BUTCHERTOWN
NEIGHBORHOOD PLAN
Acknowledgments & Vision Statement BUTCHERTOWN NEIGHBORHOOD PLAN
Adoption Date:
February 28, 2008
Acknowledgments: The Butchertown Neighborhood Plan is the result of efforts by numerous individuals, government agencies, and consultants. A plan that does not involve those it hopes to serve can not fully realize its potential or vision. For this reason, those with a vested interest in the future of Butchertown put forth their time, effort, and ideas in the creation of this Plan. It is important to recognize and thank those Task Force members who were an integral part of this process including: Andy Blieden Gayle Ciliberti John Cliff Clinton Deckard Leah Dienes Jim Goodwin Rebecca Matheny Kati Parrish Debbie Rosenstein Jim Segrest Norman Tasman Robert Willett Louisville Metro Planning and Design Services: Ken Baker, Planning Supervisor Chris French Steven Sizemore Louisville Metro Neighborhood Planning website: http://www.louisvilleky.gov/PlanningDesign/Neighborhood+Plans/
Prepared by:
2020 Vision Statement: In our vision of 2020, Louisville and Jefferson County is a community widely recognized for its high quality of life, sense of tradition and competitive spirit. Our children have inherited a livable, vibrant and economically diverse community. We have clearly recognized that the quality of life depends upon continued success in the economic marketplace and an ongoing commitment to the conservation of environmental resources which define our heritage and enhance the livability of our community. Community residents share a sense of place and take great pride in their established and emerging neighborhoods which are culturally and economically diverse. Residents are proud of their differences in heritage and culture. Economic and educational opportunities are available to all residents, in every neighborhood. Every neighborhood is a safe place to live. The community enjoys a rich fabric of urban and suburban areas, interwoven with environmental resources, accessible parks, open space and the Ohio River Corridor, all representing a heritage of natural beauty. A multi-modal transportation system serves and ties together the entire community. Unified government services enhance the ability of the community to speak with a single voice in matters related to the investment of human, environmental and capital resources. The Cornerstone 2020 Vision for Louisville and Jefferson County is nothing less than the best of the past merged with the best of the future, creating a community where all residents can grow and prosper.
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Table of Contents BUTCHERTOWN NEIGHBORHOOD PLAN
3 3 3 4
Adoption Date Acknowledgments 2020 Vision Statement Table of Contents
CHAPTER 4 - Mobility 26 26 28
Mobility Inventory and Analysis Summary of Neighborhood Concerns Mobility Recommendations
CHAPTER 1 - Introduction 7 7 7 7 7 8
Neighborhood Boundaries Neighborhood Background Process Overview Purpose of the Neighborhood Plan Purpose of the Historic Preservation Plan Butchertown Neighborhood Vision Statement
CHAPTER 5 - The Ohio River Bridges Project 32 32 34
Introduction to the Bridges Project Effects on the Butchertown Neighborhood Neighborhood Urban Design Opportunities
CHAPTER 6 - Implementation CHAPTER 2 - Neighborhood Identity
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10 12 13 13
Butchertown History Land Use/Urban Form Unique Neighborhood Features Demographics
CHAPTER 3 - Land Use & Community Form 17 19 22 22 22
Land Use Inventory and Analysis Existing Zoning Overview Summary of Existing Zoning Conditions Summary of Neighborhood Concerns Land Use Recommendations
36 37 41
Introduction Land Use Recommendations Table Mobility Recommendations Table
Appendix 44 45 46
Background Mapping - Study Boundary Background Mapping - Walking Survey References
Executive Summary 48 48 49 49 50 51
Acknowledgments Introduction 2020 Vision Statement Summary of Neighborhood Concerns Cornerstone 2020 Land Use Recommendations Table Cornerstone 2020 Mobility Recommendations Table
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INTRODUCTION
C H A P T E R
O N E
Introduction
Intent
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
This chapter provides an introduction to the Butchertown neighborhood relative to its past, and current trends shaping its future. An overview of the neighborhood planning process, those individuals instrumental in the Plan’s development, and the purpose of the Neighborhood Plan are also addressed. At the conclusion of the chapter, the neighborhood’s Vision Statement is included, which represents the overarching goal for the future of Butchertown.
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Introduction BUTCHERTOWN NEIGHBORHOOD PLAN
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SCALE 200 feet
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Introduction BUTCHERTOWN NEIGHBORHOOD PLAN
NEIGHBORHOOD BOUNDARIES
PROCESS OVERVIEW
The Butchertown neighborhood is located just east of downtown Louisville. It is bordered by the Ohio River to the north, I-65 on the west, Main Street to the south, and Mellwood Avenue and Beargrass Creek on the east. Butchertown shares its southern boundary along Main Street with the Phoenix Hill neighborhood.
This planning process was initiated by Louisville Metro Planning and Design Services and builds on recent historic preservation planning efforts as part of the Ohio River Bridges Project. Lead by staff from Planning and Design Services, a Task Force comprised of businesses, community leaders, and residents was formed and an initial meeting was conducted in November 2006. An Open House was held in March 2007 to introduce the general public to the neighborhood plan and the planning process to date. In July, residents and businesses of Butchertown had the opportunity to review an initial draft of the neighborhood plan. Following ongoing guidance by the Task Force and input from the general public, the plan and its executive summary were adopted by Louisville Metro Council on February 28, 2008.
NEIGHBORHOOD BACKGROUND As is discussed in Chapter 2, Butchertown has a rich history dating back to the late 1790s. In more recent times, the neighborhood has evolved from a primarily industrial area up until the 1960s into the truly mixed-use community today. Many historic residences have been restored over the years, and recent residential (infill) development has strengthened the image of Butchertown as a vibrant neighborhood in which to live. Story Avenue serves as the retail/commercial spine of the neighborhood, and development opportunities along Main Street/Mellwood Avenue will ensure that Butchertown remains an important part of East Downtown Louisville’s revitalization. A strong neighborhood association, along with the involvement of businesses and residents, have worked tirelessly over the years to preserve and promote the unique qualities of Butchertown. The flood wall and Beargrass Creek are two prominent features that have shaped or influenced (for better or worse) the neighborhood as well. The network of pedestrian-scaled streets creates a neighborhood that is easy and pleasant to travel for pedestrians and motorists alike. The Kennedy Interchange (“Spaghetti Junction”) is a major fixture of the urban landscape that Butchertown has struggled to coexist with over the last fifty years. As will be discussed in Chapter 5 of this plan, the reconstruction of this collection of interstates as part of the Bridges Project represents yet another challenge for the neighborhood as it sets out to define its future.
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PURPOSE OF THIS NEIGHBORHOOD PLAN The primary purpose of this planning process is to initiate a proactive approach to future development in the neighborhood. To do this in an appropriate manner, it is important to determine the strengths and weaknesses of Butchertown. Some of the major concerns of neighborhood residents include maintaining Butchertown’s strong identity as a diverse, mixed-use community, promoting the vitality of the business community, and enhancing the quality-of-life of its residents. Ultimately, this plan puts forth strategies to retain the cultural and historic character of Butchertown while simultaneously encouraging continued growth in the neighborhood.
PURPOSE OF THE HISTORIC PRESERVATION PLAN The intent of the historic preservation plan (HPP) was to provide a context to inform and guide the implementation of specific mitigation measures for Butchertown as a result of the Ohio River Bridges Project. The Project’s Record of Decision (ROD) and MOA stipulated the HPP focus on issues within Butchertown’s National Historic District boundary. The Butchertown HPP was developed in consultation with property owners, the Butchertown Neighborhood Association, the general public, pertinent Louisville Metro agencies, as well as local, regional and state
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Introduction BUTCHERTOWN NEIGHBORHOOD PLAN
government planning interests. The HPP refers to, and builds upon, existing studies and plans such as the Ohio River Corridor Master Plan, the Cornerstone 2020 Plan, and other documents addressing the neighborhood that have been adopted and/or referenced by Louisville Metro Government. The Beargrass Creek Watershed Report, developed under the guidance of Louisville Metro’s Metropolitan Sewer District, was also referred to regarding water quality issues along this important natural feature. The goals of the HPP include (1) identifying the unique characteristics, context, and historic resources of the Butchertown National Register Historic District and (2) recommending ways to protect and enhance these features. Many of the proposed recommendations represent an integral part of the long term viability and historic integrity of the Butchertown neighborhood. Particular emphasis is placed on the avoidance, minimization and mitigation of adverse Project effects.
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• Establishment of the necessary background information, analysis, goals, objectives, and policies to ensure the longterm vitality of downtown land uses, circulation issues, urban design features, and infrastructure. • Mitigation of the impacts of the Project on the Butchertown historic district. • Retention and preservation of historic and architectural resources within the district and surrounding context.
BUTCHERTOWN NEIGHBORHOOD VISION STATEMENT The future of Butchertown will be built on its rich history as it strives to attract new residents and businesses to the neighborhood. In an effort to maintain its authenticity however, Butchertown will also retain the variety of land uses, diversity of residents, and walkable neighborhood streetscapes that have served as the foundation for the Neighborhood’s vitality throughout its history. The Butchertown Neighborhood will not only strengthen its existing, unique characteristics, but also rebuild or renew those features that have been neglected over the years. Butchertown will re-establish its physical, historical, and cultural connections to the Ohio River by making the Beargrass Creek corridor a focal point, extending strategic streets to Waterfront Park, and highlighting prominent viewsheds of the Big Four Bridge. The Neighborhood will also partner with Louisville Metro to encourage strategies that return local streets to two-way traffic. Such an effort will not only create more pedestrian-friendly settings, but also serve as a catalyst for economic development. Story Avenue and Main Street represent the important commercial corridors linking the entire Neighborhood, and such initiatives will serve to reinforce their critical roles in the Neighborhood. Current and future development will respond to, and respect, the cultural, architectural, and natural features that give Butchertown its identity. Furthermore, the future vision of Butchertown - one of vitality and viability - will be based on cooperative strategies that encourage current and future residents and businesses to not only co-exist, but prosper and complement one another.
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NEIGHBORHOOD IDENTITY
C H A P T E R
TWO
Neighborhood Identity
Intent
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
The intent of this chapter is to provide an overview of the history and unique features of Butchertown. In addition to a brief history of the neighborhood, current demographics, land uses, and unique natural and man-made features are also summarized in this chapter. It is important these special features are highlighted and preserved to reflect the historical, cultural, and architectural integrity of Butchertown.
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Neighborhood Identity BUTCHERTOWN NEIGHBORHOOD PLAN
BUTCHERTOWN HISTORY Butchertown, like all of Jefferson County, can be traced back to the work of the Fincastle (County) surveyors, who came to the Falls of the Ohio area in 1774 which was then part of Virginia. Virginia Governor Lord Dunmore had given this group the task of surveying the area for those entitled to land because of their service in the French and Indian War (1756-1763). One of those surveyors, Hancock Taylor, surveyed what was known as Tract #3 of approximately 1,000 acres for himself. This area (Tract #3) includes what is now the eastern part of Butchertown today.
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Prior to the establishment of the Butchertown neighborhood, much of the area was farmland that was passed between several owners/families in the late1700s and early 1800s. Early records indicate that by 1796, Henry Fait owned approximately 115 acres as part of Hancock Taylor original land grant. In August 1796, Deed Books indicate there was a land swap between Henry Fait and David Barber that also included two mills. Henry Fait’s mill was located upstream of David Barber’s along Beargrass Creek. During this same time, Frederick Geiger purchased 382 acres on the “sinking fork” of Beargrass Creek from Edmund Taylor. Colonel Frederick Geiger was a veteran of the Revolutionary War, the 1811 Battle of Tippecanoe, and War of 1812. The Geiger family immigrated with other settlers from Maryland to Kentucky around 1781, traveling along the Wilderness Trail through the interior of Kentucky and north toward the Ohio River. They were part of a group of fifty people led by Jacob Funk, Geiger’s father-in-law. Initially, the Geiger’s settled in Bowling Green, and moved to Jefferson County within the year. In 1800, Deed Books indicate David Barber lost his land that included “one tract of five acres on Beargrass Creek including Barber’s Mill” to George Wilson. In May 1801, George Wilson sold the Fait-Barber property to Frederick Geiger. That same month, Geiger contributed money to build a bridge over Beargrass Creek along Bardstown Turnpike. A road was constructed from the Bardstown Turnpike north to the Ohio River. The orientation of this street is continued in the present-day street grid pattern throughout much of Butchertown. The
turnpike became the principal route for driving livestock to the Louisville market and to the port at Beargrass Creek for shipment downriver. It was during this period that Geiger petitioned the County for permission to erect a grist and saw mill on the Middle Fork of Beargrass Creek at the location of a previous mill constructed by David Barber. This mill was located near the Fait-Geiger brick home that still stands near the corner of present-day Frankfort and Story Avenues. Part of this home is reported to date from the 1790s and is likely the oldest brick structure in Butchertown. By July 1802, Geiger purchased an additional 164 acres near Towhead Island which gave him direct access to the Ohio River. That same year, the county granted Colonel Geiger a license to operate a public ferry from his landing. The Geiger family operated the ferry until approximately 1840. In 1808, Geiger deeded the riverfront tract to his son, Jacob, who oversaw the farm. Beginning in the late-1820s, Louisville entrepreneurs developed a network of turnpikes that reached out to the city’s agricultural hinterlands. Butchertown’s early growth was closely linked to Frankfort Pike and Shelbyville Road, corridors that connected Louisville to the interior, and the forks of Beargrass Creek. The presence of these roads attracted butchers and meatpackers to the Butchertown neighborhood, where they could intercept herds of animals being driven to market before they reached the urban core, where butchering had been banned. Together, these natural features and network of streets nearly enclosed the neighborhood and shaped its boundaries and defined its character. In 1827, Louisville annexed part of what is now Butchertown. At approximately the same time, German immigrant butchers begun to set up shops along Frankfort Pike and Story Avenue. They built homes fronting the street with small slaughterhouses at the rear of their properties, alongside Beargrass Creek. Farmers and drovers delivered their herds to the slaughterhouses, which processed the animals, and discarded the wastes into the nearby creek. Processed meat was then hauled to the wharves in Louisville for shipment to market by steamboat.
