic character of the area, incompatible development, lack of design standards. 

Plan Recommendations:

The most significant recommendations for District Two include application of two types of Mixed use land categories in areas where residential uses have traditionally coexisted with commercial (neighborhood-scale mixed use, described below) and in the derelict industrial and commercial areas along the River and Pontchartrain Expressway (urban-scale mixed use, also described below). The Plan also calls for preservation and adaptive re-use of the District's most obvious assets -- its extensive inventory of architectural treasures -- with new development proposed for blighted and underused property. The underlying aim of the recommendations is to strengthen the residential neighborhoods in the District, to encourage new residential uses, and to rehabilitate blighted properties. A summary of the recommendations of the 1999 Land Use Plan follows:

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. In New Orleans, mixed use development has a long history that has created some of the city's most vibrant neighborhoods. These thriving "urban centers" where one can work, dine or reside on the same street are still present today throughout District Two. The most prominent examples are Magazine Street and lower St. Charles Avenue, as well as once-prosperous Oretha Castle Haley corridor. 

However, while some neighborhoods such as Coliseum Square and Magazine Street are experiencing a renaissance of commerce and an increase in residential development, other areas of the District are plagued by vacancies, disinvestment and overall decay (Oretha Castle Haley, Lower St. Thomas, and areas along the Expressway). In these latter areas, projecting a land use that is all residential or all commercial, is unlikely to encourage redevelopment in a way that utilizes existing features of the area, that is compatible with the surrounding area, or that recaptures the traditional vitality of the street. In addition, redevelopment plans for vacant and underutilized industrial land on the former MICO site (Riverfront 2000 project) will have an enormous impact on the surrounding neighborhoods and on the City as a whole. For these areas the Plan recommends the creative application of the mixed use land category, recognizing that the application of this category is appropriate only when based upon principles of compatibility developed within the neighborhood. 

The mixed use category can be differentiated into two classes, depending upon the scale and location where this hybrid category is applied. Neighborhood mixed use is designed to allow small scale commercial and residential activities to co-exist, either in the same building or in buildings lying side-by-side. Urban mixed use can encourage redevelopment of large vacant properties or permit the adaptation of large historic buildings that once had intensive activities. Both scales of mixed use category have a ready application to Planning District Two. 

Neighborhood Mixed Use. In District Two, consistent with current land use, Neighborhood mixed use development is proposed for parts of Magazine Street: between the Pontchartrain Expressway and Melpomene, from Race to Philip Streets, and from Washington Avenue to the district boundary. Neighborhood mixed use is also proposed for Prytania Street between Urania and Calliope. This category appears on Oretha Castle Haley Boulevard where there are revitalization activities currently underway for Central City (the Venus Garden apartment complex). Mixed use classification in these areas ensures continued development of appropriate commercial and residential activities; it specifically sponsors preservation of existing structures. 

The lake side of Tchoupitoulas corridor is proposed for residential and mixed use development. In this instance, the mixed use land designation has been used to allow a transition of industrial port facilities to development that enhances life in surrounding communities. As proposed, land adjacent to the levee could become an exciting site for development where citizens can dine, play or reside by the river. Certain low impact manufacturing uses may still coexist with residential, commercial and recreational uses, providing a work place for some residents. However, to ensure compatible and sensitive mixed use development, clear standards for specific sections of the corridor need to be developed.

By establishing neighborhood mixed use in these areas, small scale commercial and residential activities can co-exist. The greatest challenge of mixed use planning is to ensure compatibility with a neighborhood in terms of permitted uses and design of development. Planners and citizens must work jointly to develop standards that apply in different types of neighborhoods. For example, in areas experiencing strong commercial pressure the proposed mix of uses may be structured to require a preponderance of residential uses; in economically depressed areas a wider range of possible commercial establishments may benefit the neighborhood.

Urban Mixed Use land category is intended to encourage redevelopment of large vacant properties and adaptive re-use of underutilized historic buildings that once had intensive land uses. Riverfront 2000 project, currently underway, is a fine example of a mixed use development. The project includes a new residential development (along Annunciation and Race), neighborhood commercial services, parking facilities, an office park, hotels, high rise condominium (along Tchoupitoulas), an entertainment mall, a riverfront amphitheater and park, and boat terminals (along the River). The area adjacent to the Riverfront 2000 development upriver from Race Street and continuing along Tchoupitoulas to Jackson Avenue, is also proposed for future mixed use development. This development, however, should have a smaller scale and include only residential and neighborhood businesses. 

The intensity of development expected for Riverfront 2000 is similar to that found in the present day Warehouse District, where buildings and land uses are changing from manufacturing and industrial functions to more commercial and residential uses. The redevelopment of these areas dramatizes the post-industrial evolution of the city, and promises new vibrancy. 

Concentration of commercial services. To minimize the negative effects of commercial uses on the adjacent residential neighborhoods, the 1999 Land Use Plan proposes that future commercial development be limited to major roadways where current commercial uses are concentrated. In Planning District 2, current commercial uses are in decline, and future development should make an effort to beautify facades, maintain property, and offer higher quality services. The high intensity commercial land use designation is proposed for only one area, where stores with regional customers would not disrupt the surrounding neighborhoods. The low intensity, neighborhood commercial designation is applied for several sections of the major street corridors in the District. Such development should preserve buildings either by locating in existing commercial structures or by renovating empty, blighted buildings. 

