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Table of Contents
A. Holy Cross Neighborhood
Location and Geographic Boundaries
Recovery Vision and Goals
Planning Process and Neighborhood Participation
Planning Efforts Pre-Hurricane Katrina
D. Planning Approach
Key Issues
Opportunities
Basic Planning Assumptions
E. Plan Components
Principal Redevelopment Strategies
Rebuilding Scenarios
Housing
St. Claude Commercial Corridor
Waterfront Mixed-Use Zone
Light Industry
F. Project Priorities
Project Priority Phasing
Project Priority Assumptions
Project Priority Funding Matrix
G. Strategic Interventions
Recovery Vision and Goals its rich cultural and economic diversity. in restoration programs that utilize • Establish a rational and equitable timetable Neighborhood had many established
contemporary green design standards. for re-building community based organizations including the
The principal objective for the city-wide The early recovery of this neighborhood is Supplemented by an environmentally • Incorporate the best ideas agreed upon in Holy Cross Community Development
Rebuilding Plan is to “work with the essential as a symbol of the impending rebirth sustainable infill housing strategy and previous studies, including the New Century Corporation and the Holy Cross Neighborhood
neighborhoods to develop revitalization plans of the entire Lower Ninth Ward. And with a combined with the upgrading of the streets New Orleans Master Plan, that remain Association among others, the forced
that are rational, thoughtful, can be high percentage of rental units, the Holy Cross and utilities, the rebuilding of the Holy Cross relevant today. evacuation of the neighborhood and
implemented, and formed into a citywide Neighborhood can provide more immediate Neighborhood will offer important examples • Acknowledge and build upon the subsequent long period of abandonment
recovery plan for submission to state and housing opportunities to former residents who for the recovery of the entire Lower Ninth Neighborhood’s history and sense of limited the participation in the planning
federal funding agencies.” To this end, the want to return to the Lower Ninth but will need Ward. community. process. The Holy Cross Neighborhood
Rebuilding Plan established a vision for the more time to rebuild in the more heavily • Develop a plan that not only addresses Association noted that all but 60 of the
recovery and a series of goals that serve as the damaged areas to the north. Some Common Goals for Holy problems created by Katrina but also those neighborhoods 6,000 residents fled the City
4 foundation of the Plan. Cross/Lower Ninth Ward identified before the storm. after Hurricane Katrina.
Several neighborhood groups are participating • Develop a plan for a Sustainable Recovery • Establish a planning process that involves as
Vision many neighborhood residents and Those who have remained appear determined
stakeholders as possible including former to rebuild utilizing sustainable design and
Although the Holy Cross Neighborhood residents that have been relocated. restoration practices. The recovery plan
experienced significant damage, its location on • Implement infrastructure improvements that provides an overall framework for the
the natural levee of the river spared it from the provide residents and property with the restoration of the Neighborhood. Within that
/HJHQG
levels of devastation from Hurricane Katrina maximum possible protection from future framework the Plan advocates for the infill and
and the resultant storm surge that flattened natural disasters. new construction that is innovating, utilizes
much of the rest of the Lower Ninth Ward. • Create new economic and cultural activities sustainable design principles, is affordable and
Most of the Neighborhood's assets remain in for neighborhood residents and visitors that is compatible with the historic scale and
tact including a rich architectural history, intact may be attracted to the Lower Ninth Ward. character of the Neighborhood.
infrastructure and a balance of land uses that • Strengthen the social, physical and economic
are stable and sustainable. It also occupies a connections between the Lower Ninth Ward A series of highly publicized community
prominent location on the Mississippi River with and its neighboring communities meetings beginning in early May at the Holy
viable industrial activity. A major arterial (St. • Improve transit connections and service Angels Church have been held with some
Claude) provides direct access to downtown to reliability. residents traveling hundreds of miles to
the west and to St. Bernard Parish to the east. • Expand recreational opportunities for all age participate. In addition to the Holy Cross
groups. Neighborhood Association and the HCCDC,
Holy Cross is also a mixed income 6W%HUQDUG • To the extent possible, restore and groups such as the Neighborhood
3DULVK preserve the Neighborhood’s historic and Empowerment Network Association have also
neighborhood with housing that serves a wide
range of incomes. These factors make earlier cultural assets. been involved in the planning process and have
recovery more likely. Repopulation of the Holy been making residents aware of opportunities
Cross Neighborhood should not be as long nor Planning Process and Neighborhood to rebuild. The plan reflects input from these
should it require as many resources as other ,EGEND Participation residents and organizations that have
areas of the Lower Ninth Ward. However, it 0LANNING $ISTRICT generously given time and energy to the
still will need substantial assistance to maintain
Although prior to the storm the Holy Cross planning process.
-ETERS
City of New Orleans
Neighborhoods Rebuilding Plan
Population Characteristics neighborhood is not well served by retail which minor degree on the eastern end of St. Claude. Andrew Pete Sanchez Community Center and zones on the riverfront. A summary of the
is limited to automobile related service Industry on the River has declined as the Martin Luther King, Jr. Magnet School both zoning categories is as follows:
Although the Holy Cross Neighborhood is part of establishments, convenience retail and fast food restructuring and consolidation of port located on N. Claiborne, the reuse of a
a Lower Ninth Ward clearly in decline and one of establishments mostly located on St. Claude operations has shifted maritime industrial uses significant portion of the Holy Cross College for RD –Residential Two Family Zone that allows
the poorest areas in the City, it was more stable Avenue. to areas better suited to accommodate a public purpose would be of interest to the detached and attached two family units
than the rest of the Ward (Planning District 8). contemporary shipping needs (Riverfront Vision Neighborhood residents. The abandoned including townhouses.
