INDUSTRIAL MANCHESTER: Urban DeSign Framework

Transcription

1 VCU 2014 INDUSTRIAL MANCHESTER: Urban DeSign Framework L YESSENIA REVILLA U R SP 762: PROFESIONAL PLAN

2 Yessenia Revilla 2014 All Rights Reserved

3 INDUSTRIAL MANCHESTER: Urban DeSign Framework Prepared For: The Richmond Department of Planning and Development Review Prepared By: Yessenia Revilla Master of Urban and Regional Planning Program L. Douglas Wilder School of Government and Public Affairs Virginia Commonwealth University Spring 2014 As a result of being awarded the Glavé & Holmes Architecture Professional Plan Scholarship ( ) Studio Panel: Meghan Z. Gough, Ph.D., VCU James Smither, PLA, ASLA, VCU Andrew B. Moore, AIA LEED AP, G&HA Mark A. Olinger, Director, Dept. of Planning & Development Review, City Of Richmond, VA i

4 Photo Credits: Photos taken by Yessenia Revilla unless otherwise stated ii

5 ACKNOWLEDGEMENTS This document would not have been possible without the generous assistance, guidance, knowledge, insight and vision of: Mark A. Olinger, Director of Planning and Development Review for the City of Richmond, for formulating the driving questions of this document and for providing guidance during the whole planning process, from beginning to end. The Manchester Alliance Board of Directors, especially David Bass (the president) and Jeremy Connell for allowing me to attend meetings and for sharing insights and aspirations to their community. Andrew Moore for valuable professional mentorship and the opportunity to complete this project at Glavé and Holmes Architecture s office. My faculty advisors, Dr. Meghan Z. Gough and James C. Smither for their support, mentorship and valuable feedback during the planning process of this document as well as years of outstanding classroom instruction leading up to this project. Thank you to my colleagues and friends for providing their unconditional assistance during the project process: Carina Revilla, Diane Gapas, Nathan Tekleariam, Shilpa Kanumuri, Tiffany Olinger and Lee Pambid. Lastly, but most importantly, thank you to my family for their patience, understanding, and supporting my professional goals. Thank you to my husband, Francisco Ferrer and my five-year-old child, Mickella for giving me time to do homework! iii

6 iv INDUSTRIAL MANCHESTER: Urban DeSign Framework 2014

7 TABLE OF CONTENTS List of Figures 1 Executive Summary 2 Section I: Introduction 4 The Client Purpose Study Area State of Art Guiding Principles: Connectivity Placemaking Density Approach and Methods Plan Road Map Section III: The Vision 36 Vision Statement Connectivity Goals, Objectives, and Strategies Placemaking Goals, Objectives, and Strategies Density Goals, Objectives, and Strategies Conclusion Section IV: Appendix 70 Appendix A: Planning Process Appendix B: Demographic Data Appendix C: List of Assets of IM Section II: Research 16 Setting the Stage Existing Conditions: The Neighborhood: Demographics, Zoning, Land Use, Desirable Views and Vistas, Topography The Public Open Space: Street Character, Distinctive Elements of the Study Area, The Architectural: Figure Ground, Identification of Design Features, Current Development Trends List of Assets and Challenges Asset Map v