Neighborhood Identity BUTCHERTOWN NEIGHBORHOOD PLAN
The growth and success of the meatpacking industry led to the establishment of other industries in Butchertown, including tanneries, soap making, and candle making. Inns were opened to accommodate drovers, with associated pens and corrals to hold livestock. One of these inns, the Bourbon House, built in 1834, eventually became the Bourbon Stockyards. Until its closure in 1999, it was the oldest operating stockyard in the United States. The site was purchased by the Home of the Innocents to build a campus to care for needy and disadvantaged children, and provides other vital social services for the community today. Between 1834 and the Civil War, Louisville competed with Cincinnati for the title “Porkopolis.” In 1845, the city’s four largest slaughterhouses processed about 70,000 animals annually. By 1850, the city’s six largest plants processed nearly 180,000 animals per year. During the 1850s, Louisville was the nation’s second largest pork packing center, butchering over 300,000 hogs annually. After the Civil War, a number of factors combined to severely erode the city’s standing as a national meatpacking center. The gradual expansion of livestock production in the South, the development of the transcontinental railroad network, and the concentration of the livestock industry at new western railroad termini such as Chicago, Omaha, St. Louis, and Kansas City cut into Louisville’s shipping business and impacted the locally-based butchers. In the early twentieth century, Butchertown’s family-owned meatpackers faced increasing competition from large national packers who used mass production techniques. Indeed, by 1902, both the Swift and Armour corporations had established plants in Louisville. Local firms retained a significant share of the market, however, until well into the twentieth century. Another early influence on the neighborhood was local breweries and beer gardens like Woodland Garden. Created in the late-1820s, the garden was located at the east end of Market Street between Wenzel and Johnson Streets. It was a popular social setting, and one of only two open air public gardens in Louisville during the early-nineteenth
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century. By the 1860s and 1870s, entertainment at Woodland included horse- and foot-races, target-shooting, ethnic songs and dances, bowling alleys, a merry-go-round, and swings. However, the most popular form of entertainment appears to have been partaking of lager beer or wine; smoking cigars; eating sausage, cheese and pretzels, and listening to live music. Woodland was the last remaining garden in the area, finally closing in 1888. The location remained vacant until 1902 when houses were built on the site. Just as Butchertown benefited from its proximity to the Falls of the Ohio and the Frankfort Turnpike in the first half of the nineteenth century, the neighborhood also prospered because of its location near the northern terminus of the L&N Railroad during the second half of the century. With the rise of the railroad, more and more of Butchertown’s products were shipped by rail. Economic prosperity for the area’s meatpackers did not stop during the Civil War, as Louisville became the primary transportation and supply center for the Union Army’s western campaigns. In addition to the meatpacking industry, Butchertown’s German residents established factories and financial institutions, becoming increasingly assimilated into the mainstream society. As a result, identifiable German customs and traditions began to fade. By 1900, Louisville counted only about 48,000 residents who were either born in Germany or had one parent born in Germany. This amounted to less than a quarter of the city’s population, a decided decline from 1850. The Germanic influence on Butchertown culture began to fade as the local meatpacking industry diminished and the area’s German residents became increasingly assimilated. Sermons at local churches began to be conducted in English, as did classes in parochial schools. During World War I, anti-German sentiment caused many German institutions to downplay their German identity. This led to a further decline in the German character of neighborhoods such as Butchertown, whose residents sought to actively demonstrate their loyalty to the United States.
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Neighborhood Identity BUTCHERTOWN NEIGHBORHOOD PLAN
In 1931, Louisville’s new zoning laws designated the entire Butchertown neighborhood for industrial land uses. Following the devastating flood of 1937, many houses in the area were demolished. Housing stock in the neighborhood continued to deteriorate during the 1940s and 1950s as area residents moved to the suburbs. The construction of the interstate through the neighborhood in the 1960s led to further disruption and demolition within the neighborhood.
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Motivated by this construction, homeowners banded together to fight for neighborhood preservation. In 1966, they persuaded the city government to change the neighborhood’s zoning to partial residential. A new corporation, Butchertown, Inc., was created that purchased dilapidated structures in order to renovate them for resale. This resulted in the preservation of a number of historic buildings, as well as a more stable and energetic community. In 1976, Butchertown was listed on the National Register of Historic Places for its diversity of land uses, history, and architectural significance.
LAND USE / URBAN FORM One of Butchertown’s most distinctive characteristics is the diversity of the area’s land use and the close juxtaposition of residential, commercial, and industrial buildings. Within the neighborhood, residential, commercial, and industrial buildings of historic and architectural significance create a cohesive mid- to late-nineteenth century urban setting. The district’s boundaries provide clear dividing lines between areas of mixeduse, with substantial surviving historical fabric, and blocks that are either completely industrial-commercial in character or comprised entirely of post1950s construction. As is discussed further in Chapter 3, the Butchertown neighborhood is comprised of a variety of land uses, and will undergo a major transformation over the next ten to twenty years. The Waterfront Park expansion and Riverpark Place - a multimillion dollar residential development - are currently underway along the Ohio River, and there has been some redevelopment throughout the historic urban fabric of Butchertown. Regarding industrial land uses, several heavy industries remain along the Kennedy Interchange and the JBSSwift pork processing plant operates in the heart of the neighborhood between Story and Mellwood Avenues. There has been a resurgence of commercial activity along Story Avenue and there is a well-established mix of small-scale, commercial and light industrial uses along the western edge of the neighborhood (adjacent to I-65).
Neighborhood Identity BUTCHERTOWN NEIGHBORHOOD PLAN
UNIQUE NEIGHBORHOOD FEATURES
DEMOGRAPHICS
Butchertown contains a unique assemblage of natural and man-made features that provide a strong sense of place for the neighborhood. Two of the most prominent features in Butchertown include the floodwall and Beargrass Creek. The first phase of the floodwall’s construction began in 1948 and was completed in 1957 by the U.S. Army Corps of Engineers. The project was comprised of approximately 4 ½ miles of concrete wall, 12 ½ miles of earthen levee, and thirteen pumping stations, including the Beargrass Pump Station located just (north)east of Brownsboro Road along Beargrass Creek. Additional urban elements include the stone arch bridge spanning Beargrass Creek at Frankfort Avenue (the only remaining example in Butchertown built during the late 1800’s), and the WPA-era concrete bridges spanning Beargrass Creek. Also common throughout the neighborhood are brick walks and alleys, iron fences with stone bases, and limestone curbing.
The most recent demographic information for Butchertown is based on 2000 U.S. Census data. Approximately 760 residents live in Butchertown and of that amount, slightly more than 92% are Caucasian, with 3.7% of the population classified as African-American. This compares to Jefferson County’s population make-up of 77.4% and 18.9% respectively. Additional population and housing information includes: · approximately 26% of the population holds some form of college degree (Associate Degree or higher) · 10.9% of the population works in the manufacturing sector of the economy · median value of the 488 housing units in Butchertown is $72,834 · 30.9% of the housing is owner-occupied compared to Jefferson County’s rate of 60.9% · 52.7% of the housing is renter-occupied compared to Jefferson County’s rate of 32.9%
As noted in the previous section on Butchertown’s history, Beargrass Creek has had a tremendous influence on the neighborhood’s development over the years. Although there has been some recent efforts to capitalize on this asset (i.e. Butchertown Greenway), much of this natural corridor has been neglected over the years. Throughout this neighborhood planning process, residents stressed the importance of transforming this once-neglected part of Butchertown into a vibrant focal point for the community.
The unique, mixed-use nature of Butchertown is reflected in the fact that over 5,000 people work in the neighborhood on a daily basis. Over 100 businesses operate in Butchertown today, and of that number, eighteen have been established since 2006. The largest of these is the JBS-Swift plant which employs approximately 1,700 workers, making it the sixth largest employer in Louisville. This diverse collection of businesses represents a strong economic foundation for the community and a vibrant reflection of Butchertown’s rich urban fabric.
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Neighborhood Identity BUTCHERTOWN NEIGHBORHOOD PLAN
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LAND USE AND COMMUNITY FORM
CHAPTER
THREE
Land Use & Community Form
Intent
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
This chapter outlines existing land use and community form conditions within Butchertown. Based on this analysis and the input of Task Force members, recommendations are made to address areas of conflict and opportunities to redevelop strategic areas of the neighborhood. One of the key goals of these recommendations is to promote new (re)development that respects the traditional neighborhood scale and character of Butchertown.
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Land Use & Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
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Land Use & Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
LAND USE INVENTORY AND ANALYSIS An inventory of Butchertown’s existing land uses and development patterns is a critical component of this neighborhood plan. Such an exercise establishes the groundwork for subsequent recommendations consistent with established patterns of development, reflect the vision of neighborhood residents and businesses, and conform to the goals and objectives of Louisville Metro’s Cornerstone 2020 Plan. These findings are based on recent photographs of buildings and “windshield” (visual) surveys documenting existing land uses. There are five general categories delineating land uses in Butchertown including: · One and Two Family Residences · Multi-Family Residences · Retail / Office · Industrial · Public / Institutional In general, the Butchertown neighborhood is comprised of five distinct areas reflecting its diversity of land uses. For the purpose of this land use inventory, these “character areas” were developed based on several factors including similar land uses, common streetscape features, or influential circulation patterns. These five “character areas”, illustrated on the previous page include: 1) Residential Cores (3), 2) Main / Mellwood Commercial Corridor, 3) Central Industrial Area, 4) Western Industrial Area, and 5) River Road Corridor Of these five areas, the Residential Core designation is subsequently divided into three sub-categories. The following information briefly describes the characteristics or issues specific to each of these areas. Listed below are descriptions of each area.
1) Residential Cores The Butchertown neighborhood is comprised of three residential areas located at the eastern and western edges, and one centrally located in the neighborhood. Although each of these areas is primarily residential in nature, each contains unique features or elements that set it apart from the other residential areas.
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The Eastern Residential Core extends along Story Avenue from Interstate-64 to Brownsboro Road. This area contains a diverse collection of land uses including retail and office space centered around the intersection of Frankfort and Story Avenues, as well as single-and multifamily residences. Southeast of the Story Avenue corridor is a secondary collection of residences along Blue Horse Avenue which backs up to Beargrass Creek. This area also contains an access point to Beargrass Creek/Butchertown Greenway at the intersection of Brownsboro Road and Story Avenue. The Central Residential Core is comprised of a three-block area centered along Washington and Quincy Streets. Like the other residential areas in the neighborhood, there are a variety of land uses, but Saint Joseph’s Church along Washington Street is a formidable presence in the area. The commercial corridor of Story Avenue is representative of an intact urban street comprised primarily of original buildings that provide an effective buffer from the residential area directly behind this heavily-traveled street. A majority of new (infill) business development has occurred along this section of Story. This residential core’s parameters include Story Avenue to the south, Adams Street to the north(east), Interstate-64 to the east, and Cabel Street along the west. The Western Residential Core includes approximately a threeblock area along Washington and Geiger Streets. The boundaries
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Land Use & Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
include Washington Street to the south, the northern edge of Geiger Street, the eastern edge comprised of Johnson Street, and Shelby Street representing the western boundary. A diverse collection of residential styles is a strong feature of this area along with a variety of land uses that make this an active part of the neighborhood. This area has also experienced new residential infill development, and the planned $3 million redevelopment of the Wesley House into condominiums.
This creates a street setting with little foot traffic, and is not conducive to pedestrian activity. Around the Spring Street intersection however, there are several historic, Shotgun-style residences lining Mellwood in addition t o s o m e s m a l l e r- s c a l e commercial uses. Beargrass Creek runs parallel to much of Mellwood Avenue, introducing a unique natural setting into the neighborhood fabric. East of Brownsboro Road, Mellwood Avenue transitions to a two-lane, more scenic road lined with trees out to Zorn Avenue.
2) Central Industrial Area
4) Western Industrial Core
This industrial area i s c e n t r a l l y- l o c a t e d i n Butchertown and extends along the railroad from Beargrass Creek to the Kennedy Interchange. The area contains a variety of active industrial uses as well as several vacant or underutilized industrial buildings. The JBS-Swift Plant is also located within this area. West of the railroad along Story Avenue, there has been a general deterioration of the compact urban form found along the rest of the corridor. Original buildings have been removed over the years and replaced with outdoor storage lots and parking lots.
This western-most portion of the neighborhood extends from Washington Street north to Witherspoon with Campbell Street serving as the eastern edge. Although predominantly industrial, there are a couple of attractions of note in this area. The Extreme Skate Park is located near Hancock and Franklin Streets, and the Edison House is located at 731 Washington Street. Thomas Edison lived in this brick, double shotgun-style residence from 1866-1868 while employed as a Western Union telegrapher. Much of this area borders the existing Kennedy Interchange, and will be directly impacted by the Kennedy Interchange reconstruction as part of the Ohio River Bridges Project.
3) Main/Mellwood Corridor The Main Street and Mellwood Avenue corridor represents the southern edge of the Butchertown neighborhood and is comprised of a variety of land uses. At either end of this corridor, most of the buildings are one or two story structures containing industrial and some “heavy� retail uses.
5) River Road Corridor This area of the Ohio River riverfront is currently undergoing a major transformation as a result of recent development - both proposed and under construction. The final expansion phase of the Waterfront Park is
Land Use & Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
currently under construction, and will link the first phase (containing the Great Lawn) with the third phase upriver. The planned restoration of the “Big Four” Bridge into a pedestrian corridor linking Louisville to Jeffersonville will be the centerpiece of this final phase of the park. In addition to Waterfront Park, construction is currently underway for a condominium project along the riverfront called Riverpark Place. Located at the intersection of Frankfort Avenue and River Road, this thirty-acre site is being transformed into a multi-million dollar, mixeduse development overlooking the Ohio River. The realignment of the Kennedy Interchange south of its existing location, one component of the Bridges Project, will also create redevelopment opportunities between the relocated interstate system and River Road. Another project recently announced affecting this area of Butchertown is the potential creation of a new “Champions Park” comprised of soccer and other sports fields. Louisville Metro envisions a 166-acre park complex located along the south side of River Road between Frankfort and Zorn Avenues. In addition to the new fields, plans for the park include redevelopment of the River Road Country Club, reuse of the city landfill at Frankfort Avenue, and incorporation of the existing Eva Bandman and Soccer Parks.
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EXISTING ZONING OVERVIEW Louisville Metro has established two distinct layers of zoning regulations. The traditional zoning classification serves as a baseline to determine permitted and conditional land use types as well as allowable density of development within specific zones. Another layer of regulations pertains to the quality of new development. This second layer of zoning entitled “Form District Regulations” ensures the design of structures within a given area is compatible with adjacent structures and responds to the contextual, urban setting of the neighborhood.