While the Ward showed a population decline of Industrial uses in the Holy Cross Neighborhood 2005). However, the City and community Semmes School is also a potential resource as a RM – Residential Multi-Family Zone that allows
18.3 % from 1980 to 1990, Holy Cross had only are located primarily on the waterfront and to a appear to have agreed upon a unified vision of community facility. low rise and mid rise housing with a
a 6.2% decline. The Holy Cross Neighborhood the waterfront’s development potential as a maximum height of 75 feet.
also had a more diverse population, 77% African mixed-use residential, commercial, and Existing zoning follows the current low density RO - General Office in Residential Zone
American versus 90% for District 8 as a whole. entertainment destination. residential land use pattern with commercial C-1 - Commercial Zoning allowing low density
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Prepared by: The City Planning Commission
Source: City of New Orleans – 1999 Land Use Plan March 2004
0 0.45 0.9 1.8
Mil MAP 3
Mississippi River Levee looking West
City of New Orleans
Neighborhoods Rebuilding Plan
N. Claiborne Avenue Bridge over Industrial Canal St. Claude Avenue Delery Street Playground
B-1 – Business of the district with this substandard street Desire trolley line on St. Claude to St. Bernard Recreation and Open Space Claiborne Avenue at the foot of the bridge as
LI - Light Industrial system for the foreseeable future. Parish. Concept plans for a “Crescent City Although the Holy Cross Neighborhood has the location for the Katrina Memorial Park.
HI – Heavy Industry Express” that would provide regional service on direct access to the Mississippi River levee for
The 2004 Transportation Master Plan proposed the N. Claiborne Corridor are also being open space uses, the neighborhood overall lacks Housing
Transportation the extension of bike routes through the District developed. These mass transit lines are sufficient and conveniently located The Lower Ninth Ward Neighborhood is a
Two major arterials connect the Lower Ninth specifically along the River levee. The phased extremely important to the Lower Ninth Ward neighborhood parks and playgrounds to meet its diverse community of largely single family and
Ward to the rest of New Orleans and to St. plan would create bike lanes on Caffin linking to residents who have had to depend more on needs. Of particular concern is that two family homes with pockets of multi-family
Bernard Parish. Until the 1950’s, St. Claude Dauphine in the near term with long term automobile use for commuting because of the neighborhood children must cross a major dwellings along Egania and Burgundy. As the
Avenue (Route 46) had been the only connection extensions to Tupelo and Florida. unreliability of the bus service. A fixed light rail arterial (St. Claude Avenue) to reach area was originally part of plantations that were
back to the City and remains the major system with a set schedule coordinated with the recreational facilities. The problem is further later subdivided into smaller lots to
commercial corridor of the Lower Ninth. N. The Lower Ninth is served by an Inter-Parish bus Industrial Canal operations would reduce auto compounded by the corresponding lack of open accommodated truck farms, the neighborhood
Claiborne Avenue also provides east-west and local bus routes. Streets serviced include St. dependency and increase the desirability of space amenities in the rest of the Lower Ninth was not developed to the density of many of 7
connection through the district. Claude, N. Claiborne, Galvez and Rochblane. living in the Holy Cross/Lower Ninth Ward . Ward. The resulting damage from flooding has the central neighborhoods of New Orleans. The
Long term plans called for an extension of the resulted in opportunities to create some new farming community eventually gave way to an
These two roadways are subject to the open spaces in the Neighborhood. influx of African Americans and immigrant
operations of the Industrial Canal which often
results in delays and frustration for the Lower #
LEGEND Although the lot coverage here creates a much
laborers in the late 1800’s and with it the
development of single family and duplex homes
Ninth Ward residents resulting in some of the less dense neighborhood when compared to the
longest travel to work times in the City.
a
Æ Interstates or Expressways rest of New Orleans, the small sites with a high
in the shotgun style. Predominantly single
story, single family housing continued as the
NAL
Institutional uses
these plans are currently on hold pending a 2002 Master Plan that the existing parks needed
FORS
IBORN
E AVE.
ELO
Katrina needs. Interstate 10 can also be Proposed Improvements parks were needed. Increased disaffection with urban living,
TUP
Camelback House Example Single Shotgun Houses Example Double Shotgun House Example St. Maurice Church
Architecture/Historic Preservation Several individual structures warrant had hipped roofs and minor overhangs over the
recognition. The St. Maurice Church (1857) front. Styles evolved with varying roof styles
Initially developed as plantations with sugar was designed in the Spanish Mission style and including gable ends, with multiple bay singles
being the major crop, there are no remaining the church complex expanded in 1902 when the and multi-family houses know as shotgun
plantation structures that recall those earliest convent building for the Sisters of Perpetual doubles. Many of these styles can be found in
days. The community is still rich with turn-of- Adoration, designed by German architect Albert the Lower Ninth Ward along with adaptations
the century architecture and cultural facilities Diettel, was built. Two streamboat houses built like the Camelback.