8 List of Figures Figure 1: First Client Focus Group 5 Figure 37: 7 th Street Current Condition 44 Figure 2: Meeting with Manchester Alliance 5 Figure 38: Proposed Plazas on 7 th Street 44 Figure 3: Richmond Downtown Plan 7 Figure 39: Perspective of Proposed Plazas on 7 th Street 45 Figure 4: Richmond Riverfront Plan 7 Figure 40: 7 th Street Plaza North 45 Figure 5: Map of the Study Area 8 Figure 41: 7 th Street Plaza Central 46 Figure 6: Central Corridor Plan 11 Figure 41.1: 7 th Street Plaza Central at Street Level 46 Figure 7: South Lake Union Urban Design Framework 11 Figure 42: 7 th Street Plaza South 47 Figure 8: Industrial Manchester Master Plan 12 Figure 42.1: 7 th Street Plaza South at Street Level 47 Figure 9: Table of Comparison of Downtown Richmond Population in 1990, 2000 and 2010 Figure 10: Chart of Comparison of Downtown Population by District Figure 11: Chart of Industrial Manchester Population by Age 20 Figure 12: Chart of Population with Bachelor Degree or Higher 20 Figure 13: Table of Comparison of Median Income 21 Figure 14: Map of Existing Zoning 23 Figure 15: Latest Proposed Land Use for the Study Area 25 Figure 16: Desirable Views and Vistas Figure 17: Topography Model Figure 18: Riverfront Plan Proposal Figure 19: 7 th Street, Looking North Figure 19.1: 7 th Street Looking South Figure 20: Map of Street Character Figure 21: Kevin Lynch Map Figure 22: Figure Ground Figure 23& 23.1: Building in Decatur Street Figure 24: Newer Residential Construction on Commerce Road Figure 25: Current Development Trends Figure 26: Asset Map Figure 27: Existing Urban Garden Figure 28: Current Use of Porter Street and Proposed Ideas Figure 29 to 32: Examples of Public Art and Wayfinding Signage Figure 33 to 36: Incorporate Architectural Features at Street Level 18 Figure 43: LQC Initiative in Baltimore, MD Figure 44: New York City: Pop-Up Café 19 Figure 45: Existing: Parking Lot on 6 th Street Figure 45.1: Proposed: Parking Lot on 6 th Street Figure 46: Conceptual Triangle Art Park: Navy Yard, Washington DC. Figure 47: Japanese Style Sidewalk in Russia Figure 48: Example of Multifunctional Street Furniture in Boulder, Co. Figure 49: Map of Scale Comparison Between Industrial Manchester and the Fan District Figure 50 & 50.1: Reynolds South Site Design Concept , to 57 Figure 51 to 51.2: Intersection of 3 rd and Decatur Street Site Design Concept Figure 52: Scheme of Incentive Zoning Priority 59 Figure 53: Elevation of the Delimitating Topography Line and its 59 Relation to the Floodwall Figure 54: Main Concept for Industrial Manchester 60 Figure 55: Perspective of North Transit Node on 7 th Street 61 Figure 55.1: North Transit Node on 7 th Street at Street Level 61 Figure 56, 56.1: Bowery Street in New York 62 Figure 57: Building Height Gradation Across Industrial Manchester 63 Figure 58-60: 7 th Street Height Sculpting Controls 63, 65 Figure 60: Industrial Manchester Proposed Urban Intensification 66 1 Yessenia Revilla

9 EXECUTIVE SUMMARY The Richmond Department of Planning and Development Review, in conjunction with Manchester Alliance (the local neighborhood association), have requested an Urban Design Framework (UDF) for Industrial Manchester (IM). Both residents and local authorities need to have a common vision for the future of Industrial Manchester, an industrial area that was never intended for residential or a mix of uses resulting in a neighborhood. The area has experienced positive changes over the last decade and has become a more mixed-use community with industry, housing and offices side-by-side. However, the challenge of adding the full complement of urban services necessary to create a high-quality city neighborhood still persists today. The Urban Design Framework has been developed though intensive involvement of the client, residents and stakeholders. The purpose of this study is to provide a model for re-defining areas in the city of Richmond; a model that generates new neighborhood choices, provides for new businesses and spurs additional new investment. This document accomplishes the goal through identification of an integrated community vision that is then applied to Industrial Manchester's land use potential to promote sustainable, high-quality development, while improving the public realm, inspiring walkability, fostering a strong mix of uses and a strong sense of place. More specifically, this study is intended to: 1. Respond to community needs using innovative design strategies to shape future growth in Industrial Manchester, provoking future discussion and negotiation between local authorities and developers 2. Develop a general vision for the neighborhood s new development and its future open space system 3. Set aspirations and articulate stakeholder goals for new development and open spaces in Industrial Manchester 4. Promote the use of placemaking strategies Yessenia Revilla 2