Zoning Districts Zoning districts work in coordination with form districts to determine the design, layout, use, density, and all other standards associated with development in Louisville. Zoning districts provide the requirements for permitted uses and densities, while form districts provide design, landscaping, setback, and all other necessary standards. The zoning districts for the Butchertown neighborhood are listed below. Residential Multi-Family Districts (R-6, R-7) The Residential Multi-family District provides the opportunity for areas in the medium density residential land development range to be used for single-family dwellings, row houses or multiple family dwellings. Office/Residential Districts (OR-1, OR-2, OR-3) The Office Residential Districts are intended to provide a balanced mix of professional and medical offices, residential uses, and supporting business and recreational services. Neighborhood Commercial District (C-N) The Neighborhood Commercial District is a specialized district for the sale of daily convenience items or services within neighborhoods for the use of local residents. Commercial Districts (C-1, C-2, C-3) Commercial Districts include areas where various levels of retail and service businesses, supporting businesses, and limited residential uses
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Land Use & Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
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Copyright (c) 2006, LOUISVILLE AND JEFFERSON COUNTY METROPOLITAN SEWER DISTRICT (MSD), LOUISVILLE WATER COMPANY (LWC), LOUISVILLE METRO GOVERNMENT, and JEFFERSON COUNTY PROPERTY VALUATION ADMINISTRATOR (PVA). All Rights Reserved.
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Land Use and Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
are located. The C-3 Commercial district represents a specialized area for the location of high density/intensity commercial and residential developments within the Central Business District (CBD). It recognizes the CBD as the focal point of business, commercial, and transportation activities in the Louisville metropolitan area. Commercial Manufacturing District (CM) The intention of this district is to provide a setting for a mix of commercial and manufacturing sales and service businesses. Enterprise Zone District (EZ-1) The EZ-1 Enterprise Zone establishes a specialized district for locating commercial and industrial uses in areas designated as enterprise zones by the appropriate legislative body. C-2 Commercial and M-3 Industrial uses are permitted within the zoning designation, as well as single- and multi-family dwellings under certain conditions. Industrial Districts (M-2, M-3) These industrial districts are intended to provide locations for manufacturing operations and storage.
Form Districts Whereas standard zoning districts are used to regulate land use and density, the purpose of Form Districts is to shape the physical “form” of development. This can include building setbacks, height and materials, lot size and area dimensions, relationships of uses and buildings to each other and to the street, open space, street design standards, land use buffering techniques, signage, site layout, or landscaping. The intention of these districts is to provide diversity of land uses while ensuring the shape/ character of new development is compatible with adjacent development. Listed below are the four Form Districts affecting the Butchertown neighborhood. Downtown Form District (DT) The Downtown Form District is intended to support development and redevelopment in downtown Louisville while preserving the existing, historic character of the area. This district was created to strengthen
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downtown Louisville as the heart of the city and economic center of the region. Some of the main objectives of this district are to ensure a compact, “walkable” core and an active pedestrian realm by linking downtown, the waterfront, and adjacent neighborhoods. Streetscape improvements, conservation of historic resources, and the inclusion of public art and amenities are also key elements of this district. Traditional Marketplace Corridor Form District (TMC) The identification and enhancement of the character along some of Louisville’s more prominent circulation corridors is the primary purpose of this district. These marketplace districts help to delineate corridor gateways, reinforce the corridor’s function and identity, and encourage alternative modes of travel. Additional objectives for this district include guidelines for access and circulation, streetscaping, and considerations for open space. Specific guidelines also address the development and appearance of prominent sites focusing on high quality design and design standards for linkages to adjacent districts and land uses. Traditional Neighborhood District (TN) Traditional Neighborhood Districts support the redevelopment, enhancement, and preservation of existing neighborhoods, and provide a sense of place for residents. Diversity, and the creation of healthy, vibrant, livable places are a primary goal of these districts. Such urban settings promote a culturally and economically diverse environment that accommodate people all ages and incomes. Guidelines include the creation of a neighborhood center, recognizable edges, and transitions between adjacent districts. A variety of land uses are encouraged within the Traditional Neighborhood District that are compatible with the scale and character of existing and proposed neighborhoods. These neighborhoods should accommodate not only a variety of residential uses, but also office and neighborhood commercial uses, especially in aging neighborhoods with underutilized or vacant structures. Internal circulation patterns, streetscaping, open space, and the integration of appropriate housing units are also elements of this district.
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Land Use and Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
SUMMARY OF EXISTING ZONING CONDITIONS In general, there are several areas where the base zoning classification does not reflect existing land uses. For example, the higher-density “R-6” designation doesn’t reflect the fact that many of the residential areas are single family units and/or duplexes. Although there are instances where larger (original) single-family homes were converted to buildings with multiple rental units, much of Butchertown’s housing stock is one- and two-family units.
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There are also opportunities where the existing Form District designation(s) could be modified to not only reflect existing conditions, but also encourage appropriate development in the neighborhood. Due to future changes along Frankfort Avenue as a result of the Bridges Project and development along the riverfront, a Traditional Marketplace Corridor Form District could be an appropriate alternative to the Traditional Neighborhood District currently designated along the corridor.
SUMMARY OF NEIGHBORHOOD CONCERNS As noted previously in Chapter 1, Metro’s Planning and Design Services staff, the planning consultant, and the Task Force met on a regular basis to discuss issues relevant to the neighborhood plan, and the future of Butchertown. This process, along with additional public workshops, gathered pertinent input and feedback from residents and business interests that revealed a number of concerns and ideas relative to land use issues. There was a general sense that recent commercial and residential development has had positive results in the neighborhood. However, many also felt the secondary (negative) impacts of some existing, heavy industrial uses were a detriment to Extreme Skate Park Against Backdrop of Industry
the neighborhood fully realizing its potential for new residential and business development in the future. Listed below are additional issues raised during the public participation process and are addressed in the various recommendations at the conclusion of this chapter. · Beargrass Creek is viewed as a neglected or underutilized feature that should be developed as an asset for the neighborhood · Nuisance issues from industrial activities (i.e. semi-truck traffic and parking, odors, noise, etc...) were raised throughout the process · Impacts of the existing Kennedy Interchange and the potential impacts of the Bridges Project · Revise zoning districts to more accurately reflect existing land uses and discourage multi-family conversions from single-family · Too much (unscreened) outdoor storage detracts from pedestrianfriendly streetscapes · Need to encourage redevelopment along the primary, commercial corridors traversing Butchertown
LAND USE RECOMMENDATIONS Listed below are land use recommendations based on public input and discussions held between the Butchertown Task Force, Louisville Metro, and the planning consultant. There was general agreement that continued growth in Butchertown will require an ongoing, cooperative dialogue between residents, existing and new businesses, and neighborhood groups to promote development for the betterment of the entire Butchertown neighborhood. Such a perspective must be based on an understanding that Butchertown has been, and should continue to be, a neighborhood comprised of an appropriate mix of residential, commercial, and light industrial land uses. However, future development must not come at the expense of existing residents and businesses, and should have a vested interest in improving the quality of life for all of those who share in the experiences of Butchertown. Future land uses should recognize the historic urban fabric of Butchertown, anticipate new development patterns, minimize land
Land Use and Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
use conflicts, and contribute to the mixed-use, diverse character of the neighborhood. The following opportunities vary in level of importance and should be prioritized accordingly. Chapter 6 breaks down these recommendations based on short, mid, and long term time frames.
Cornerstone 2020 / Land Development Code: LU1 Evaluate and rezone neighborhood areas currently zoned R6 to the Urban Neighborhood (UN) designation based on appropriate conditions. LU2 After final determination of Bridges Project impacts, evaluate the status of industrial-zoned properties to determine those properties suitable for EZ-1 or other mixed use zoning. This evaluation shall include consideration of existing land use and zoning of properties. Rezone properties in accordance with recommendations of evaluation. (Existing M-3 properties, with a use that requires a Conditional Use Permit not allowed in the proposed EZ-1 district, should not be rezoned without agreement from property owner.) LU3 Consider revising the Downtown Form District boundary along the riverfront to guide new development of the vacated land resulting from the Kennedy Interchange shifting southward as a result of the Bridges Project. LU4 Consider revising the Traditional Neighborhood (TN) Form District boundary along Story Avenue between Cabel and Buchanon Streets to a Traditional Marketplace Corridor (TMC) Form District designation to encourage appropriate (re)development along this important commercial corridor. LU5 After final determination of Bridges Project impacts, particularly the new Frankfort Avenue interchange, evaluate the status of industrial-zoned properties and Form District designation. Consider revising those properties suitable for mixed use zoning or a Traditional Marketplace Corridor (TMC) Form District designation along Frankfort between Story Avenue and River Road.
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LU6 Evaluate and capitalize on the impacts of the expanded Waterfront Park, Big Four pedestrian bridge, and other redevelopment currently underway along the Ohio River. LU7 Evaluate redevelopment plans for the vacated land as a result of the relocated Kennedy Interchange.
Infrastructure / Capital Improvements: LU8 Coordinate with the Metropolitan Sewer District for stormwater management policies and Federal floodplain regulations to determine potential limitations to the location, or type, of development within the Beargrass Creek watershed. LU9 Determine strategic locations along designated bike routes for incorporating small neighborhood parks. LU10 Identify strategic locations for trailheads along the Beargrass Creek corridor that maximize creek access and serve as amenities for existing or future development. LU11 Ensure stormwater Best Management Practices are implemented along Beargrass Creek to properly treat water runoff prior to entering the creek. LU12 Explore strategies to relocate and/or rebuild the flood wall.
Policy / Programmatic: LU13 Support efforts to relocate the JBS-Swift Plant operations, while recognizing that in the short term, the plant will continue to operate at its current location. LU14 Partner with Metro agencies and affected industries to reduce the secondary (nuisance) impacts of existing industrial operations on residents and retail businesses.
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Land Use and Community Form BUTCHERTOWN NEIGHBORHOOD PLAN
LU15 Promote land use strategies for the re-use of existing buildings rather than building new structures. LU16 Redevelop/rehabilitate industrial buildings for office, retail, mixed-use, or multi-family residential if industrial uses are no longer viable. LU17 Protect existing street trees and enforce policies that preserve and incorporate mature trees as part of redevelopment efforts. LU18 Undertake a survey to inventory street trees within the public right-of-way. Develop a prioritization plan to replace dead or missing street trees.
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preclude, or limit, the restoration of Beargrass Creek. LU26 Encourage cultural amenities and activities that complement and promote existing artistic uses at the Butchertown Market. LU27 Promote land uses along Main Street that are mutually beneficial to Butchertown and Phoenix Hill due to its role as a shared boundary/corridor between the two neighborhoods. LU28 Encourage appropriate commercial development along Story and Mellwood Avenues and Main Street that strengthen Butchertown’s economic base and enhance pedestrian activity.
LU20 Partner with pertinent stakeholders to implement a clean-up plan for the Beargrass Creek corridor.
LU29 Initiate private neighborhood efforts to seek out and develop a series of “pocket parks” or community gardens at vacant or underutilized lots throughout Butchertown. Such efforts should not compromise intact residential areas (i.e. create “gaps” in the urban fabric)
LU21 Re-evaluate land use issues and recommendations in this Neighborhood Plan based on the impacts of the Bridges Project during and after construction.
LU30 Evaluate land use impacts and opportunities at the future Frankfort Avenue / I-71 interchange as part of the Ohio River Bridges Project.
LU19 Rename existing or future parks in honor of historic or influential people who helped shaped Butchertown.
LU22 Promote land use strategies adjacent to Lincoln Elementary School that result in a more child-friendly and safer environment. LU23 Provide possible incentives to locate a grocery store in the neighborhood. LU24 Locate/site new buildings and associated features along Beargrass Creek to promote public access to the creek. LU25 Implement policies to ensure future development does not
4
M O B I L I T Y
CHAPTER
FOUR Mobility
Intent
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
This chapter outlines existing transportation and infrastructure conditions within Butchertown. Based on this analysis and the input of Task Force members, recommendations are made to address these issues. One of the key goals of these recommendations is to integrate vehicular and pedestrian mobility needs within the scale and character of the Butchertown neighborhood.
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Mobility BUTCHERTOWN NEIGHBORHOOD PLAN
MOBILITY INVENTORY AND ANALYSIS As noted in Chapter 2, the urban fabric of Butchertown has been shaped by a variety of circulation networks over the years. From the early influences of Beargrass Creek to today’s interstate system, the neighborhood has witnessed both the positive and negative impacts of circulation. This chapter addresses mobility issues within and through the neighborhood including vehicular as well as pedestrian activity. How Louisville’s public transportation system influences Butchertown is also addressed in the analysis and recommendations. Traffic patterns are analyzed for compatibility with available infrastructure, current and desired land use patterns, and with overall goals of maintaining the viability of adjacent land uses.
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The speed of traffic, one- or two-way traffic patterns, and the physical size of the street are all factors that affect the quality and safety of a circulation corridor. The type of street, based on standards established by Louisville Metro’s Thoroughfare Plan, are categorized into four main classifications including: · Major Arterials · Minor Arterials · Primary Collectors · Local or Neighborhood Streets In Butchertown, Story Avenue, Main Street, Mellwood and Frankfort Avenues, and Brownsboro Road are classified as Major Arterial streets. Shelby and Adams Streets are listed as Primary Collectors in the neighborhood. The remaining network of streets are considered Local or Neighborhood streets and, in general, link the residential areas to the high-traffic corridors.
Main Street Defined as a Major Arterial Street
In the future, it is important the role and function of each of the streets that comprise Butchertown’s circulation network is understood from
both a traffic (engineering) perspective as well as an aesthetic (urban design) perspective. In an urban setting such as Butchertown, the various roles the corridor plays relative to that of a public place, are just as important as the street’s function to move vehicles Washington Street Defined as a Local Street through the neighborhood. The following mobility analysis includes a discussion of some of the tangible, traffic/safety concerns for motorists, as well as an exploration of some of the intangible, aesthetic issues in Butchertown. In addition to the concerns raised during the public meetings, a number of issues outlined below are the result of a “walking survey” conducted by residents as part of a pilot program developed by the Built Environment Committee of the Mayor’s Healthy Hometown Movement. As with the land use chapter previously, many of these issues and concerns were raised by Task Force members, neighborhood business interests and residents throughout this planning process.