contributing to its designation as a National on Egania Street by Captain Milton Doullut
Historic District. (1905 and 1913) also grace the district and
were designated as the city’s first two
8 Most current residential structures relate to two landmarks.
periods of development. The mid-1800’s saw
the development of Holy Cross as a farming Jackson Barracks
community with truck farms providing produce The Jackson Barracks, which constitutes the
to New Orleans restaurants and markets. Farm eastern border of the Holy Cross Neighborhood,
houses of Eastlake, Italianate and Bracket style is also on the National Register of Historic
were developed along with Creole cottages and Places. Originally established in the 1820’s, the
shotgun style homes. Barracks occupied its current site in 1834 and
includes a magnificent collection of antebellum
The farming community was transformed by the brick military quarters. The Barracks have been
influx of African American and immigrant used for a multitude of purposes over the years
laborers seeking jobs in the local industries. The including a staging area for the Mexican
development of the affordable housing and American War, Civil War Barracks for both Union
institutions to meet this growing population and Confederate Troops, billeting quarters for
followed. It was during this period that St. Lt. Col. George Armstrong Custer’s Company L
Maurice Church was constructed (1857) and of the 7th Cavalry and for the Buffalo Soldiers,
during a twenty year period from 1859 to 1879 and most recently as headquarters for the
the Holy Cross College was developed. Louisiana National Guard.
Additional expansion occurred in the early 20th
century. Shotgun Houses
Of particular note is the predominance of the
Most residential development in Holy Cross was shotgun style homes that can be found in the
complete by the late 1880 with the exception of Holy Cross Neighborhood. The Shotgun Style
some farm properties that were re-developed refers to a floor plan where all of the rooms are
much later to accommodate ranch style homes arranged directly behind one another. The
and apartment buildings. The neighborhood’s structures are wood frame with weatherboard
historic fabric has remained largely in tack. siding set on brick piers. The style originally
City of New Orleans
Neighborhoods Rebuilding Plan
Extent of Flooding Flood water depths ranged from over thirteen Winds from Katrina caused extensive damage to appears limited. Wind damage was extensive,
Hurricane Katrina created a 15 foot storm surge feet on the Florida and Tupelo Street corridors to nearly all of the overhead telephone and power especially to roofs and glazing. But few
that shot up the industrial canal and began several feet on St. Claude Avenue. lines, the street lights and street signs. Many structures in the area will have to be raised in
overflowing the levee walls by 5 feet. The trees were uprooted, particularly along the St. order to respond to the FEMA Base Flood
overflow led to a failure in the levee in two The Holy Cross Neighborhood owes its survival Claude and N. Clairborne neutral grounds. Many Elevation guidelines.
locations sending a torrent of water into the from Post-Katrina Flooding to the fact that it sits streets already in poor condition were further
Lower Ninth and destroying a majority of the higher in elevation than the balance of the undermined with buckling pavement and Commercial Property Damage
homes north of N. Claiborne and west of Tupelo. Lower Ninth Ward and was not flooded as sidewalks. Assessment
severely. St. Claude Avenue is the commercial corridor for
Property Damage Assessment the Lower Ninth Ward. All of the businesses Example of building assessed in Fair condition
The impacts from Hurricane Katrina and Rita on located along this corridor sustained
the Lower Ninth Ward Neighborhood were considerable flood and wind damage. Only a 9
unparalleled relative to the damage sustained in few of the convenience retail, fast food
other New Orleans neighborhoods. The Holy restaurants and automobile repair and servicing
Cross Neighborhood was far more fortunate as operations have reopened. The Walgreen’s
the housing stock received less damage. Where pharmacy on St. Claude remains closed and its
most of the structures north of St. Claude will future status will be a barometer of the progress
have to address the 1984 Base Flood Elevation of the Lower Ninth Ward’s recovery.
criteria before reconstruction can occur, the
buildings in the Holy Cross Neighborhood can
readily apply for building permits where repairs
should not exceed the 50% rule.
Jackson Barracks
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Building assessment from windshield survey conducted by design team June, 2006
City of New Orleans
Neighborhoods Rebuilding Plan
D. Planning Approach
Key Issues including its proximity to downtown, an neighborhood. • Significant Federal and State funding will be • Institutional uses proposed in the Plan
Several issues related to pre-storm and current infrastructure that for the most part remains required for infrastructure improvements. include new and rehabilitated schools, more
existing conditions directly impact the intact, a community that wants to rebuild and • A successful resolution of the Industrial Canal social service and other community facilities
reconstruction of the Holy Cross Neighborhood existing housing that can be restored and locks and crossings is crucial to providing better • State and Federal subsidies will be required to including healthcare facilities, additional open
and also offer opportunities to space future improved including the use of sustainable access Inner
for Lower
HarborNinthNavigation
Ward residents, help residents re-build and to attract private space and recreation facilities.
development. building technologies, methods and materials. improving Port activities and expanding job developer interest.