10 SECTION I: IPLACEMAKING 3 Yessenia Revilla

11 INTRODUCTION TION I: 4

12 The Client INDUSTRIAL MANCHESTER: Urban DeSign Framework 2014 The Industrial Manchester Urban Design Framework was requested by the Richmond Department of Planning and Development Review and also fulfills the requirements of the Master of Urban and Regional Planning program in the L. Douglas Wilder School of Government and Public Affairs at Virginia Commonwealth University (VCU). The client, the Richmond Department of Planning and Development Review, supervises building and development in the City. The mission statement of this department is to create and maintain the best quality of life for Richmond's citizens, businesses and visitors through planning and enforcement services that increase the built and natural environments of the city (City of Richmond 2013). While this plan was created for the City of Richmond, its outcomes also represent the input of local stakeholders and residents. A series of separate meetings for different interest groups were held, not only to have more productive meetings, but also to reach consensus. Manchester Alliance, the local neighborhood association, was a partner in driving the development of this document. Manchester Alliance, founded in 2007, is a community of homeowners, residents, business owners and developers promoting the balanced growth of Old Manchester. Common interests of the Manchester Alliance include, but are not limited to, the following principles: 1) to support innovative, responsible development that is architecturally inspiring, sustainable and appropriate in scale and use; 2) to be advocates for the integrity of mixed-use and public amenities, while respecting the history of the neighborhood through quality renewal and restoration; 3) to endorse diverse, social, cultural and economic growth through a collaborative effort of area property owners and the City of Richmond; and 4) to ensure a safe and inviting environment by means of enthusiastic communication among area property owners and the City of Richmond Police ( Figure 1(top): First Client Focus Group (01/10/2014) Figure 2 (bottom): Meeting with Manchester Alliance. City representative explaining traffic impacts in Manchester (03/13/2014) 5 Yessenia Revilla

13 The Manchester Alliance participated in a survey to prioritize challenges. Three areas of expenditure were prioritized: 1) Public Open space; 2) infill development; and 3) the architectural character of the neighborhood. For instance, one of the stakeholders mentioned, I am concerned that the execution of redevelopment may not be the stakeholders vision for the neighborhood, referring to the new buildings in the old Reynolds Company plant. One of the residents said, I miss seeing kids playing in the street, referring to the neighborhood he used to live in before moving to Industrial Manchester. He also pointed out families do not move to Manchester because of the perception of crime. Other main points mentioned by residents during the meeting and while walking on the street were the lack of community events and the need for a grocery store as important elements to attract families and long-term residents. Clearly, residents are conscious of the community s deficiencies and problems. With a collaborative effort a list of needs will be created but, most importantly, this document will discover the community s capacities and assets. For that reason this approach of understanding and mapping the community s capacities, abilities, and geographic attributes is one of the main strategies in the process of Industrial Manchester regeneration (Kretzmann and Mcknight 1993). Purpose The Richmond Department of Planning and Development Review (the client) has commissioned the Industrial Manchester Urban Design Framework to provide a model for re-defining areas in the City of Richmond (areas never intended for residential or a mix of uses into a neighborhood). This model generates new neighborhood choices, provides for potentially new businesses and spurs additional new investment. The document accomplishes this goal through identification of an integrated community vision, and then applied to Manchester's land use potential to promote sustainable, high-quality development while improving the public realm, inspiring walkability, fostering a strong mix of uses and creating a strong sense of place. The seeds of the Industrial Manchester Urban Design Framework began as a neighborhood plan, stressing Industrial Manchester s mixed-use character. However, plan participants quickly recognized (during the first client focus group) the need of a visual resource to guide redevelopment in Industrial Manchester (see Appendix A for meeting attendance). There is a need for a document to help investors (both private and public) visualize future positive solutions for new development and guide owners, developers and local authorities as they repair and rebuild industrial buildings. As the client points out, this is particularly critical on parcels in which there are no buildings, so the new Manchester can be a dynamic blend of historic preservation and new construction. Yessenia Revilla 6