SUMMARY OF NEIGHBORHOOD CONCERNS
Typical Neighborhood Streetscape
As noted previously in Chapter 1, Metro’s Planning and Design Services staff, the planning consultant, and the Task Force met on a regular basis to discuss issues relevant to the plan. This process, along with additional public workshops, gathered pertinent input and feedback from residents and businesses that revealed a number of concerns and ideas relative to Butchertown’s transportation network. Traffic
Mobility BUTCHERTOWN NEIGHBORHOOD PLAN
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Mobility BUTCHERTOWN NEIGHBORHOOD PLAN
patterns within and through the neighborhood were a primary concern. One-way traffic on Story and Mellwood Avenues, and Main Street raised safety concerns and limited travel options for motorists navigating Butchertown. Many felt that returning two-way traffic patterns on these, as well as other streets in the neighborhood, could alleviate many of the truck traffic issues currently affecting Butchertown. Some of the following issues are also the result of a “Walking Survey” of the neighborhood as part of the city’s initiative to create a more walkable city. Many of the items listed below have evolved into the various recommendations at the conclusion of this chapter. · System of 1- and 2-way streets throughout the neighborhood create confusing and sometimes dangerous situations for pedestrians and motorists alike. · Impacts of the Kennedy Interchange. · Heavy truck traffic through residential areas creates pedestrian safety issues, noise and air pollution, and damages street trees · Excessive traffic speed along Story Avenue creates safety concerns · Flood wall running along Quincy Street blocks motorists’ view at Cabel and Adams Street intersections · Configuration of sidewalks along Story and Mellwood Avenues at the I-64 interchanges result in pedestrian safety issues · Lack of pedestrian crossings and general poor condition of sidewalks at the Story and Frankfort Avenues intersection · Lack of pedestrian crossings and general poor condition of sidewalks at the Story Avenue and Brownsboro Road intersection · Some brick sidewalks throughout the neighborhood are uneven or in disrepair due to age, tree roots, or other factors · Configuration of the Story, Baxter, and Main Street intersection not conducive to the efficient flow of traffic and creates pedestrian safety issues · Lack of pedestrian crossings and speed of traffic at the Main and Wenzel Streets intersection create safety issues for pedestrians, particularly schoolchildren One new survey introduced to the neighborhood plan process was the use of the Louisville Neighborhood Walking Survey. The Butchertown
neighborhood is one of the first neighborhoods in Louisville to use the Louisville Neighborhood Walking Survey, a pilot program developed by the Built Environment Committee of the Mayor ’s Healthy Hometown Movement. The purpose of the survey was Pedestrian Safety Issues at I-64 and Story Avenue to analyze how “walkable” neighborhoods are in Louisville. This tool enables the neighborhood to determine its greatest needs relating to walkability and to prioritize them in order of importance. The list of projects and priorities produced will be used by the Metro Council and Metro Public Works to determine which projects will be implemented first. Priorities identified during the Butchertown walk include: 1. Repair sidewalk along Washington Street. 2. Install sidewalks along east side of Cabel Street, north of Quincy. 3. Clean up debris along sidewalk of Adams Street. 4. Install sidewalk on western side of Adams Street, north of Quincy. 5. Improve intersection of floodwall (site lines) at both ends along Quincy Street 6. Trim trees and shrubs. 7. Clean up or screen out property on the south side of Washington between Buchanan and Johnson Street. 8. Improve sidewalk along Washington Street (southside between Wenzel and Buchanan). 9. Improve crossing signals at Main and Wenzel Streets. 10. Install sidewalk along north side of Franklin Street west of Cabel Street. 11. Improve traffic patterns at intersection of Story Avenue and I-64 exit ramp. 12. Improve pedestrian crossings at Frankfort/Story, Brownsboro/Story, and Story at greenway.
Mobility BUTCHERTOWN NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS Many of the recommendations listed below center on improvements to the functional aspects of Butchertown’s network of streets. However, these improvements take into consideration vehicular as well as pedestrian movement through the neighborhood. An “efficient” street in regards to traffic flow normally does not translate into an attractive public realm for pedestrians. The design of multi-functional corridors strengthens the historic patterns of multi-modal transportation in traditional urban areas. The recommendations detailed below attempt to balance the role streets play in Butchertown as circulation corridors as well as public places.
Cornerstone 2020 / Land Development Code: M1
M2
Evaluate the effects and opportunities of any new streets that are extended through the (relocated) Kennedy Interchange and connect to River Road and/or Waterfront Park. Evaluate the future effects and opportunities of the new Frankfort Avenue interchange at I-71 as part of the Bridges Project.
Infrastructure / Capital Improvements: M3
Evaluate local traffic patterns as a result of the reconstructed I-64 ramp system(s) between Mellwood and Story Avenues as part of the Bridges Project.
M7
Analyze the feasibility of converting traffic along Main/ Mellwood and Story Avenues from 1-way to 2-way circulation. Such improvements to these routes should reduce heavy truck traffic through the residential areas of Butchertown.
M8
Analyze the feasibility of converting strategic streets specifically Campbell and Wenzel Streets - from 1-way to 2-way circulation.
M9
Develop strategies to reconfigure the Brownsboro Road/ Mellwood Avenue intersection to direct/encourage traffic onto Mellwood rather than Story Avenue.
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M10 Reconfigure the Main/Story/Baxter intersection to effectively route 2-way traffic through this area. M11 Improve signage and streetscaping for designated bike routes along Clay, Washington, Adams, and other local streets for the safety and enjoyment of cyclists/pedestrians. M12 Implement streetscape and traffic-calming measures along Story and Mellwood Avenues at the I-64 interchanges that improve pedestrian safety. M13 Implement safety/traffic-calming measures at the designated crosswalk at Story and Cabel to improve pedestrian safety.
M4
Develop and implement a plan to prioritize streets to bury/ relocate overhead utilities to improve viewsheds, limit conflicts with street trees, and promote pedestrian safety.
M14 Implement pedestrian safety improvements at the Story and Frankfort Avenue intersection to improve pedestrian safety.
M5
Encourage business owners to landscape or screen the perimeters of parking lots and outdoor storage areas to create pedestrian friendly edges.
M15 Improve pedestrian (i.e. school children) safety via trafficcalming features and light signalization for pedestrians and motorists at the Main and Wenzel Street intersection/ crosswalks.
M6
Intensify efforts to reduce or minimize heavy truck traffic on residential streets.
M16 Improve informational and directional signage (i.e. bike routes, bus stops, etc...) along local streets for motorists and pedestrians throughout Butchertown.
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Mobility BUTCHERTOWN NEIGHBORHOOD PLAN
M17 Develop and implement an on-going maintenance plan (clean-up, plantings, pruning, etc...) for existing and future landscaping along neighborhood streets. M18 Improve/enhance streetscaping at the Brownsboro, Frankfort, and Spring Street bridges crossing Beargrass Creekspecifically, remove the chain link fence at Frankfort Avenue bridge. M19 Coordinate with the Bridges Project engineers and Phoenix Hill Neighborhood Association to implement streetscape enhancements along East Main Street as part of the Bridges Project’s mitigation measures.
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M20 Develop and implement a infrastructure improvement plan that prioritizes projects for new sidewalks, sidewalk replacement, curbs, and/or ADA-compliant ramps. Coordinate this with the results of the Walkability Survey recently completed by Louisville Metro. · Repair sidewalk along south side of Washington between Buchanon and Wenzel Streets. · Install sidewalk along east side of Cabel north of Quincy Street. · Install sidewalk on western side of Adams north of Quincy Street. · Install sidewalk along north side of Franklin Street west of Cabel Street. M21 Incorporate design elements and/or interpretive signage highlighting the importance of Beargrass Creek/Butchertown Greenway to the neighborhood and its symbolic connection to the Ohio River. M22 Coordinate with TARC to design and build future transit structures reflecting the unique features of Butchertown and strengthen service at bus/trolley stops along designated neighborhood routes.
Policy / Programmatic: M23 Continue to partner with JBS-Swift Company to limit or designate certain streets as truck routes accessing the plant. Efforts should also limit off-site (overnight) parking. M24 Encourage innovative parking alternatives among businesses along Main Street, and Story and Mellwood Avenues to promote business development. M25 Develop and implement a study to improve or maximize the efficiency of on-street parking for businesses and residents throughout the neighborhood. M26 Initiate a study relevant to circulation strategies that improve access to and along Beargrass Creek. M27 Develop a public art funding program (i.e. art “set-asides”) within the public realm to “tell the story” of Butchertown, and coordinate the location of artwork with the Historic Butchertown Walking Tour. M28 Undertake a study to determine the long-term feasibility of converting the existing railroad into a multi-use pedestrian trail. M29 Re-evaluate mobility issues and recommendations in this Neighborhood Plan based on the future impacts of the Bridges Project.
5
The Ohio River Bridges Project
C H A P T E R
FIVE
The Ohio River Bridges Project
Intent
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
The purpose of this chapter is to attempt to outline some of the numerous issues relative to the Ohio River Bridges Project. Included is a brief explanation of the project’s components and some of the urban design opportunities that may arise from the relocation of the Kennedy Interchange.
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The Ohio River Bridges Project BUTCHERTOWN NEIGHBORHOOD PLAN
INTRODUCTION TO THE BRIDGES PROJECT Throughout its history, Butchertown has been affected by natural and man-made activities that have damaged the integrity of the neighborhood fabric. The devastating 1937 flood, and subsequent construction of a flood control system in response to it, altered development in Butchertown. In the 1960s, the construction of the interstate system through Louisville had a direct and lasting impact on the neighborhood as well. Today, plans are underway to rebuild the Kennedy Interchange (“Spaghetti Junction”) as part of the Ohio River Bridges Project.
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This chapter provides a brief overview of this multi-billion dollar project that is being funded by the Federal Highway Administration, Kentucky Transportation Cabinet, and the Indiana Department of Transportation. Although construction has yet to begin on the downtown section of the Project, it is critical the Butchertown neighborhood understand the magnitude of this construction project, and begin to address its long term implications (both positive and negative) on Butchertown’s urban fabric. The following information outlines the scope of the Bridges Project, its impact on Butchertown, and opportunities for the neighborhood to use this event as a catalyst to enhance Butchertown’s urban fabric The Ohio River Bridges Project (Project) is comprised of six components including: 1) reconstruction/relocation of the interstates and ramp systems to the south of the existing Spaghetti Junction; 2) a new downtown bridge just east of the existing Kennedy Bridge; 3) a new Indiana approach to the (new) bridge and ramps systems in Jeffersonville; 4) a new connection linking the new East End bridge to the existing Gene Snyder Freeway (KY 841); 5) an East End bridge approximately eight miles from downtown Louisville; and 6) a new Indiana connection linking the Lee Hamilton Highway (IN 265) to the new East End bridge. The first two phases of this long-term project will have the greatest impact on the Butchertown neighborhood. The Kennedy Interchange section (SDC-1), where Interstates I-64, I-65, and I-71 converge, will be completely rebuilt just south of its current
Ohio River Bridges Project Sections location. New interchanges with I-64 will be constructed at Mellwood and Story Avenues, along with a reconstructed, partial interchange at I-71 and Frankfort Avenue. The existing ramp system at I-65 and Jefferson Street/Muhammad Ali Boulevard will also be reconstructed to improve traffic flow in that area. The other section (SDC-2) affecting downtown Louisville and Butchertown will be the new downtown bridge across the Ohio River. This will include the construction of a new six-lane bridge adjacent to the existing Kennedy Bridge to carry northbound traffic across the river on I-65. Traffic patterns on the existing Kennedy Bridge will be reconfigured to accommodate all southbound traffic on I-65.
EFFECTS ON THE BUTCHERTOWN NEIGHBORHOOD Obviously, a project of the magnitude of the Ohio River Bridges Project has a tremendous impact not only on Butchertown, but Louisville and the bi-state region as well. As noted previously, the new, reconfigured Kennedy Interchange (SDC-1) and new downtown bridge crossing the Ohio River (SDC-2) will have significant direct and indirect impacts on Butchertown. The relocation of the Kennedy Interchange will displace several industries that currently operate in the neighborhood. However, the redesigned interstate will be constructed to allow several local streets to pass under the corridor and extend to River Road (Ohio River).
The Ohio River Bridges Project BUTCHERTOWN NEIGHBORHOOD PLAN
The Bridges Project will not only dramatically alter the character of the northern edge of Butchertown after its completion, but will impact the neighborhood during the construction process as well. In an effort to minimize these impacts, the Bridges Project has stipulated several measures to monitor and protect historic resources in the neighborhood. In general, the Project will be designed to minimize adverse noise effects on historic properties in accordance with state and federal regulations. Specific historic structures may also receive enhanced noise abatement treatments to mitigate interior noise levels. Project designers will
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also incorporate “Context Sensitive Design� solutions in an effort to integrate interstate system components into the historic urban fabric of Butchertown. Components such as bridges, retaining walls, signage, and landscaping will be designed to reflect the existing, unique architectural and cultural features in the neighborhood. Throughout the Bridges Project, there is built-in public participation process to inform and gather pertinent feedback from affected stakeholders of Project decisions.
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New Kennedy Interchange - SDC-1 of the Ohio River Bridges Project
(Source: The Ohio River Bridges Project)
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The Ohio River Bridges Project BUTCHERTOWN NEIGHBORHOOD PLAN
As noted in the previous recommendations, it is important this neighborhood plan be re-evaluated once construction of the Bridges Project begins, specifically the Kennedy Interchange section. One can not fully anticipate the impacts of the Bridges Project either during construction, immediately after completion, or even five years after the Project’s completion. It is incumbent upon the Butchertown Neighborhood Association, Butchertown Business Association, Metro’s Planning and Design Services, and others to re-visit this neighborhood plan and its recommendations to adjust to unforeseen changes in Butchertown.