Canal Lock Replacement
opportunities. • The Mississippi River and New Orleans Canal
• Although Katrina and Rita caused a great deal Other opportunities include: Louisiana • New housing and most rehabilitated housing system represent both economic and
of damage to the community and its will have to meet Federal and State flood recreational assets.
infrastructure, there were many problems prior • The rebuilding of the Holy Cross/Lower Ninth elevation standards.
to the storm that resulted in the Lower Ninth Ward neighborhood presents opportunities to • Transit service to the Holy Cross/Lower Ninth
Ward (including Holy Cross) experiencing a improve the quality of life in the district including • Incentives will be provided to property owners Ward neighborhoods will be improved to relieve 11
significant decline in population. new options for infill housing at a variety of to rehab their homes consistent with the revised reliance on automobiles including the possibility
• Many housing units in the area were below income level. FEMA standards and the City of New Orleans of streetcar service.
contemporary standards and regularly Building Code.
experienced flooding due to an inadequate • Existing and future school buildings can be
drainage system. programmed to serve multiple functions • New construction in the areas of the
• The street system, already in poor condition, is including after school activity centers, spaces for neighborhood most damaged present new land
now in substantially worse condition. community meetings and events, public libraries, use options and opportunities to develop new
• Transportation connections are unreliable due computer resource centers and emergency housing types at varying densities.
to the Industrial Canal operations. Truck traffic shelters. • Investment in the waterfront areas not only
on residential streets in the neighborhood is a opens new opportunities for housing, • The rebuilding process should include the
source of friction. commercial activities and recreation but also introduction of commercial and light industrial
• Many of the existing neighborhood schools creates jobs and bolster tourism. uses to increase employment and economic
were in poor condition prior to the storm and development.
were under-performing academically. • The recently released $200 million rebuilding
• The neighborhood lacks adequate options for plan for Jackson Barracks provides additional
quality shopping and has limited public services. opportunities to bring needed services to the
• Opportunities for jobs and economic Lower Ninth Ward.
development within the Lower Ninth Ward are • The Plan assumes that it is possible to achieve
limited. Basic Planning Assumptions better visual and physical access to the Jackson
• Recreational opportunities are not evenly The planning and rebuilding of the Holy Cross Barracks.
distributed nor do they meet the needs of every Neighborhood will require considerable outside
age group. assistance. Key planning assumptions include: • The proposed plan is capable of a build-out of
• Strategic public sector investments including enough housing to attain (if desired) a
Opportunities strengthened levees, improved public • Accomplishing all of the recommendations population approaching the nearly 27,000
Despite the many problems facing the Holy transportation, new schools and parks and open proposed on the Sketch Plans will require. persons that lived in the area in 1980.
Cross Neighborhood, there are also many assets spaces can enhance current property values and
encourage new private investment in the • Rebuilding will require several phases.
Holy Cross Neighborhood, Planning District Eight
12
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The Community Participation Process combined
with a review of pre-Katrina planning 3ULPDULO\\QHZFRQVWUXFWLRQ/LPLWHGUHVWRUDWLRQ
documents highlighted many deficiencies in the ,QFUHDVHHGSDUFHOVL]HVZKHUHSRVVLEEOH
neighborhood and suggested potential
solutions. Following the initial May 13, 2006
,QWHQVLYYHQHZFRQVWUXFWLRQ1HZVWUUHHWSDWWHUQVDQG
community meeting, the planning team did
windshield surveys of the area and began to ODUJHUSDUFHOV3RVVLEOHODQGXVHFK
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generate planning ideas. On June 17, 2006,
initial “Sketch Plan” options were presented to
indicate how the Holy Cross and Lower Ninth &RPPH
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Ward neighborhoods could be redeveloped.
13
The Sketch Plans addressed a broad range of &RUQHU6
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issues including:
Limited Restoration - Substantial rehabilitation and Primarily New Construction - Major infill but limited Intensive New Construction - New urban pattern
substantial infill opportunities for rehabilitation
neighborhood. These strategies establish ownership, can be repopulated more quickly can be considered to allow for lower densities,
distribution, density and phasing for a wide with relatively fewer resources. Conversely, the more public open space, even alternative uses to
range of land-uses including housing, areas where the damage was more extensive support job creation or service functions.
commercial retail, institutions and light industry (in some cases total) the phasing plan assumes
necessary to create a healthy and sustainable will require a longer period of time to rebuild In the Holy Cross Neighborhood, early
community. and certainly at a greater cost. intervention measures would focus on creating
the pubic improvements necessary to support
Surveys were distributed at the community The four categories are as follows: private endeavors, i.e., creating mixed use
meetings to discern the residents’ priorities for waterfront zone. It is assumed that these
the rebuilding effort. Survey results predictably • High Restoration – these areas have the special projects would provide an additional
indicated that housing and restoration of utilities greatest number of existing structures that impetus for existing residents to reinvestment in
14 High Restoration - Substantial rehabilitation with minor infill were the highest priorities and consequently survived that can be restored under the new their properties.
received the most attention in this plan. FEMA guidelines. The few vacant parcels could
be developed with infill housing of a compatible Conceptual massing studies were prepared to
A review of the Lower Ninth Ward post- style or distributed to adjacent property owners represent the various approaches. The “Type A
6XUYH\ Hurricane Katrina (as shown on Figure Ground under the City’s Lot Next Door Program. – Substantial Rehabilitation with Minor Infill”
Diagrams) shows that the Holy Cross would apply to most of the Holy Cross
Neighborhood sustained less damage from the • Limited Restoration – These areas retained a Neighborhood.