14 Relationship to Other Planning Efforts The Richmond Department of Planning and Development Review requires a document that is comprehensive of interests and needs of their community, which also takes into account the review of latest planning efforts. The three latest plans in which Industrial Manchester has been included were evaluated: first, The Richmond Downtown Plan (2009). This latest planning effort has expanded the boundaries of Downtown to the north, east and south. Due to this expansion, Industrial Manchester to the south was incorporated into the Downtown Plan in Consequently, Downtown shared the same vision with Industrial Manchester to create a place that is more walkable and enjoyable for residents, visitors and workers. Second, The Richmond Riverfront Plan (2012), another important document including the riverfront of Industrial Manchester in which the City is trying to fully utilize both the north and south banks of the James River, suggests more commercial and recreational uses. Third, Manchester Area Transportation and Land Use Study (2013) was also evaluated. The intention of Industrial Manchester s Urban Design Framework is to integrate previous city planning efforts into a comprehensive, design-based strategic document that is informed by rigorous stakeholder input. In addition, important documents such as RVAgreen: A Roadmap to Sustainability (2011) and Green Infrastructure Assessment Phase 1: A Green Print Pilot Program for Richmond (2010) were reviewed to incorporate sustainable principles in this document s recommendations. Figure 3: Richmond Downtown Plan (2009) Figure 4: Richmond Riverfront Plan (2012) 7 Yessenia Revilla

15 Figure 5: Map of the Study Area Study Area Industrial Manchester is generally bound by the James River to the north, Maury Street to the south, Interstate 95 to the east and Commerce Road to the west. For the purpose of design analysis the boundaries have been extended as shown in Figure 5. It is important to mention the extended boundaries because in an urban design analysis if a boundary is defined by a street, both sides of the street should be included, recognizing that a street's character is defined by the sum of both sides. Yessenia Revilla 8

16 State of the Art INDUSTRIAL MANCHESTER: Urban DeSign Framework 2014 The Industrial Manchester Urban Design Framework (IMUDF) represents the collaborative effort of the client, residents and stakeholders. This document has been conceived and guided entirely by input and reaction from the client, neighborhood association and stakeholders of the community. Individuals, group meetings, surveys, interviews and man-on-street encounters served as essential points of data collection. As this document developed, a list of the most mentioned words by the client and local members was created. From this list the three words most used in the process were transformed in guiding principles in order to meet the desires, needs and vision of Industrial Manchester community members. Guiding Principles The Industrial Manchester Urban Design Framework is grounded in three guiding principles around which general and specific recommendations are based. These guiding principles help to ensure new development and open spaces not only contribute to an attractive neighborhood environment, but also support economic development goals. These goals include: generating activity, leveraging new investment and retaining and attracting business and residents. These guiding principles are: Connectivity Placemaking Density 9 Yessenia Revilla

17 Connectivity A connected and integrated approach requires all partners work together. By working together partners can sort problems and develop project ideas collaboratively in order to share ownership and stimulate commitment. Connectivity also applies to the pattern of streets, creating a permeable environment that increases accessibility not only by car, but by foot and bicycle, too. Many communities developed almost entirely towards the car after WWII. Today, many short trips that could be made by other modes are made by car because of poor connectivity. Improving connectivity implies the creation of complete streets. These streets are designed to serve all categories of users. Complete streets are not only transportation channels but public gathering places in their own right. Placemaking Place is not only important in terms of function and physical form, but also in terms of people s perceptions. Each project should make a positive contribution to the identity and quality of the neighborhood. The placemaking approach re-imagines public spaces as the heart of every community. Rooted in community-based participation, placemaking involves the planning, design, management and programming of public spaces ( The framework and philosophy of placemaking grounded when visionaries like Jane Jacobs and William H. White offered innovative ideas about designing cities that catered to people, not just to cars. They advocated for creating lively neighborhoods and inviting public spaces. Density In shaping future growth and change, we must consider density principles and rules that not only enhance the existing landscape but also add new elements, building upon area s physical and historical context. Communities rarely understand what density thresholds, usually expressed in dwelling units per acre, actually look like or what implications are for community character. One important strategy is to educate communities by analyzing, describing and illustrating (through digital models or other visual tools) the actual densities of their neighborhoods, often higher than what is being proposed. Yessenia Revilla 10