NEIGHBORHOOD URBAN DESIGN OPPORTUNITIES
34
As part of the original plans for the Kennedy Interchange’s reconfiguration was the inclusion of a new interchange at Frankfort Avenue at the far eastern edge of the neighborhood. As the graphic on the previous page indicates, this interchange will serve as an access point to I-71 and provide commuters with the option of using either River Road, Story Avenue, or a new street extension connecting to the existing Witherspoon Street just west of I-65, as a means of accessing east downtown neighborhoods and downtown Louisville. As originally envisioned in the Environmental Impact Statement (EIS) phase of the Bridges Project, the role of this Witherspoon Street Extension was that of an “urban penetrator” functioning primarily as a part of the interstate system rather than part of the urban fabric. One of the recommendations in the Project’s Immediate Needs Report (INR) and Historic Preservation Plan (HPP) recommended the Witherspoon Extension be integrated into the neighborhood’s network of streets. Such a shift in philosophy centers on treating the street as an integral component of the public realm of Butchertown, rather than a transportation route simply moving traffic from “point A to point B”. Although such an approach would necessitate bringing the alignment through the (national) historic district, it was anticipated the benefits of doing so would far outweigh any potential negative impacts. This alignment, also referred to as the “Geiger Street Extension” in the HPP, would generate redevelopment opportunities along both sides of the
street that could be designed within the scale and character of existing buildings in Butchertown. Separating the Geiger Street Extension from the interstate corridor, with infill development on either side of the street, would also serve as an effective noise and visual buffer from the new Kennedy Interchange. Probably one of the biggest and most challenging opportunities as a result of the new Kennedy Interchange has to do with the land that will be vacated along the existing interstate’s “footprint”. This land will provide redevelopment opportunities for approximately forty acres of land once the old Kennedy Interchange is removed. It is anticipated this new configuration will also allow several local streets to extend under the new Kennedy Interchange and ultimately connect to River Road. This will provide Butchertown and the rest of east downtown Louisville greater access to the Ohio River and Waterfront Park, and potentially relieve some of the traffic issues currently affecting the area.
6
IMPLEMENTATION
C H A P T E R
S I X
IMPLEMENTATION
Intent
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
The purpose of this final chapter is to prioritize the previous recommendations and categorize them into short, medium, and long term strategies. Once adopted by the Metro Council, these implementation strategies will guide planning officials in future decisions regarding the Butchertown neighborhood.
6
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
INTRODUCTION The recommendations outlined in Chapters 3 and 4 are the result of a cooperative, collective effort by the Task Force members, Louisville Metro officials, and the planning consultant. Once this plan is adopted by the Metro Council, many of these recommendations are intended to supplement Cornerstone 2020 and the Land Development Code, and guide future decisions relevant to the Butchertown neighborhood.
36
Implementation of the Butchertown Neighborhood Plan will require an ongoing commitment from the Butchertown Neighborhood Association, Butchertown Business Association, the Metro Planning Commission and Council, Planning and Design Services, and other Metro agencies. The following tables expand on the previous Land Use and Mobility Recommendations by including pertinent stakeholders and decisionmakers, as well as approximate timelines for implementing these recommendations. Such a timeline will vary based on the progress of the Ohio River Bridges Project, economic development influences, as well as numerous other factors. In general, however, there are four basic time frames including: 路 Short-Term Opportunities - Projects that could be undertaken in the next 1 - 3 years. 路 Mid-Term Opportunities - Projects that could be initiated in the next 3 - 7 years. 路 Long-Term Opportunities - Projects that could be undertaken in the next 7 - 10+ years. Some of these recommendations may go beyond the time frame of this Plan 路 Ongoing Opportunities - Projects that may require initial studies to determine their feasibility or may depend on other work prior to implementation. Such projects may also be implemented in a series of incremental steps involving numerous agencies or departments.
Implementation Agencies: BARC BBA BNA DDC EDBA MSD PARC PDS PW TARC
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Butchertown Architectural Review Committee Butchertown Business Association Butchertown Neighborhood Association Downtown Development Corporation East Downtown Business Association Metropolitan Sewer District Parking Authority of River City Metropolitan Planning and Design Services Public Works Transit Authority of River City
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
6
TIMEFRAME
Cornerstone 2020 / Land Development Code LU1
Evaluate and rezone neighborhood areas currently zoned R6 to Urban Neighborhood (UN) designation based on PDS appropriate conditions.
Short-term - 1-3 years
LU2
After final determination of Bridges Project impacts, evaluate the status of industrial-zoned properties to determine those properties suitable for EZ-1 or other mixed use zoning. This evaluation shall include consideration of existing land use and zoning of properties. Rezone PDS properties in accordance with recommendations of evaluation. (Existing M-3 properties, with a use that requires a Conditional Use Permit not allowed in the proposed EZ-1 district, should not be rezoned without agreement from property owner.)
Long-term - 7-10+ years
LU3
Consider revising the Downtown Form District boundary along the riverfront to guide new development of the PDS vacated land resulting from the Kennedy Interchange shifting southward as a result of the Bridges Project.
Long-term - 7-10+ years
LU4
Consider revising the Traditional Neighborhood (TN) Form District boundary along Story Avenue between Cabel and Buchanon Streets to a Traditional Marketplace PDS Corridor (TMC) Form District designation to encourage appropriate (re)development along this important commercial corridor.
Short-term - 1-3 years
LU5
After final determination of Bridges Project impacts, particularly the new Frankfort Avenue interchange, evaluate the status of industrial-zoned properties and Form District designation. Consider revising those properties PDS suitable for mixed use zoning or a Traditional Marketplace Corridor (TMC) Form District designation along Frankfort between Story Avenue and River Road.
Long-term - 7-10+ years
LU6
Evaluate and capitalize on the impacts of the expanded Waterfront Park, Big Four pedestrian bridge, and other PDS / DDC / BNA / Metro Parks redevelopment currently underway along the Ohio River.
Mid-term - 3-7 years
37
6
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS LU7
IMPLEMENTATION AGENCY
Evaluate redevelopment plans for the vacated land at the Kennedy Interchange as a result of the Ohio River Bridges PDS / BNA / DDC Project.
TIMEFRAME Long-term - 7-10+ years
Infrastructure / Capital Improvements
38
LU8
Coordinate with the Metropolitan Sewer District for stormwater management policies and Federal floodplain regulations to determine potential limitations to the MSD location, or type of development within the Beargrass Creek watershed.
Short-term - 1-3 years
LU9
Determine strategic locations along designated bike routes Metro Parks / BNA for incorporating small neighborhood parks.
Short-term - 1-3 years
LU10
Identify strategic locations for trailheads along the Beargrass Creek corridor that maximize creek access and BNA / MSD / PW / Metro Parks serve as amenities for existing or future development.
Mid-term - 3-7 years
LU11
Ensure stormwater Best Management Practices are implemented along Beargrass Creek to properly treat water MSD runoff prior to entering the creek.
Ongoing
LU12
Explore strategies to relocate and/or rebuild the flood MSD / PW / Corps of Engineers wall.
Long-term - 7-10+ years
Policy / Programmatic LU13
Support efforts to relocate the JBS-Swift Plant, while recognizing that in the short term, the plant will continue to operate at its current location.
LU14
Partner with Metro agencies and affected industries to reduce the secondary (nuisance) impacts of existing BNA / BBA industrial operations on residents and retail businesses.
Ongoing
LU15
Promote land use strategies for the re-use of existing BNA / BARC buildings rather than building new structures.
Ongoing
LU16
Redevelop/rehabilitate industrial buildings for office, retail, mixed-use, or multi-family residential if industrial uses are BNA / BBA no longer viable.
Ongoing
LU17
Protect existing street trees and enforce policies that preserve and incorporate mature trees as part of PW redevelopment efforts.
Ongoing
BNA
Ongoing / Long-term - 7-10+ years
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
6
TIMEFRAME
Policy / Programmatic (cont.) LU18
Undertake a survey to inventory street trees within the public right-of-way. Develop a prioritization plan to PW replace dead or missing street trees.
Short-term - 1-3 years
LU19
Rename existing or future parks in honor of historic or BNA / Metro Parks influential people who helped shaped Butchertown.
Short-term - 1-3 years
LU20
Partner with pertinent stakeholders to create and implement BNA / PW a clean-up plan for the Beargrass Creek corridor.
Short-term - 1-3 years
LU21
Re-evaluate land use issues and recommendations in this Neighborhood Plan based on the impacts of the Bridges BNA Project during and after construction.
Long-term - 7-10+ years
LU22
Promote land use strategies adjacent to Lincoln Elementary School that result in a more child-friendly and safer BNA / Phoenix Hill Association environment.
Mid-term - 3-7 years
LU23
Provide possible incentives to locate a grocery store in the BNA / BBA neighborhood.
Short-term - 1-3 years
LU24
Locate/site new buildings and associated features along BNA / MSD Beargrass Creek to promote public access to the creek.
Mid-term - 3-7 years
LU25
Implement policies to ensure future development does not PW / BNA preclude, or limit, the restoration of Beargrass Creek.
Short-term - 1-3 years
LU26
Encourage cultural amenities and activities to complement or promote existing artistic uses at the Butchertown BNA / BBA Market.
Short-term - 1-3 years
LU27
Promote land uses along Main Street that are mutually beneficial to Butchertown and Phoenix Hill due to its BNA / BBA / Phoenix Hill Association role as a shared boundary/corridor between the two neighborhoods.
Short-term - 1-3 years
LU28
Encourage appropriate commercial development along Story and Mellwood Avenues and Main Street that BNA / BBA / EDBA strengthen Butchertown’s economic base and enhance pedestrian activity.
Mid-term - 3-7 years
39
6
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Policy / Programmatic (cont.)
40
LU29
Initiate private neighborhood efforts to seek out and develop a series of “pocket parks” or community gardens BNA / PDS / Brightside at vacant or underutilized lots throughout Butchertown.
Short-term - 1-3 years
LU30
Evaluate land use impacts and opportunities at the future Frankfort Avenue interchange at I-71 as part of the Bridges BNA / PDS Project.
Long-term - 7-10+ years
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
6
TIMEFRAME
Cornerstone 2020 / Land Development Code M1
Evaluate the effects and opportunities of any new streets that are extended through the (relocated) Kennedy PW / PDS / BNA Interchange and connecting to River Road and/or Waterfront Park.
Long-term - 7-10+ years
M2
Evaluate the future effects and opportunities of the new Frankfort Avenue interchange at I-71 as part of the Bridges PW / PDS / BNA Project.
Long-term - 7-10+ years
Infrastructure / Capital Improvements M3
Evaluate local traffic patterns of the reconstructed I-64 ramp system(s) between Mellwood and Story Avenues as PW / PDS / BNA a result of the Bridges Project.
Long-term - 7-10+ years
M4
Develop and implement an enhancement plan to prioritize streets to bury/relocate overhead utilities to improve BNA / PW viewsheds, limit conflicts with street trees, and promote pedestrian safety.
Short-term - 1-3 years
M5
Encourage business owners to landscape or screen the perimeters of parking lots and outdoor storage areas to BNA / BBA create pedestrian friendly edges.
Ongoing / Short-term - 1-3 years
M6
Intensify efforts to reduce or minimize heavy truck traffic PW / BNA on residential streets.
Ongoing / Short-term - 1-3 years
M7
Analyze the feasibility of converting traffic along Main/ Mellwood and Story Avenues from 1-way to 2-way circulation. Such improvements to these routes should PW reduce heavy truck traffic through the residential areas of Butchertown.
Ongoing / Short-term - 1-3 years
M8
Analyze the feasibility of converting strategic streets specifically Campbell and Wenzel Streets - from 1-way to PW 2-way circulation.
Short-term - 1-3 years
M9
Develop strategies to reconfigure the Brownsboro Road/ Mellwood Avenue intersection to direct/encourage traffic PW onto Mellwood rather than Story Avenue.
Short-term - 1-3 years
41
6
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Infrastructure / Capital Improvements (cont.) M11
Improve signage and streetscaping for designated bike routes along Clay, Washington, Adams, and other PW / Metro Parks local streets for the safety and enjoyment of cyclists/ pedestrians.
Short-term - 1-3 years
M12
Implement streetscape and traffic-calming measures along Story and Mellwood Avenues at the I-64 interchanges that PW improve pedestrian safety.
Short-term - 1-3 years / Long-term - 7-10+ years (Bridges)
M13
Implement safety/traffic-calming measures at the designated crosswalk at Story and Cabel to improve PW pedestrian safety.
Short-term - 1-3 years
M14
Implement pedestrian safety improvements at the Story and Frankfort Avenue intersection to improve pedestrian PW safety.
Short-term - 1-3 years
M15
Improve pedestrian (i.e. school children) safety via trafficcalming features and light signalization at the Main and PW Wenzel Street intersection/crosswalks.
Short-term - 1-3 years
M16
Improve informational and directional signage (i.e. bike routes, bus stops, etc...) along local streets for motorists BNA and pedestrians throughout Butchertown.
Short-term - 1-3 years
M17
Develop and implement an on-going maintenance plan (clean-up, plantings, pruning, etc...) for existing and future BNA / PW / BBA landscaping along neighborhood streets.
Short-term - 1-3 years
M18
Improve/enhance streetscaping at the Brownsboro, Frankfort, and Spring Street bridges crossing Beargrass BNA / PW Creek - specifically, remove the chain link fence at Frankfort Avenue bridge.
Short-term - 1-3 years
M19
Coordinate with Bridges Project engineers and and Phoenix Hill Neighborhood Association to implement streetscape PW / BNA / PHNA enhancements along East Main Street as part of the Bridges Project’s mitigation measures.
Long-term - 7-10+ years
42
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
6
TIMEFRAME
Infrastructure / Capital Improvements (cont.)
M20
Develop and implement a infrastructure improvement plan that prioritizes projects for new sidewalks, sidewalk replacement, curbs, and/or ADA-compliant ramps. Coordinate this with the results of the Walkability Survey recently completed by Louisville Metro. 路 Repair sidewalk along south side of Washington between Buchanon and Wenzel BNA / PW Streets. 路 Install sidewalk along east side of Cabel north of Quincy Street. 路 Install sidewalk on western side of Adams north of Quincy Street. 路 Install sidewalk along north side of Franklin Street west of Cabel Street.
M21
Incorporate design elements and/or signage highlighting the importance of Beargrass Creek/Butchertown Greenway MSD / BNA / Metro Parks to the neighborhood and its symbolic connection to the Ohio River.
Mid-term - 3-7 years
M22
Coordinate with TARC to design and build future transit structures reflecting the unique features of Butchertown and TARC / PW / BNA / BADRC strengthen service at bus/trolley stops along designated neighborhood routes.
Mid-term - 3-7 years
Short-term - 1-3 years
43
6
Implementation BUTCHERTOWN NEIGHBORHOOD PLAN
Policy / Programmatic M23
Continue to partner with JBS-Swift Company to limit or designate certain streets as truck routes accessing the plant. BNA / BBA Efforts should also limit off-site (overnight) parking.