%DVHGRQIHHGEDFNUHFHLYHGIURPWKH-XQH3UHVHQWDWLRQWKLVSODQFRPELQHVPDQ\RIWKHFRPSRQHQWVRIWKH6NHWFK storm this led to the design team’s initial critical mass of housing that can be restored,
3ODQV³$´DQG³%´LQFOXGLQJWKH7RZQ&HQWHU6SHFLDO:DWHUIURQW'HYHORSPHQW,Q¿OO+RXVLQJQHZVWUHHWSDWWHUQVDQG observation that the planning approach for the retaining the existing parcel and building
PRUHRSHQVSDFH$UHWKHUHDQ\FRPSRQHQWVRIWKLVSODQ\RXGLVDJUHHZLWKRUZRXOGOLNHWRVHHFKDQJHG"
Proposed Housing Initiatives
Holy Cross Neighborhood should focus primarily pattern. Infill housing on the vacant parcels
7KLVSODQHVWDEOLVKHVDVSHFLDOVWXG\DUHDWRFUHDWHD7RZQ&HQWHUDORQJ1RUWK&ODLERUQH$YHQXH'R\RXOLNHWKHLGHDRI on conservation, historic restoration and infill. could be either single or possibly multi-family The City, State and Federal Governments have
SODFLQJVKRSSLQJDQHZKLJKVFKRRODFRPPXQLW\FHQWHUDQGVHQLRUKRXVLQJLQDFHQWUDOORFDWLRQLQWKHFRPPXQLW\" Based on post-Hurricane Katrina conditions, it is typologies. Alternate uses such as corner created several funding and assistance programs
assumed that the Holy Cross Neighborhood can convenience stores might also be possible on to help Gulf Coast residents rebuild. These
7KLVSODQDOVRHVWDEOLVKHVDVSHFLDOVWXG\DUHDDORQJWKH0LVVLVVLSSL5LYHUWRFUHDWHDPL[HGXVHZDWHUIURQWGLVWULFWZLWK come back faster than the rest of the Lower streets carrying higher traffic. housing initiatives are particularly relative to the
FRQGRPLQLXPVDSDUWPHQWVOLYHZRUNVWXGLRVVSHFLDOW\UHWDLOHQWHUWDLQPHQWDQGOLJKWLQGXVWU\'R\RXOLNHWKLVLGHDRUGR Ninth Ward.
\RXWKLQJWKHULYHUIURQWVKRXOGUHPDLQH[FOXVLYHO\OLJKWLQGXVWU\DQGVKLSSLQJ" Lower Ninth Ward where little value may remain
• Primarily New Construction – These areas on existing properties.
7KLVSODQFRPELQHVWKHLGHDVSURSRVHGIRUWKH-RXUGDQ6WUHHWE\LQFOXGLQJDUHDVIRUERWKKRXVLQJDQGOLJKWLQGXVWU\'R Four potential redevelopment categories were retain few restorable properties but enough to
\RXDJUHHZLWKWKLVDSSURDFK" created and overlaid on the Lower Ninth Ward justify retaining the existing street and block This rebuilding plan has incorporated the public
including Holy Cross, to more definitively define patterns. Parcel sizes could be adjusted to programs to create a number of housing
7KLVSODQSURSRVHVWKDWWKHIXWXUHWUROOH\OLQHEHORFDWHGRQ1RUWK&ODLERUQH$YHQXHZKHUHLWZRXOGEHPRUHFHQWUDOWRWKH a range of redevelopment strategies from create larger lots for either larger single family initiatives. These initiatives are presented in the
/RZHU1LQWK:DUGDQGSURYLGHEHWWHUDFFHVVWRWKH³7RZQ´&HQWHU:RXOG\RXVXSSRUWWKLVUHFRPPHQGDWLRQ"
primarily restoration to more aggressive or some duplex housing. New parcels and overall policy element of the plan and issued
5HGHYHORSPHQWRIWKH/RZHU1LQWK:DUGZLOOKDYHWREHDFFRPSOLVKHGLQSKDVHV3OHDVHSULRULWL]HWKHSODQFRPSRQHQWV reconstruction. The levels of treatment applied buildings would still follow the neighborhood under separate cover. Indicated below is a
ZLWKRQHEHLQJWKHKLJKHVWSULRULW\BBB,QIUDVWUXFWXUH5RDG5HFRQVWUXFWLRQBBB+RXVLQJBBB7RZQ&HQWHUBBB6FKRRO to these categories were considered in the pattern with orientation perpendicular to the summary of these policies:
5HFRQVWUXFWLRQBBB&DQDODQG%ULGJH5HFRQVWUXFWLRQBBB:DWHUIURQW'LVWULFW development of a phasing plan. The phasing street.
plan assumes that the areas requiring primarily LOT NEXT DOOR
$UHWKHUHDQ\SODQQLQJLGHDVWKDWZHGLGQRWLQFOXGHWKDW\RXWKLQNVKRXOGEHJLYHQFRQVLGHUDWLRQLHLVWKHUHDQ\WKLQJZH restoration, particularly those portions of the • Intensive New Construction – These areas
IRUJRW"
The principal thrust of redevelopment programs
Holy Cross and Lower Ninth Ward have many blocks where no dwellings survived. and policies that encourage the speedy
Neighborhoods with higher incidences of home Here alternative street layouts and parcelization
City of New Orleans
Neighborhoods Rebuilding Plan
redevelopment of neighborhoods, must match Historically, dealing with contractors, permit again and again in our neighborhood meetings is capacity to undertake multiple home land value and therefore significant subsidy is
various government powers and financing tools inspectors, lenders, etc. has proved particularly the issue of how are properties that end up in redevelopment projects concurrently. required. In this way, the City will be using the
to the local housing and real estate market challenging for many elderly households. public ownership either through the adjudicated proceeds from public to private sales of lots in
conditions. Additionally, there are a substantial number of or buy back process are going to be resold in the All Neighborhoods Policy #2 – For those lots higher income neighborhoods to assist the
areas of the City including Lakeview, and areas market . While the Lot Next Door program that find their way into public ownership, the lots redevelopment of housing in the low income
A key question will be how to most effectively of Gentilly, among others, where rebuilding provides one method for recycling the lots in the should be sold back into the market at market areas.