18 Three plans were selected as great examples to review for this document: The Central Corridor Plan (2013) in San Francisco offers a study in a similar setting to Industrial Manchester. It is a recent plan with several components applicable at both levels: neighborhood and street. The plan was launched in February 2011 as a community-based planning effort. Consequently, outcomes of the plan represent the strong collaboration of community members, stakeholders and relevant city agencies. To ensure community input was incorporated into the Plan, a number of community meetings, walking tours, storefront charrette, community surveys, public workshops and public hearings were held. All led to the following vision: To support positive change along and around the Fourth Street transit spine, while maintaining SoMa s [South Market] diverse social and economic mix. Although the plan began focused on transit-oriented development, planners and stakeholders realized transportation changes needed to support growth, including high-quality architectural design of the infill fabric. This appears an excellent example to follow, as it synthesizes a number of past and current efforts of the area by providing a comprehensive approach and overlapping The Central Corridor Plan s recommendations to previous planning proposals. The South Lake Union Urban Design Framework (2010), South Lake Union (SLU) is a neighborhood of small industry and auto-oriented businesses, with mostly low-density, moderateincome housing in Seattle. South Lake Union has been undergoing major redevelopment in the last ten years to high-density commercial, mixed-use and multi-family buildings. This is a very important document to review as SLU is one of the few neighborhoods in the country with LEED-ND status the LEED standard for sustainable neighborhoods. LEED (or Leadership in Energy and Environmental Design) is a sustainability rating system coordinated by the U.S. Green Building Council (USGBC) to assess the environmental effects and footprint of buildings. LEED-ND takes the same principles and applies them to a neighborhood scale. Building height and bulk are among the most contentious topics in SLU planning. Recommendations address two aspects of building form: spacing of towers (buildings over 85 tall) and height of podiums (portions of buildings below 85 ). Although some part of the community did not agree with placing towers at the lakefront, the consensus decided they should be limited to no more than one per block. Figure 6: Central Corridor Plan (2013) Figure 7: South Lake Union Urban Design Framework 11 Yessenia Revilla

19 At a local level one important document to review is: The Industrial Manchester Master Plan (2008), a Studio II document for the Master of Urban and Regional Planning at VCU written by Tom Phan. Phan s approach to the plan provides an examination of physical characteristics within the study area, outlining both assets and liabilities. Next, he organized recommendations and implementation in the following individual components: 1) Land Use, 2) Circulation and 3) Urban Design. Recommendations are intended to work in conjunction over the long term in order to accomplish the plan s goal, to create Industrial Manchester as an area that features a wide range of land uses, provides a strong sense of place, and is a vibrant and sustainable community. Even though his study uses data from 2000, this document collects previous studies in the area that could be used to see how recommendations for the neighborhood have been changed or adapted for the times. Phan s outcomes are very comprehensive and he emphasized integrating the study area into surrounding neighborhoods, identifying gateways and having Hull Street, Commerce Road and Maury Street, which are the boundaries of Industrial Manchester, as major commercial streets serving the area. Many changes have occurred since Phan s report and The Richmond Downtown Plan were completed, the single most important change is that zoning in the district is now more geared towards mixed-use development; and not so much oriented to the historic industrial uses, pointed out one of the Manchester Alliance representatives (see Appendix A for the residents survey). Figure 8: Industrial Manchester Master Plan (2008) Yessenia Revilla 12

20 Approach and Methods INDUSTRIAL MANCHESTER: Urban DeSign Framework 2014 As planners, we must take into account many considerations when approaching a neighborhood that reflects conflicts between private and public interests such as Industrial Manchester. Population projections, existing uses, land demand projections, land opportunities and constraints, property rights, economic development, and ethical principles are just some of the interests that may arise in the discussions, interactions and analyses. The proposal design and recommendations must be sensitive to these considerations. Some of the questions that need to be asked include, but are not limited to: How in a land-locked city do we re-define and revitalize some areas to generate new neighborhood choices, provide for potentially new businesses, spur investment, help grow the tax base of the city and is sustainable over the next decades? This question was brought by the client and is considered the driving question of the document, defining the kind of recommendation needed to satisfy client expectations. Land-Locked refers to Industrial Manchester and its unlikelihood to grow geographically, thus having to grow economically within the current land area. What is the history of development in Industrial Manchester? Understanding the distinctive aspects of the Industrial Manchester s heritage will ensure character of the community will be preserved throughout the plan s recommendations. How have planning tools (zoning and land use pattern) affected the existing appearance, configuration and functionality of the neighborhood? Analyses of zoning and land use represent a primary component of the technical analysis for this document. This question, however, brings a set of other questions that need to be answered, such as: Does current land use need to be redefined to accomplish the goal of this document? What are the zoning and/or ordinance amendments that should be proposed in order to reach the goals and objectives of this document? What local incentives, other than tax credits can be used by local government to ensure redevelopment while enhancing the historic character of the area? Historic tax credits, while having fostered reinvestment in Manchester, have little effect on providing urban design elements associated with vibrant streets, transparency, permeability, pedestrian scale, open space, etc. A new model of incentives needs to be created without historic tax credit restrictions in order to create a livable and vital neighborhood. Historic tax credits have limited the potential of Industrial 13 Yessenia Revilla