Short-term - 1-3 years
M24
Encourage innovative parking alternatives among businesses along Main Street, and Story and Mellwood BNA / BBA / EDBA / PARC Avenues to promote business development.
Short-term - 1-3 years
M25
Develop and implement a study to improve or maximize the efficiency of on-street parking for businesses and PARC / BNA / PW residents alike.
Short-term - 1-3 years
M26
Initiate a study relevant to circulation strategies that BNA improve access to and along Beargrass Creek.
Short-term - 1-3 years
M27
Develop a public art funding program (i.e. art “set-asides”) within the public realm to “tell the story” of Butchertown, BNA / PW and coordinate the location of artwork with the Historic Butchertown Walking Tour.
Short-term - 1-3 years
M28
Undertake a study to determine the long-term feasibility of converting the existing railroad into a multi-use pedestrian BNA / Metro Parks trail.
Short-term - 1-3 years
M29
Re-evaluate mobility issues and recommendations in this Neighborhood Plan based on the (future) impacts of the BNA / PW Bridges Project.
Long-term - 7-10+ years
44
A APPENDIX
B U T C H E R T O W N
N E I G H B O R H O O D
P L A N
A
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Copyright (c) 2006, LOUISVILLE AND JEFFERSON COUNTY METROPOLITAN SEWER DISTRICT (MSD), LOUISVILLE WATER COMPANY (LWC), LOUISVILLE METRO GOVERNMENT, and JEFFERSON COUNTY PROPERTY VALUATION ADMINISTRATOR (PVA). All Rights Reserved.
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References BUTCHERTOWN NEIGHBORHOOD PLAN
The following list references the various resources utilized in the development of Butchertown’s Neighborhood Plan. Hoeh, David C., and Greenways Incorporated Conceptual Design Plan: Butchertown Greenway, funded by the Metropolitan Sewer District - 1996.
John Milner Associates, Inc. Kentucky Historic Facade Rehabilitation Guidelines, Kentucky Heritage Council and Renaissance Kentucky Alliance - 2003.
Kleber, J.E., Editor The Encyclopedia of Louisville, The University Press of Kentucky, Lexington - 2001.
48
Louisville & Jefferson County Metropolitan Sewer District State of the Streams: Beargrass Creek Watershed Report, Beargrass Creek Watershed Council - 2005.
Louisville & Jefferson County Planning Commission Cornerstone 2020 Comprehensive Plan, Louisville and Jefferson County Planning Commission - 2000 adoption.
BUTCHERTOWN
NEIGHBORHOOD PLAN EXECUTIVE SUMMARY
ES Introduction and Process Overview BUTCHERTOWN NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
Adoption Date:
February 28, 2008
Acknowledgments:
52
The Butchertown Neighborhood Plan is the result of efforts by numerous individuals, government agencies, and consultants. A plan that does not involve those it hopes to serve can not fully realize its potential or vision. For this reason, those with a vested interest in the future of Butchertown put forth their time, effort, and ideas in the creation of this Plan. It is important to recognize and thank those Task Force members who were an integral part of this process including: Andy Blieden Gayle Ciliberti John Cliff Clinton Deckard Leah Dienes Jim Goodwin Rebecca Matheny Kati Parrish Debbie Rosenstein Jim Segrest Norman Tasman Robert Willett Louisville Metro Planning and Design Services: Ken Baker, Planning Supervisor Chris French Steven Sizemore Louisville Metro Neighborhood Planning website: http://www.louisvilleky.gov/PlanningDesign/Neighborhood+Plans/
Prepared by:
INTRODUCTION The earliest settlement of Butchertown can be traced as far back as the late 1700s. Butchertown’s early growth by the late-1820s, was the result of the development of a network of turnpikes that reached out to the city’s agricultural hinterlands, and easy access to Beargrass Creek. The presence of these roads attracted butchers and meatpackers to the Butchertown neighborhood, where they could intercept livestock being driven to market before they reached the urban core. German immigrant built homes fronting the street with small slaughterhouses at the rear of their properties, alongside Beargrass Creek. Farmers delivered their herds to these slaughterhouses, where the animals were processed, and the waste byproduct was discarded into nearby Beargrass Creek. Processed meat was then hauled to the wharves in Louisville for shipment to market by steamboat. The growth and success of the meatpacking industry led to the establishment of other industries in Butchertown, including tanneries, soap making, and candle making. Inns were opened to accommodate drovers, with associated pens and corrals to hold livestock. Another early influence on the neighborhood was local breweries and beer gardens like Woodland Garden. Created in the late-1820s, it was a popular social setting, and one of only two open air public gardens in Louisville during the early-nineteenth century. Today, Butchertown remains a vibrant, intact urban neighborhood with a diversity of land uses and the close juxtaposition of residential, commercial, and industrial buildings. Within the neighborhood, residential, commercial, and industrial buildings of historic and architectural significance create a cohesive urban setting. The purpose of this planning process is to initiate a proactive approach to future development in the neighborhood that respects and reflects the cultural and historic character of Butchertown. Butchertown’s Vision Statement, developed by the neighborhood, reflects the value placed on the community’s history while also recognizing the importance of continually striving for a vibrant neighborhood in the future.
Process Overview BUTCHERTOWN NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
BUTCHERTOWN NEIGHBORHOOD VISION STATEMENT
SUMMARY OF NEIGHBORHOOD CONCERNS
The future of Butchertown will be built on its rich history as it strives to attract new residents and businesses to the neighborhood. In an effort to maintain its authenticity however, Butchertown will also retain the variety of land uses, diversity of residents, and walkable neighborhood streetscapes that have served as the foundation for the Neighborhood’s vitality throughout its history.
This planning process was initiated by Louisville Metro Planning and Design Services and builds on recent historic preservation planning efforts as part of the Ohio River Bridges Project. Metro’s Planning and Design Services staff, the consultant, and the Task Force met on a regular basis to discuss issues relevant to the neighborhood plan, and the future of Butchertown. This process, along with additional public workshops, gathered pertinent input and feedback from residents and business interests that revealed a number of concerns and ideas relative to land use issues.
The Butchertown Neighborhood will not only strengthen its existing, unique characteristics, but also rebuild or renew those features that have been neglected over the years. Butchertown will re-establish its physical, historical, and cultural connections to the Ohio River by making the Beargrass Creek corridor a focal point, extending strategic streets to Waterfront Park, and highlighting prominent viewsheds of the Big Four Bridge. The Neighborhood will also partner with Louisville Metro to encourage strategies that return local streets to two-way traffic. Such an effort will not only create more pedestrian-friendly settings, but also serve as a catalyst for economic development. Story Avenue and Main Street represent the important commercial corridors linking the entire Neighborhood, and such initiatives will serve to reinforce their critical roles in the Neighborhood. Current and future development will respond to, and respect, the cultural, architectural, and natural features that give Butchertown its identity. Furthermore, the future vision of Butchertown - one of vitality and viability - will be based on cooperative strategies that encourage current and future residents and businesses to not only co-exist, but prosper and complement one another.
There was a general sense that recent commercial and residential development has had positive results in the neighborhood. However, many also felt the secondary (negative) impacts of some existing, heavy industrial uses were a detriment to the neighborhood fully realizing its potential for new residential and business development in the future. The Beargrass Creek corridor was also viewed as an underutilized asset the neighborhood needs to capitalize on. The neighborhood must work with pertinent Metro agencies to provide greater access to the creek, and utilize this natural corridor as a multi-use link within Butchertown, and connect the community to the greater East Downtown area. In addition to some existing land use conflicts, traffic patterns within and through the neighborhood were also a concern. One-way traffic on Story and Mellwood Avenues, and Main Street raised safety concerns and limited travel options for motorists navigating Butchertown. Many felt that returning two-way traffic patterns on these, as well as other streets in the neighborhood, could alleviate many of the truck traffic issues currently affecting Butchertown. However, not all of the concerns centered on vehicular mobility. There were numerous safety and aesthetic issues raised relative to the neighborhood’s sidewalks and streetscaping. The following tables summarize the previous Land Use and Mobility Recommendations relating to Metro’s Cornerstone 2020 Plan. As noted previously, these recommendations and associated timelines will vary based on construction of the Ohio River Bridges Project, economic development influences, as well as numerous other factors.
ES
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ES Cornerstone 2020 Recommendations BUTCHERTOWN NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Cornerstone 2020 / Land Development Code LU1
Evaluate and rezone neighborhood areas currently zoned R6 to Urban Neighborhood (UN) designation based on PDS appropriate conditions.
Short-term - 1-3 years
LU2
After final determination of Bridges Project impacts, evaluate the status of industrial-zoned properties to determine those properties suitable for EZ-1 or other mixed use zoning. This evaluation shall include consideration of existing land use and zoning of properties. Rezone PDS properties in accordance with recommendations of evaluation. (Existing M-3 properties, with a use that requires a Conditional Use Permit not allowed in the proposed EZ-1 district, should not be rezoned without agreement from property owner.)
Long-term - 7-10+ years
LU3
Consider revising the Downtown Form District boundary along the riverfront to guide new development of the PDS vacated land resulting from the Kennedy Interchange shifting southward as a result of the Bridges Project.
Long-term - 7-10+ years
LU4
Consider revising the Traditional Neighborhood (TN) Form District boundary along Story Avenue between Cabel and Buchanon Streets to a Traditional Marketplace PDS Corridor (TMC) Form District designation to encourage appropriate (re)development along this important commercial corridor.
Short-term - 1-3 years
LU5
After final determination of Bridges Project impacts, particularly the new Frankfort Avenue interchange, evaluate the status of industrial-zoned properties and Form District designation. Consider revising those properties PDS suitable for mixed use zoning or a Traditional Marketplace Corridor (TMC) Form District designation along Frankfort between Story Avenue and River Road.
Long-term - 7-10+ years
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Cornerstone 2020 Recommendations BUTCHERTOWN NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
ES
TIMEFRAME
Cornerstone 2020 / Land Development Code LU6
Evaluate and capitalize on the impacts of the expanded Waterfront Park, Big Four pedestrian bridge, and other PDS / DDC / BNA / Metro Parks redevelopment currently underway along the Ohio River.
Mid-term - 3-7 years
LU7
Evaluate redevelopment plans for the vacated land at the Kennedy Interchange as a result of the Ohio River Bridges PDS / BNA / DDC Project.
Long-term - 7-10+ years
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MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Cornerstone 2020 / Land Development Code M1
Evaluate the effects and opportunities of any new streets that are extended through the (relocated) Kennedy PW / PDS / BNA Interchange and connecting to River Road and/or Waterfront Park.
Long-term - 7-10+ years
M2
Evaluate the future effects and opportunities of the new Frankfort Avenue interchange at I-71 as part of the Bridges PW / PDS / BNA Project.
Long-term - 7-10+ years
PHOENIX HILL
NEIGHBORHOOD PLAN
Acknowledgments & Vision Statement PHOENIX HILL NEIGHBORHOOD PLAN
Adoption Date:
February 28, 2008
Acknowledgments: The Phoenix Hill Neighborhood Plan is the result of efforts by numerous individuals, government agencies, and consultants. A plan that does not involve those it hopes to serve can not fully realize its potential or vision. For this reason, those with a vested interest in the future of Phoenix Hill put forth their time, effort, and ideas in the creation of this Plan. It is important to recognize and thank those Task Force members who were an integral part of this process including: Cindy Brown-Kinloch Susan Fridenstine Steve Kersey Doug Magee Edie Mahaffey Bill Marzian Tom Nolan Todd Rine Louisville Metro Planning and Design Services: Ken Baker, Planning Supervisor Chris French Steven Sizemore Louisville Metro Neighborhood Planning website: http://www.louisvilleky.gov/PlanningDesign/Neighborhood+Plans/
Prepared by:
2020 Vision Statement: In our vision of 2020, Louisville and Jefferson County is a community widely recognized for its high quality of life, sense of tradition and competitive spirit. Our children have inherited a livable, vibrant and economically diverse community. We have clearly recognized that the quality of life depends upon continued success in the economic marketplace and an ongoing commitment to the conservation of environmental resources which define our heritage and enhance the livability of our community. Community residents share a sense of place and take great pride in their established and emerging neighborhoods which are culturally and economically diverse. Residents are proud of their differences in heritage and culture. Economic and educational opportunities are available to all residents, in every neighborhood. Every neighborhood is a safe place to live. The community enjoys a rich fabric of urban and suburban areas, interwoven with environmental resources, accessible parks, open space and the Ohio River Corridor, all representing a heritage of natural beauty. A multi-modal transportation system serves and ties together the entire community. Unified government services enhance the ability of the community to speak with a single voice in matters related to the investment of human, environmental and capital resources. The Cornerstone 2020 Vision for Louisville and Jefferson County is nothing less than the best of the past merged with the best of the future, creating a community where all residents can grow and prosper.
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Table of Contents PHOENIX HILL NEIGHBORHOOD PLAN
3 3 3 4
Adoption Date Acknowledgments 2020 Vision Statement Table of Contents
CHAPTER 4 - Mobility 28 28 30
Mobility Inventory and Analysis Summary of Neighborhood Concerns Mobility Recommendations
CHAPTER 1 - Introduction 6 6 6 6 6 8 9
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Neighborhood Boundaries Neighborhood Background Process Overview Purpose of the Neighborhood Plan Purpose of the Historic Preservation Plan Overview of the Ohio River Bridges Project Phoenix Hill Neighborhood Vision Statement
CHAPTER 2 - Neighborhood Identity 12 13 15 15
History of Phoenix Hill Neighborhood Land Use/Urban Form Unique Neighborhood Features Demographics (to be updated)
CHAPTER 3 - Land Use & Community Form 18 20 23 24 25
Land Use Inventory and Analysis Community Form and Zoning Analysis Summary of Existing Zoning Conditions Summary of Neighborhood Concerns Land Use and Zoning Recommendations
CHAPTER 5 - Implementation 34 35 38
Introduction Land Use Recommendations Mobility Recommendations
Appendix 44 45 46 47 49
Background Mapping - Study Boundary Background Mapping - Walking Survey Background Mapping - Potential Community / Recreational Facility Sites EDBA Charrette Results References
Executive Summary 48 48 49 49 50 51
Acknowledgments Introduction 2020 Vision Statement Summary of Neighborhood Concerns Cornerstone 2020 Land Use Recommendations Table Cornerstone 2020 Mobility Recommendations Table
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INTRODUCTION
C H A P T E R
O N E
Introduction
Intent
P H O E N I X
H I L L
N E I G H B O R H O O D
P L A N
This chapter provides an introduction to the Phoenix Hill neighborhood relative to its past, and current trends shaping its future. An overview of the neighborhood planning process, those individuals instrumental in the Plan’s development, and the purpose of the Neighborhood Plan are also addressed. At the conclusion of the chapter, the neighborhood’s Vision Statement is included, which represents the overarching goal for the future of Phoenix Hill.