encourage the redevelopment of homes and homes with damage in excess of 50 percent will market, there are going to be numerous lots that cost based on some form of Fair Market
residential lots that fall into public ownership. require total reconstruction at three feet above are not acquired by next door neighbors that are Value/Appraisal Assessment. In some Housing
grade or the Base Flood Elevations whichever is going to have to be sold on the open market. neighborhoods, the fair market value may be For the Residents of the Holy Cross
The “Lot Next Door” program is one of a series greater. Many of these homes will have to be zero or close to zero, however there needs to be Neighborhood, rebuilding their homes has been
of proposed housing policies which have been raised close to one story making them a difficult Assuming that there are few new regulations a formal process in place to determine the value the number one priority. This seemed highly
developed as part of the Neighborhoods housing product type for people with physical associated with developing housing (i.e. some of any given property. The principal reason why achievable as conditions in the Holy Cross 15
rebuilding plan and takes direct aim at some of frailties. requirement that certain units must be the public sector should not sell lots in the Neighborhood after the flooding created the
the particular market hurdles that slow the homeownership vs. rental) it is likely that the market at below market value is that the sale of impression that the flood damage was
redevelopment of many of these properties. Elderly homeowners are clearly a special case value placed on many properties for sale will a large number of lots owned by government at manageable and a more rapid recovery might
with specific needs, and currently there are no determine how quickly that property will be below market will naturally drive down the value be achieved. Rapid is a relative term and
In its simplest form the Lot Next Door program programs targeted to this subgroup of rebuilt for housing. Additionally, and realistically, of properties sold in private transactions. certainly the pace of funding, efforts to create a
will offer homeowners who are committed to homeowners. there are a variety of neighborhoods throughout safe environment for reinvestment and
redeveloping their homes the ability to purchase the City, where reducing the cost of a lot or unit Revolving Funds from Higher Income reoccupation (particularly completing the levee
publicly owned adjoining properties prior to A targeted elderly homeowner program is to essentially zero will not be enough to insure Neighborhood Property Sales to Properties in repairs) and the restoration of utilities has been
these properties being offered to any other needed which will allow elderly households to tie the redevelopment of the property. These are Neighborhoods where Values are Lower – There much slower than expected.
buyers. This option would be provided should their Road Home grant to senior specific elevator generally those neighborhoods prior to are a number of neighborhoods in New Orleans,
the property end up in public ownership either multi-story condominium projects. There has Hurricane Katrina where land values were quite where there were high concentrations of Once utilities and basic infrastructure services
through the adjudication process or through the been wide support for dedicated multi-family low and homes were not built unless there was blighted and adjudicated properties prior to are restored, the most significant issue that will
sale of the property to a public entity through senior housing product in many parts of the City, significant targeted public assistance related to Hurricane Katrina. Here the market value of affect the housing rebuilding process is
the Road Home or other public acquisition but particularly in areas where younger construction. many single family scattered properties is nearly complying with flood zone restrictions, both for
program. homeowners have aging parents living nearby. zero. In these cases, it will be necessary to rehabilitation and new construction. All
In some cases, there may be a need to increase Given varying market factors influencing the write down the construction cost of units so they housing requiring a building permit must
ELDERLY MODERATE INCOME the grant amount or provide low interest loans to redevelopment of housing in different are affordable to families below median incomes address the FEMA Base Flood Elevation
CONDOMINIUM ROAD HOME TIE-IN the household if there is a gap between the neighborhoods, there are a variety of strategies and in turn structure the redevelopment of these guidelines. A matrix of housing typologies was
What has become quite apparent through the value of the buyout (and insurance proceeds) that will have to be employed with regard to the properties. No matter the program or structure, prepared to show some of the rebuilding
neighborhood planning process is that senior and the market value price of the condominium sale of lots acquired through the acquisition in order to appropriately serve low and options and how each responds to critical
households have some of the longest ties to the unit. program on the open market. These strategies moderate income families, either in rental or for- contextural and design factors.