21 Manchester enhancements, according to stakeholders, a second generation of tax credits needs to be created, pointed out one of the participants in the first client focus group (refer to Appendix A for details of the first client focus group). Aside from the Riverfront area as a future public park along the James River, what other areas are ideal for establishing public open spaces for the neighborhood? The lack of public open spaces is evident in Industrial Manchester. Both the client and residents concluded that public open spaces such as civic plazas, pocket parks and walkable streets are vital in order to have a livable neighborhood. In addition, the most common comment of residents during development of the Downtown Master Plan was the need for public gathering spaces within the central blocks or central streets of Industrial Manchester. Questions related to the lack of public open spaces are: What planning tools can we use to incorporate public open spaces in the neighborhood? What is the density necessary to create open spaces within the neighborhood? Is there any strategic building or intersection in which innovative urban design principles can be applied to show developers future possible solutions, without tax credit restrictions? Specific locations will be provided by the client and residents. What are the assets or resources available in Industrial Manchester? Discovering neighborhood assets and mapping these assets allows communities to rebuild from the inside out (Kretzmann and Mcknight 1993). Asset mapping is a collaborative exercise that helps create a map of resources available in a specific community. This document will create an asset map with the collaborative effort of residents and stakeholders. Ideally a complete picture of the area s strengths and needs is necessary when addressing the topic of connecting the community with adjacent neighborhoods, the creation of places and increasing density. In addition, this document defined assets as people and places that are or could contribute to enhancement of Industrial Manchester. Information to answer these questions will be collected from available documents such as local and regional comprehensive plans. Information from various public agencies such as The Richmond Department of Parks, Recreation and Community Facilities, Virginia Department of Conservation and Recreation, the Department of Public Utilities of Richmond, the Police Department of Richmond, the Department of Planning and Development Review, City of Richmond GIS data and the latest US Census Bureau. Other secondary sources such as historical books will also be considered for review. As mentioned previously, input from stakeholders and residents will be a key driver for this document, thus surveys, community meetings, individual interviews, site visits, local tourist tours (such as the floodwall) and oral histories are techniques that will be used to collect data. This combination of technical analyses with the participatory processes allows having a better understanding of the social, economic, political and historical influences in Industrial Manchester. The analysis of this data will be presented in maps, graphics, charts and pictures to provide visual understanding of the document. Yessenia Revilla 14

22 INDUSTRIAL MANCHESTER: Urban DeSing Framework Plan Road Map INDUSTRIAL MANCHESTER: Urban DeSign Framework 2014 I: INTRODUCTION II: RESEARCH III: VISION IV: APPENDIX The Industrial Manchester Urban Design Framework is organized into four sections: Introduction, Research, Vision and Appendix. The Introduction provides context of the study area, describes the purpose of this document and defines concepts that guide its creation. In addition, it explains how contemporary planners typically address similar situations and identifies three comparable plans that are guiding the development of this document. The Research section contains an analysis of existing conditions (moving from macroscale to micro-scale: from the neighborhood to the architectural level) including demographic, zoning, land use, topography, desirable views and current development trends, as these are factors that matter when making planning and design decisions. This section also includes a list of assets and challenges together with an asset map of the study area. The Vision section contains the vision for Industrial Manchester through goals, objectives and strategies. This section is organized in three guiding principles: connectivity, placemaking and density. This section also provides a main concept for the neighborhood, reinforcing its character with established attributes such as natural settings, relation to the river and history. In addition, this section identifies key buildings, intersections or specific nodes to visualize what these places would look like if appropriate and innovative design solutions were applied. These buildings were selected during the development of the first part of this plan and represent the second generation of historic tax credits for the Industrial Manchester. ROAD MAP Finally, the Appendix contains the resources list, any additional analysis made during the planning process as well as the result of the residents, stakeholders and local authorities meetings, focus groups and surveys. 15 Yessenia Revilla