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Introduction PHOENIX HILL NEIGHBORHOOD PLAN
NEIGHBORHOOD BOUNDARIES
PROCESS OVERVIEW
The Phoenix Hill neighborhood is located just east of downtown Louisville with Main Street serving as the northern border, I-65 and Floyd Street on the west, Broadway along the southern edge, and Baxter Avenue /Johnson Street on the east. Encompassing Phoenix Hill is the Butchertown neighborhood to the north, Cherokee Park to the east, Original Highlands along its southern border, and the Central Business District to the west.
NEIGHBORHOOD BACKGROUND
This planning process was initiated by Louisville Metro Planning and Design Services and builds on recent historic preservation planning efforts as part of the Ohio River Bridges Project. As described below, this planning process included a brief history of the Phoenix Hill National Register Historic District and inventoried the numerous, unique features of the neighborhood. This Neighborhood Plan also builds on the results of a charrette conducted by the East Downtown Business Association in July 2006. This two-day workshop gathered input from local residents and businesses, and produced a series of recommendations that are included as part of this document’s Appendix.
Phoenix Hill is primarily residential in character, though a mix of commercial, medical and light industrial uses remain. A diverse collection of various socio-economic residences, commercial businesses and industrial buildings are melded together in this dynamic, mixeduse neighborhood. The twenty-four block Medical Center Complex southeast of the Central Business District dominates the western edge of the neighborhood. Industrial buildings remain along Main Street as well as a small pocket of uses along Liberty Street. Market Street serves as the major commercial thoroughfare of Phoenix Hill, and was once filled with open air markets.
Lead by staff from Planning and Design Services, a Task Force comprised of businesses, community leaders, and residents was formed and an initial meeting was conducted in November 2006. An Open House was held in March 2007 to introduce the general public to the Neighborhood Plan, and the process to date. In July, residents and businesses of Phoenix Hill had the opportunity to review an initial draft of the Neighborhood Plan. Following ongoing guidance by the Task Force and input from the general public, this plan and its executive summary were adopted by Louisville Metro Council on February 28, 2008.
Phoenix Hill has witnessed somewhat of a rebirth in recent years as a result of infill development and construction of Liberty Green. Although the Medical Center Complex continues to expand, sometimes at the expense of Phoenix Hill’s historic resources, it serves as a major employer for the region and a strong economic engine in Louisville. At the opposite end of the neighborhood, the variety of entertainment venues within “the triangle” provides an active night life and strengthens the identity of Phoenix Hill as a dynamic, cultural setting for Louisville.
PURPOSE OF THE NEIGHBORHOOD PLAN The primary purpose of this planning process is to initiate a proactive approach to future development in the neighborhood. To do this in an appropriate manner, it is important to determine the strengths and weaknesses of Phoenix Hill. Some of the major concerns of neighborhood residents include maintaining Phoenix Hill’s strong identity as a diverse, mixed-use community, addressing parking concerns along commercial corridors, promoting the vitality of the business community, and enhancing the quality-of-life of residents. Ultimately, this plan puts forth strategies to retain the cultural and historic character of Phoenix Hill while simultaneously encouraging continued growth in the neighborhood.
Introduction PHOENIX HILL NEIGHBORHOOD PLAN
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Phoenix Hill Neighborhood Study Boundary
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Introduction PHOENIX HILL NEIGHBORHOOD PLAN
PURPOSE OF THIS HISTORIC PRESERVATION PLAN
OVERVIEW OF THE OHIO RIVER BRIDGES PROJECT
The intent of the historic preservation plan (HPP) was to provide a context to inform and guide the implementation of specific mitigation measures for Phoenix Hill as a result of the Ohio River Bridges Project. The Project’s Record of Decision (ROD) and Memorandum of Agreement (MOA) stipulated the HPP(s) focus on issues within affected National Historic Districts. The Phoenix Hill HPP was developed in consultation with property owners, the Phoenix Hill Neighborhood Association, the general public, pertinent Louisville Metro agencies, as well as local, regional and state government planning interests. The HPP refers to, and builds upon, existing studies and plans such as the Ohio River Corridor Master Plan, the Cornerstone 2020 Plan, and other documents addressing the neighborhood that have been adopted and/or referenced by Louisville Metro Government. The Beargrass Creek Watershed Report, developed under the guidance of Louisville Metro’s Metropolitan Sewer District, was also referred to regarding water quality issues along this important natural feature.
The Ohio River Bridges Project (Project) is comprised of six components including: 1) reconstruction/relocation of the interstates and ramp systems to the south of the existing “Spaghetti Junction”; 2) a new downtown bridge just east of the existing Kennedy Bridge; 3) a new Indiana approach to the (new) bridge and ramps systems in Jeffersonville; 4) a new connection linking the new “East End” bridge to the existing Gene Snyder Freeway (KY 841); 5) an “East End” bridge approximately eight miles from downtown Louisville; and 6) a new Indiana connection linking the Lee Hamilton Highway (IN 265) to the new “East End” bridge. The first two phases of this long-term project will have the greatest impact on the Butchertown neighborhood.
The goals of the HPP included (1) identifying the unique characteristics, context, and historic resources within the Phoenix Hill National Register Historic District and (2) recommending ways to protect and enhance these features. Many of the proposed recommendations represented an integral part of the long term viability and historic integrity of the Phoenix Hill district. Particular emphasis was placed on the avoidance, minimization and mitigation of adverse Project effects. Additional issues detailed in the plan included: • Establishment of the necessary background information, analysis, goals, objectives, and policies to ensure the longterm vitality of land uses, circulation issues, urban design features, and infrastructure. • Mitigation of the impacts of the Project on the Phoenix Hill historic district. • Retention and preservation of historic and architectural resources within the district and surrounding context.
Ohio River Bridges Project Sections The Kennedy Interchange phase (SDC-1), where Interstates I-64, I-65, and I-71 converge, will be completely rebuilt just south of its current location. New interchanges with I-64 will be constructed at the Mellwood and Story Avenues, along with a reconstructed, partial interchange at I-71 and Frankfort Avenue. The existing ramp system at I-65 and Jefferson Street/Muhammad Ali Boulevard will also be reconstructed to improve traffic flow in that area.
Introduction PHOENIX HILL NEIGHBORHOOD PLAN
Bridges Project effects on Phoenix Hill Obviously, a project of the magnitude of the Ohio River Bridges Project has an impact not only on Phoenix Hill, but Louisville and the bi-state region as well. As noted previously, the new, reconfigured Kennedy Interchange (SDC-1) and new downtown bridge crossing the Ohio River (SDC-2) will have direct and indirect impacts on Phoenix Hill. The entire Kennedy Interchange will essentially shift south from its existing location. In addition, I-65 will essentially be rebuilt from Gray Street to the new Kennedy Interchange. Along this section, several ramps will be reconfigured to improve access between I-65 and Interstates 64 and 71. The I-65 interchange at Jefferson Street / Muhammad Ali Boulevard will also be rebuilt to improve traffic flow in this area of Phoenix Hill. In an effort to minimize impacts on Phoenix Hill during construction, the Bridges Project has stipulated several measures to monitor and protect historic resources in the neighborhood. In general, the Project will be designed to minimize adverse noise effects on historic properties in accordance with state and federal regulations. Specific historic
I-65 Corridor Along Western Edge of Phoenix Hill
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structures may also receive enhanced noise abatement treatments to mitigate interior noise levels. Project designers will also incorporate “Context Sensitive Design” solutions in an effort to integrate interstate system components into the historic urban fabric of Butchertown. Components such as bridges, retaining walls, signage, and landscaping will be designed to reflect the existing, unique architectural and cultural features in the neighborhood. Throughout the Bridges Project, there is a built-in public participation process to inform and gather pertinent feedback from affected stakeholders of Project decisions. As noted in the previous recommendations, it is important this neighborhood plan be re-evaluated once construction of the Bridges Project begins, specifically the Kennedy Interchange section. One can not fully anticipate the impacts of the Bridges Project either during construction, immediately after completion, or even five years after the project is complete. That is why it is incumbent upon the Phoenix Hill Neighborhood Association, Metro’s Planning and Design Services, and others to re-visit this neighborhood plan and its recommendations to adjust to unforeseen changes to Phoenix Hill.
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Introduction PHOENIX HILL NEIGHBORHOOD PLAN
PHOENIX HILL VISION STATEMENT The future of Phoenix Hill should represent a seamless transition between the neighborhood’s historic past, with the rebirth of the neighborhood’s identity. Residents, businesses, and community leaders alike must strive to retain, and build on, Phoenix Hill’s cultural, historical, and environmental resources as it looks to the future as a vibrant and inclusive community. The Phoenix Hill community must continue to reach out to those in need, and strive to maintain and promote a population comprised of a diverse mix of incomes, races, and abilities. The continued revitalization of the neighborhood must include affordable housing, strategies that promote home ownership, and appropriate business development serving the needs of neighborhood residents while strengthening the tax base, and creating job opportunities.
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The unique urban fabric of Phoenix Hill serves as a solid foundation on which to strengthen the natural, architectural, and historical features needed for a successful neighborhood. A renewed focus on Beargrass Creek as a multi-use greenway connecting the neighborhood to greater Louisville, and as a (re)development opportunity, could strengthen the economic viability of the community and weave the Neighborhood into a cohesive whole. The neighborhood will also continue to seek circulation strategies that encourage the return of local streets from one-way to twoway traffic. Such an effort will not only create more pedestrian-friendly settings, but also serve as another catalyst for economic development. The neighborhood should also work with Louisville Metro to reverse the destructive trend of building demolition. The individual “communities” of businesses, residents, artists, and social agencies must collectively work together with a renewed sense of purpose to strengthen the identity of Phoenix Hill as a vibrant and inclusive Louisville neighborhood.
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NEIGHBORHOOD IDENTITY
C H A P T E R
TWO
Neighborhood Identity
Intent
P H O E N I X
H I L L
N E I G H B O R H O O D
P L A N
The intent of this chapter is to provide a brief overview of the history and unique features of Phoenix Hill. In addition to a brief history of the neighborhood, current demographics, land uses, and unique natural and man-made features are also summarized in this chapter. It is important these special features are highlighted and preserved to reflect the historical, cultural, and architectural integrity of Phoenix Hill.
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Neighborhood Identity PHOENIX HILL NEIGHBORHOOD PLAN
HISTORY OF PHOENIX HILL The Phoenix Hill neighborhood, originally known as Uptown, was once a part of Preston’s Enlargement, a portion of Colonel William Preston’s 1774 grant. Phoenix Hill was annexed to Louisville in 1827, first subdivided in 1835, and densely populated by 1860. The neighborhood became known as Phoenix Hill after the Civil War in reference to Phoenix Hill Park, which was created in 1865. The park was a major recreational venue during the second half of the nineteenth century. The complex included a brewery, beer gardens, and picnic grounds, as well as a dance hall, skating rink, and bowling alleys.
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The form and layout of Phoenix Hill was greatly influenced by the religious and cultural institutions and traditions immigrants brought with them from their homelands. These ethnic groups, primarily comprised of Germans and Irish, settled the area during the 1840s. It was primarily a residential neighborhood within a predominately German enclave east of the central business district of Louisville that also included the Butchertown neighborhood. The first German Catholic church in Louisville, St. Boniface, was established here in 1836. The diverse neighborhood endured in spite of anti-immigrant sentiments and violence during early years. The Bloody Monday riots of 1855 began in Phoenix Hill at Shelby and Liberty Streets, and spread to surrounding ethnic neighborhoods. The event witnessed mobs that set fire to buildings, ransacked stores and homes, and beat passersby. During the 1840s, German and Swiss immigrant brewers dominated Louisville’s brewery industry. Beer was predominantly produced for consumption in the immediate neighborhood. California, Butchertown, downtown Louisville, Portland, Phoenix Hill, Germantown, Clifton, and Smoketown all boasted neighborhood breweries. To more easily provide their product to neighborhood residents, many of these breweries operated saloons on or near the brewery property. The Phoenix Hill Brewery went beyond providing a saloon, developing Phoenix Hill Park as a pleasure ground and entertainment center that served both neighborhood residents and the larger community. The triangular portion of the neighborhood bounded by Beargrass Creek,
Baxter Avenue and Broadway did not develop until after 1865, when Phoenix Hill Park opened there. Phoenix Hill Park developed atop a knoll on the southwest side of Baxter Avenue. The centerpiece of the park was the Phoenix Hill Brewery, established in 1865 by Philip Zang, Philip Schillinger, and Gottfried Miller. Miller designed both the brewery and park grounds skillfully utilizing the sloping site. The park proved a popular place for picnics and political rallies and by 1890 included a beer garden with a large auditorium, skating rink, large covered pavilion, and a bandstand in addition to the brewery buildings. Recreational facilities included a 111foot long bar, four bowling alleys, and a card room. Crowds came to the park to enjoy the grounds, use the recreational and sporting facilities, drink Phoenix Bohemian Beer, and be entertained by bands, sporting events, and political speeches. John Philip Sousa’s band played in the park. Politicians who spoke at Phoenix Hill included William Howard Taft, Theodore Roosevelt, Charles Evans Hughes, and William Jennings Bryan, who drew a crowd of 15,000 when he spoke in 1896 as the “free silver” candidate for president. Sporting events held at Phoenix Hill Park included the city’s first indoor baseball game (1891) and a six-day bicycle race in 1897. Although one of Louisville’s most popular entertainment complexes, the Phoenix Hill Brewery and its associated entertainment complex closed in 1919 and never reopened—a victim of Prohibition. Buildings associated with the complex were razed over time including the great hall which was demolished in 1938. The knoll on which the complex sat was removed for road construction, eliminating what had been considered spectacular views. Only one building from the brewery, the former stable, survives at 508 Baxter Avenue at Hull Street. Phoenix Hill remained a flourishing German neighborhood well into the twentieth century, though the area experienced gradual change as businesses encroached and some residents began to move to newer neighborhoods. The decline of other urban neighborhoods, encroachment of the interstate highway, and dwindling populations contributed to the deterioration of the Phoenix Hill neighborhood.