community and have been some of the include the following: sale housing, will cost significantly more than is
strongest voices for rebuilding and returning to EXPANSION OF HOME PURCHASER currently available in the system. Therefore,it Sustainable Design
the City. Sadly they also face some of the most ASSISTANCE PROGRAMS/ All Neighborhoods Policy #1 – To the extent is necessary to establish policies that recycle the For the Residents of the Holy Cross
significant challenges to redeveloping or LOT WRITE DOWN PROGRAMS - USE OF possible, multiple adjacent lots within blocks and sales proceeds from housing in neighborhoods Neighborhood, rebuilding their homes has been
rebuilding their homes. REVOLVING FUNDS lots within adjacent blocks should be sold to where the market value for housing exists to the number one priority. This seemed highly
One of the principal questions that has come up experienced for-profit and not-for-profit builders neighborhoods where there is little or no existing
who have the management and financial
Holy Cross Neighborhood, Planning District Eight
%XLOGLQJ7\SRORJLHV
achievable as conditions in the Holy Cross . 9. To mitigate blight, encourage stricter building
Neighborhood after the flooding created the 3. While preserving historic architecture, retrofit code enforcement by Neighborhood 1 (which
impression that the flood damage was buildings with energy-efficient improvements write citations) and Administrative Adjudication 6XVWDLQDEOH5HKDE
7\SLFDORIWKH³VKRWJXQ´VW\OHKRXVHSUHYDOHQWLQ
manageable and a more rapid recovery might be and install energy systems that use indigenous hearing officers (who levy and enforce fines). WKH/RZHU1LQWK:DUG&DQEHUHDGLO\DGDSWDEOH
achieved. Rapid is a relative term and certainly materials. WRPHHWFXUUHQW³&RGH´DQGE\UDLVLQJWRVWDQG
the slow pace of funding, creating a safe The ultimate objective is to hasten the DERYHWKH%DVH)ORRG(OHYDWLRQ%)(
environment for reinvestment and reoccupation 4. Continue educating residents about available restoration and repopulation of a historically
(particularly completing the levee repairs) and technology and how it could save them money significant neighborhood in a manner that 0RGXODU
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restoring utilities have exceeded anyone’s while saving the planet. Continue to bring in protects its historic integrity but also employs
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expectations. experts to help throughout the recovery new standards of Green Design and SODFHGRQSLOHVWRPHHW%)(HOHYDWLRQFRQVWUDLQWV
process. sustainability. The Lambert Advisory/Stull and 7KH\DUHDYDLODEOHLQDYDULHW\RIFRQ¿JXUDWLRQV
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16 Of particular note is the opportunity to improve Lee, Inc. plan recommends sustainable design GLVWULFW7KHPDVVSURGXFWLRQRIWKHVHXQLWVFRXOG
these historic properties by incorporating 5. Increase the mix of available housing with principles at the neighborhood wide level with DOORZODUJHDUHDVRIWKHGLVWULFWDOUHDG\VHUYHGE\
sustainable building technologies. A report on “resilient diversity” – for example, new options greater infill construction and increased density XWLOLWLHVWREHUHSRSXODWHGTXLFNO\
Sustainable Restoration prepare by Green such as co-housing. Provide a variety of as an example. The plan also supports
5DQFK+RXVH
Design Advocates in association with the Holy housing types to accommodate different income sustainable design and innovation at the level of %XLOWLQWKH¶VDQG¶VWKHVHDUHSUHGRPLQDWHO\
Cross Neighborhood Association includes levels and family types. individual building designs both restoration and VODERQJUDGHDQGDUHWKHUHIRUHQRWUHDGLO\
valuable guidelines that can maximize new construction. DGDSWDEOHWRPHHWQHZ)HGHUDODQG&LW\RI1HZ
2UOHDQVEXLOGLQJVWDQGDUGVWKDWUHTXLUHKRXVHEH
restoration opportunities. Recommendations 6. Provide information on financial assistance EXLOWWKUHHIHHWDERYH%)(2ZQHUVFDQREWDLQ
include: and federal/state/local tax incentives for A major goal is the restoration of structures in DSHUPLWWRUHSDLUUHVWRUHKRPHVWKDWKDYHQRW
purchasing energy-efficient products and an historically sensitive manner to maintain the VXVWDLQHGGDPDJHPRUHWKDQRIWKHKRXVH¶V
SUHÀRRGUHSODFHPHQWYDOXH
1. Use of long lasting materials in reconstruction technologies. integrity of the individual structures and the
and repair to reduce maintenance, long-term Historic Register District status.
costs and environmental impacts. Examples: 7. Contact suppliers of energy-efficient %)()RRW5XOH
)(0$VWDQGDUGVIRUFRQVWUXFWLRQLQÀRRGSODQHV
a. Salvaged Cypress appliances and building materials to determine St. Claude Avenue Commercial Corridor DVDGRSWHGE\WKH&LW\RI1HZ2UOHDQVGLFWDWHV
b. Cementicious wood (hardiboard) whether they will offer discount for bulk St. Claude and N. Claiborne are the main WKDWDOOQHZKRPHVEHEXLOWDPLQLPXPRIIHHW
c. Real Wood Shutters purchases. If so, aggregate the Ward’s needs – arteries of the Lower Ninth Ward with St. Claude DERYH%DVH)ORRG(OHYDWLRQ)RUWKH/RZHU1LQWK
:DUGPDQ\H[LVWLQJKRPHVRQSLOHVZLOOKDYH
d. Well Designed eaves and gutters and possible the needs of other parts of the City being the original crosstown corridor. As the WREHHOHYDWHGWRPHHWWKLVVWDQGDUGDQGDOOQHZ
e. Long tern roofing materials that meet – to place bulk orders. public “living room” of the neighborhood, it is FRQVWUXFWLRQZLOOKDYHWRPHHWWKLVVWDQGDUG
preservation codes the principal accessway into the Lower Ninth
f. Bamboo flooring, grown on vacant lots in the 8. Review housing recommendations from past Ward and the front door to the Holy Cross )RRW+LJK)RXQGDWLRQ±2QH6WRU\%DVH
neighborhood planning exercises and re-adopt those that neighborhood. The restoration of this corridor $QDOWHUQDWLYHWRWKHIRRWIRXQGDWLRQZRXOGEH
g. Concrete countertops remain relevant. For example, a and the neutral ground is critical. PDNHWKH¿UVWÀRRURIWKHKRXVHÀRRGUHVLVWDQW
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recommendation that emerged from a 1995 plan ZLWKVWDQGWKHÀRRGHYHQWDQGEHHDVLO\UHSDLUHG
2. Build for resilience, using materials and developed with the University of New Orleans St. Claude Avenue is also a major east west 6WDQGDUGFRQVWUXFWLRQVWLFNEXLOWRUPRGXODUFDQ
techniques that increase each building’s ability called for creating a Housing Renovation circulation corridor and carries a high volume of EHSODFHGRQWKHIRXQGDWLRQDERYHWKHUHTXLUHG
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to withstand and quickly recover from disasters Committee to help residents apply for regional traffic. It has been recognized in the
assistance.