Regional Commercial. The area off Claiborne Avenue near Interstate 10 has been designated as regional commercial with the intent that existing commercial structures and warehouses be redeveloped. The area next to the Convention Center (Riverfront 2000 project), designated as urban mixed use, is appropriate for commercial development of similar intensity as the regional commercial designation. While other locations within District Two have been considered for this land use category, they have been designated as less intense Neighborhood Commercial areas because of their proximity to residential neighborhoods or their inadequate access to major roadways.

Neighborhood commercial land use category is proposed for sections of several major street corridors where there is an existing concentration of commercial activities and where the area immediately abuts residential neighborhoods. The low intensity commercial uses serving the area residents are proposed for upriver sections of Claiborne Avenue, LaSalle Boulevard/Simon Bolivar and Broad Street between Toledano and Martin Luther King Jr. Boulevard. A portion of Napoleon (from Claiborne to S. Robertson), a part of the St. Charles Avenue corridor (between Jackson Avenue and the Expressway), and the intersection of St. Charles with Louisiana Avenue (the Touro area) have been designated as appropriate for neighborhood commercial. The nature and intensity of uses permitted in these areas should be carefully examined and any proposed expansion closely considered because of the potential of commercial uses to disrupt a neighborhood's tranquillity. 

The proposed concentration of commercial services and mixed use developments should result in a reduction of spot zoning and a gradual reduction in non-conforming uses that have been identified by residents in some neighborhoods within Planning District Two. 

Industrial and Recreational Uses. The Land Use Plan proposes major reductions of the existing industrial land use designation for properties generally bounded by the Expressway, Mississippi River, Jackson, Religious, Race and Annunciation Streets. Following recommendations of the 1997 Lower Garden District Strategic Renaissance Plan (LGDSRP), industrial zoning designation for this area has already been changed into the newly created mixed use zoning category. The assigned land use designation reaffirms the LGDSRP recommendations and continues support for the area residents' desire that industrial uses be eliminated from this prime location. Areas of scattered industrial land uses (including the Tchoupitoulas and Pontchartrain Expressway corridors) have been proposed for future redevelopment as mixed use and commercial. With the proposed centralization of maritime and related industrial activities to the Industrial Canal and the Intercostal Waterway, the industrial land use designation within District Two is reduced to the area of Port facilities between Jackson and Napoleon Avenues, on the River side of the levee. The downriver section of the levee (from Jackson Avenue to the Bridge) and the narrow strip along the levee (from Jackson to Napoleon), are designated as park and recreational area in response to the residents' call for more recreational and green space and greater public access to the river. Development of a walking/bicycling path along the riverfront from the Riverbend to the CBD via the levee and Tchoupitoulas, has also been recommended. 

Institutional uses.While recognizing problems regarding the pressure from various institutional uses on the adjacent residential neighborhoods, the land use planning solutions to the problem are rather limited. The Plan recommends restricting the expansion of individual institutional uses as the best way to prevent conflicts with residential areas. The Plan foresees confining all institutional uses (including Touro Infirmary and Trinity Episcopal School) to their current boundaries, and recommends strong scrutiny regarding any requests for expansion. Furthermore, all main institutions should be required to develop (or update) parking and traffic circulation plans which should be reviewed and approved by the Planning Commission with the neighborhoods' input. Other issues, mainly related to expansion of churches accompanied with unwarranted demolitions throughout the District, should be closely monitored by the recently created Housing Conservation District Committee.

Redevelopment of vacant or underutilized properties. Based upon extensive public input, analysis of the adjacent land uses, traffic circulation patterns and overall stability of individual areas, the Plan proposes redevelopment of several properties identified as "pivotal" parcels. One of the most significant pivotal parcels, the Riverfront 2000 project located on a portion of a former MICO site, is proposed for redevelopment as a mixed use project, as discussed earlier. Development ideas for a number of other vacant parcels and for blighted and under used properties were discussed, and appear in the section entitled "Pivotal Parcels." Where agreement was reached, the future land use designations for these parcels have been presented on the Proposed Land Use Map.

Other recommendations. Due to their general nature, Land Use Plans do not provide recommendations regarding particular or site specific land use problems that are of concern for neighborhoods. These problems are analyzed on the level of detailed neighborhood plans, proposed zoning, or plans developed by other agencies such as Housing Authority of New Orleans (HANO). As a guidance for future planning actions, the 1999 Land Use Plan makes several recommendations and proposes development of the following detailed studies:

• Prepare detailed neighborhood plan/study for Central City neighborhood and recommend comprehensive strategies for addressing complex problems of decay, vacancies and disinvestment. 

• Recommend incentives for property owners to reinvest in outdated, nonconforming structures. 
• Continue necessary process for designation of Irish Channel as a local historic district; 
• Revitalization of public housing developments in accordance with HANO's proposed plans for renovation, density reduction, street openings; 
• As a part of the work on the revision to the Comprehensive Zoning Ordinance, develop design guidelines for specific neighborhoods and commercial/mixed use corridors (such as St. Charles and Claiborne Avenues, Oretha Castle Haley Boulevard, Magazine, Simon Bolivar) to ensure harmonious relationship between existing and new infill developments and to enhance the overall appearance of the area. Recommend improvements to existing street and median landscaping throughout the District (but particularly in the Central City area and Lower Garden District) and create buffer zones and strips as a part of site design to reduce potential conflict between the residential and adjoining commercial and institutional uses. 

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Planning Disctrict Three
(Uptown and Carrollton)

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