City of New Orleans
Neighborhoods Rebuilding Plan
1999 Land Use Plan as the primary commercial Jackson Barracks could provide additional
corridor for the Lower Ninth Ward and should be incentives to restore the other residential and
redeveloped with neighborhood commercial institutional properties in this section of the
uses. Because it is a major arterial, regional neighborhood.
commercial activities have also been
recommended at the Tupelo intersection for A conceptual visualization of the Waterfront
example to meet the needs of the adjacent Mixed use Zone has been developed as a part of
communities. This mixed-use zone could also the plan.
provide multifamily housing above the ground
floor commercial to take advantage of proximity
to mass transit and other service located on the
corridor. 17
18
G. Project Priorities
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City of New Orleans
Neighborhoods Rebuilding Plan
and the level of public funding required to in conjunction with the street reconstruction as reconstruction; additionally other sources of
realize each project or task. The action plan an early action item. Street lighting should be cost identification included the Means Cost Data
was divided into three phases: Early Action Plan spaced every 100 feet and/or consistent with and our team’s professional experience inside
elements to be realized in a 1 to 3 year period; City of New Orleans Department of Public Works and outside of New Orleans.
Mid-Term Action Plans to be realized in a 1 to 5 standards.
year period and Long Term Action Plans to be No single source of funding or financial plan will
realized over 1 to 10 years. Street Trees – Street trees should be planted as be capable of dealing with the level of capital
part of the street reconstruction process. Street improvements needed for total redevelopment
Project Priority Assumptions trees were not included initially on the north- and reconstruction of all the projects. However,
Street Reconstruction – Almost all of the south streets since some of these are short the funding matrix included in this report shows
neighborhood streets require some level of work blocks and many do not have sufficient different funding sources that could be made
Some have damage dating back to flooding easements and/or lawn area to accommodate available for specific projects and it should be 21
associated with Hurricane Betsy. Many of the the trees. Neutral zone plantings will be expected multiple sources of funding will be
streets never had curbs and sidewalks and have included under the St. Claude Improvements. required in most cases. The ability to obtain
open trenches for storm drainage. these funds will rest with the City of New
Reconstruction of these streets could be Street Signs – Most of the street signs were Orleans. the State and the Federal Government
deferred in favor of roadways requiring even blown away by Hurricane Katrina. As a result, all and neighborhood groups and advisory
more immediate attention; however, this of the neighborhood streets would get new committees.
community has had to live with substandard street signs as part of the early action plan for
streets since long before Katrina. It would be public safety. Each matrix matches proposed projects with
appropriate to proceed with full reconstruction potential funding sources identified in the
of all of the streets as an early action item. This planning process. While not exhaustive in its
would also minimize impacts to residents Project Priorities Funding Matrix scope, it serves as a guide to where funds could
repairing their homes by not having to live What tie the Neighborhoods Rebuilding Plan to originate. A substantial financial commitment
through major disruption for a third time in 10 funding are the identification of specific projects by federal and state entities are a vital
years. and an estimate of initial cost (by project) for ingredient in the recovery effort and is needed
each neighborhood. The cost analyses are to provide the necessary economic
Bringing this neighborhood up to contemporary provided on an order-of-magnitude basis as to infrastructure to attract private investment
standards is also a goal of the reconstruction the scope and magnitude of the project necessary to create stable and vibrant
process and as such should include moving proposed and the investment required. As such, communities.
utilities underground. The Gulf Coast is prone to variations as to the scope of the project could
experience catastrophic storms that result in result in variations on the final cost of Each funding matrix, based upon consultation
significant wind damage. By locating utilities construction. with neighborhood residents through the
underground, the chances of power outages community meeting process, also ranked
would be substantially diminished. In the process of the cost analyses, projects based upon priority of need with
consultations were carried out with the City of regard to recovery: “Early Action/Critical”;
Street Lights – Street lights should be replaced New Orleans Public Works Department to “Mid-Term/Needed”; and “Long Term/Desired”.
identify general cost guidelines typically used for This ranking provides a general guide as to
Street conditions survey conducted by design team August, 2006 the calculation of street improvements and what community residents believe are the
Holy Cross Neighborhood, Planning District Eight
.%)'("/2(//$3 2%"5),$).'