Neighborhood Identity PHOENIX HILL NEIGHBORHOOD PLAN
To combat this, several business leaders and residents organized the Phoenix Hill Association in 1975 to focus on the community’s rebirth. In 1977, Mayor Harvey Sloan declared the area a prime revitalization candidate and secured federal funds for rebuilding efforts. Since that time, dilapidated housing has been removed, several new housing developments have been constructed, and new businesses have returned to the area. In 1983, Phoenix Hill was listed on the National Register of Historic Places for its diversity of land uses, history, and architectural significance. Today, two of the most influential factors on the neighborhood include the medical complex and the Liberty Green redevelopment project. The medical complex is comprised of a 20-block area between I-65 and Hancock Street just north of Broadway. Future plans call for the development of a bio-medical research park to strengthen Louisville’s already-strong reputation as a leader in the healthcare industry. The medical complex represents the most influential land use affecting the Phoenix Hill neighborhood. The continued, eastward expansion of medical buildings threatens to further deteriorate the integrity of Phoenix Hill’s historic resources. The Liberty Green project, located just north of the medical complex, involves the redevelopment of the Clarksdale public housing site. The $233 million project is funded through a variety of public sources including a $40 million HOPE VI federal grant. Currently under construction, Liberty Green Housing along Jefferson St. the project will incorporate a wide range of housing types including apartments, townhomes, and attached houses. Public housing units will also be integrated into the project to encourage affordable housing for all income levels. A series of small neighborhood parks and network of streetscape improvements will link the development to surrounding amenities.
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NEIGHBORHOOD LAND USE / URBAN FORM The residential architecture in Phoenix Hill spans nearly a century with some examples dating to as early as 1840. These are among the earliest residences existing in the inner city. The period between 1870 and 1890 appears to be the most widely represented residential building period. Generally, the housing stock was built for lower- to middleincome families, and was modest in size. Even examples of residences in the Italianate and Victorian styles are generally more modest than examples of those styles found elsewhere in Louisville. The most common house type in Phoenix Hill is the shotgun. The shotgun cottage is a onestory building that is, one-room wide, and three- to four-rooms deep. The front room is usually the most formal and most public room in the house. The back room is usually comprised of the kitchen, and is accompanied by Brick Shotgun along Jefferson St. a small porch or pantry located behind it. Shotguns, built throughout Louisville between the end of the Civil War and 1910, are believed to comprise as much as ten percent of the city’s housing stock. The proliferation of the shotgun in Phoenix Hill is indicative of the neighborhood as a middle- and working-class neighborhood. The houses are built of wood or brick, with a hipped or front-facing gabled roof, and are found with a variety of architectural detail, including Italianate-, Classical Revival-, and Queen Anne-style ornament. Variations on the shotgun include the camelback and the double shotgun. The camelback is three to four rooms deep with the back portion of the house two stories high, with the front remaining a single story. The double shotgun is a single building with one roof over two shotgun plan houses divided by a common wall. Double camelbacks also exist, but are rarer. One of the more outstanding examples of the type is located at 908 East Jefferson Street, built in 1886. This brick shotgun has an
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Neighborhood Identity PHOENIX HILL NEIGHBORHOOD PLAN
Camelback Shotguns along Jefferson Street
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unusual cornice that carries “butterfly” brackets resting on a stone band. Another example of a brick shotgun with decorative elements is at 909 East Chestnut Street. Built in 1883, it is highlighted by a door hood supported by brackets with foliage motifs that overlap and appear to form a grotesque mass.
Churches represent the most prominent institutional buildings in the neighborhood. Many of these congregations were established by German immigrants. St. Boniface, established in 1836, was the first German Catholic church in Louisville. The building currently occupied by St. Boniface is a stone, Gothic St. John’s Church Revival-style structure. St. Martin of Tours, at 539 Shelby Street, was also a German parish, established in 1853. The building is an example of the early Gothic Revival style, with a new façade built about 1900. St. John’s German Evangelical Church at 221 South Hancock in Phoenix Hill was the city’s second German Evangelical church. The First German Methodist Episcopal Church is at 220 South Clay in Phoenix Hill. Both of these buildings are examples of vernacular Greek Revival architecture, as is the Shelby Street Methodist Episcopal Church at 216 South Shelby Street. Commercial buildings in this area are primarily two or three story brick structures located along Market Street and Broadway. Most are Italianate in style and have cast iron facades and storefronts. Located
throughout Phoenix Hill are industrial buildings dating from the mid-to-late nineteenth century. While many of these buildings are functional in nature and cannot be classified under a formal architectural style, they do contribute to the land use and architectural Commercial buildings along Market St. diversity of the Phoenix Hill neighborhood.
Neighborhood Identity PHOENIX HILL NEIGHBORHOOD PLAN
UNIQUE NEIGHBORHOOD FEATURES
DEMOGRAPHICS
Phoenix Hill contains a unique collection of natural and man-made features that provide a strong sense of place for the neighborhood. One of the most prominent features in Phoenix Hill is the Beargrass Creek corridor and adjacent elevated railroad crossing through the neighborhood. Beargrass Creek has been an influential factor on the neighborhood’s development over the years. However, much of this natural corridor has been neglected over the Channelized Beargrass Creek years. Throughout this neighborhood planning process, residents stressed the importance of transforming this once-neglected part of Phoenix Hill into a vibrant focal point for the community.
The following demographic information is based on 2000 U.S. Census data. It should be noted that with the demolition of the Clarksdale public housing project, the subsequent development of Liberty Green, and other development in the neighborhood since 2000, these census statistics from seven years ago are significantly dated. However, it is important to provide this “snapshot” of the neighborhood’s composition for future comparisons. 2010 census figures will reveal a Phoenix Hill neighborhood with a greater diversity of population, income levels, and educational attainment.
For better or worse, the I-65 corridor along the western edge of the neighborhood represents a major dividing line between Phoenix Hill and downtown area. The numerous overpasses create a series of potential gateways for the neighborhood that could be enhanced to create I-65 Overpass at Market Street more defined and identifiable entrances into Phoenix Hill. Such an effort could be a prominent feature of any efforts to unify the Main and Market Street corridors that are currently “divided” by the interstate.
Approximately 4,877 residents live in Phoenix Hill and of that, slightly more than 67% are African-American, with 28% of the population classified as White. This compares to Jefferson County’s population make-up of 18.9% and 77.4% respectively. As the chart below indicates, 68% of Phoenix Hill’s households earn less than $20,000 annually. Additional population and housing information includes: · over half (53.5%) of Phoenix Hill’s 2,368 total households contain only one person · approximately 17% of the population holds some form of college degree (Associate Degree or higher) compared to the Jefferson County average of 30.4% · 36.4% of the population works in the entertainment or health care sectors of the economy · only 7.7% of the housing is owner-occupied compared to Jefferson County’s rate of 60.9% · 6.2% of Phoenix Hill’s housing stock is vacant which is equal to that of Jefferson County 4% 2%
Under $10,000 3% 3%
$10,000-20,000 $20,000-30,000
9% 48%
$30,000-40,000 $40,000-50,000 $50,000-60,000
11%
$60,000-75,000 20%
$75,000-100,000 Over $100,000
Phoenix Hill Household Income (Source: 2000 Census Data)
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Neighborhood Identity PHOENIX HILL NEIGHBORHOOD PLAN
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LAND USE AND COMMUNITY FORM
CHAPTER
THREE
Land Use & Community Form
Intent
P H O E N I X
H I L L
N E I G H B O R H O O D
P L A N
This chapter outlines existing land use and community form conditions within Phoenix Hill. Based on this analysis and the input of Task Force members, recommendations are made to address areas of conflict and opportunities to redevelop strategic areas of the neighborhood. One of the key goals of these recommendations is to promote new (re)development that respects the traditional neighborhood scale and character of Phoenix Hill.
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Land Use & Community Form PHOENIX HILL NEIGHBORHOOD PLAN
LAND USE INVENTORY AND ANALYSIS
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An inventory of Phoenix Hill’s existing land uses and development patterns is a critical component of this neighborhood plan. Such an exercise establishes the groundwork for subsequent recommendations that are consistent with established patterns of development and reflect the vision of neighborhood residents and businesses. These findings are based on recent photographs of buildings in the neighborhood and “windshield” (visual) surveys detailing existing land uses. There are seven general categories used to delineate land uses in Phoenix Hill including: · One and Two Family Residences · Multi-Family Residences · Commercial / Office · Industrial · Public / Institutional · Parking Area · Vacant Building In general, the Phoenix Hill neighborhood is comprised of four distinct areas. They include the: 1) Residential Core, 2) Commercial Corridors, 3) Mixed-Use “Triangle”, and 4) Medical Complex. The following summaries briefly describe the characteristics or issues specific to each of these areas.
1) Residential Core The Residential Core is centrally-located in the neighborhood primarily south of Jefferson Street and includes the Liberty Green Redevelopment Project currently under construction. This area is comprised of contemporary, multi-family units as well as historic singlefamily residences. Scattered throughout the area is residential infill in the form of both single- and multi-family residences, and established commercial uses. The area also contains a number of churches and social services Infill Housing Along Liberty Street
serving the neighborhood and larger community. Phoenix Place, an urban renewal project composed of a series of multi-family units, is centered around the intersection of Shelby and Madison Streets.
2) Commercial Corridors These areas are comprised of three prominent corridors traversing the neighborhood. Main and Market Streets, as well as Broadway, play a major role in defining the character of Phoenix Hill. The three-block area west of I-65 along both Main and Market has witnessed a resurgence as a result of infill development and the successful rehabilitation of several buildings. Currently, there is a new condominium project under construction on the southwest corner Main and Preston Streets. Main Street also serves as a common boundary between the Phoenix Hill and Butchertown neighborhoods. Market Street has also witnessed a rebirth due in large part to the efforts of the East Downtown Business Association and an influx of artists and specialty shops among other businesses. The corridor contains a relatively intact collection of historic commercial buildings that have been rehabilitated into locally-owned shops, restaurants, art studios and galleries. The recent addition of a neighborhood farmer’s market will only strengthen the continued resurgence of this vibrant Phoenix Hill corridor. The Broadway corridor represents the southern-most edge of the neighborhood and accommodates a relatively large volume of traffic through the neighborhood; thus serving as a vital link (gateway) to Downtown Louisville and surrounding neighborhoods. Extending between I-65 and Baxter Avenue, this corridor contains a wide variety of land uses and crosses over Beargrass Creek and under the elevated railroad tracks just west of Barret Avenue. It is important this corridor is treated as an identifiable edge that defines southern-most point of Phoenix Hill.
Land Use & Community Form PHOENIX HILL NEIGHBORHOOD PLAN
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Land Use & Community Form PHOENIX HILL NEIGHBORHOOD PLAN
3) Mixed-Use “Triangle”
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Bordered by Broadway and Baxter Avenue, this area contains a diverse mix of residential, commercial and industrial uses, along with an entertainment district Phoenix Hill is known for. Numerous heavy commercial / industrial uses are contained in the diagonal strip of land between Commercial Businesses Along Baxter Avenue the rail line and Chestnut Street Connector. Running from Broadway at the southern edge, to Baxter Avenue to the north(east), this corridor comprised of Beargrass Creek and the railroad serves as a perceptual and physical division between the main (western) part of the neighborhood and this (eastern) triangular section. However, the natural corridor of Beargrass Creek and elevated rail line are also unique components of this “wedge” of Phoenix Hill. A collection of single-family residences encircle Rubel Park. This park has taken on added significance due to the recent loss of neighborhood park space as a result of the Liberty Green redevelopment project.
4) Medical Complex The Medical Complex is comprised of a collection of hospitals and research facilities within a twenty-block area between I-65 and Hancock Street just north of Broadway. The continued, eastward expansion of medical buildings threatens to further deteriorate the integrity of Phoenix Hill’s historic character. Future plans call for the development of a bio-medical research park to strengthen Louisville’s already-strong reputation as a leader in the healthcare industry. Currently, Clay Street between Muhammad Ali Boulevard and Gray Street represents somewhat of an unofficial “dividing line” between the Medical Complex and the Phoenix Hill neighborhood. Although residents and businesses recognize the economic importance of the Medical Complex, participants during the neighborhood planning process expressed a desire to limit the continued expansion of medical uses east of Clay Street.
COMMUNITY FORM AND ZONING ANALYSIS Louisville Metro has established two distinct layers of zoning regulations. The traditional zoning classification serves as a baseline to determine permitted and conditional land use types as well as allowable density of development within specific zones. Another layer of regulations pertains to the quality of new development. This second layer of zoning entitled “Form District Regulations” ensures the design of structures within a given area is compatible with adjacent structures and responds to the contextual, urban setting of the neighborhood.
Zoning Inventory This section reviews Louisville Metro’s zoning ordinances. The traditional zoning classification serves as a baseline to determine permitted and conditional land use types as well as allowable density of development within specific zones. Zoning districts work in coordination with Form Districts to determine the design, layout, use, density, and all other standards associated with development in Louisville. Because Phoenix Hill doesn’t contain a local historic district, there are currently no historic preservation design guidelines in place for the neighborhood. The zoning districts affecting the Phoenix Hill neighborhood include: · Residential Multi-Family Districts: R-6, R-7 · Office/Residential Districts: OR-1, OR-2, OR-3 · Neighborhood Commercial District: C-N · Commercial Districts: C-1, C-2, C-3 · Commercial Manufacturing District: CM · Enterprise Zone District: EZ-1 · Industrial Districts: M-2, M-3 Listed below is a brief summary describing the intent of each district and permitted uses within each. For more specific information, refer to Louisville Metro’s official zoning ordinances and maps, or contact the appropriate Louisville Metro office. The purpose of these descriptions and map, is to provide a broad picture of pertinent regulations and permitted uses within the Phoenix Hill neighborhood. Residential Multi-Family Districts (R-6, R-7) The Residential Multi-family District provides the opportunity for areas in the medium density residential land development range to be used for single-family dwellings, row houses or multiple family dwellings.
Land Use and Community Form
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Copyright (c) 2006, LOUISVILLE AND JEFFERSON COUNTY METROPOLITAN SEWER DISTRICT (MSD), LOUISVILLE WATER COMPANY (LWC), LOUISVILLE METRO GOVERNMENT, and JEFFERSON COUNTY PROPERTY VALUATION ADMINISTRATOR (PVA). All Rights Reserved.
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Land Use & Community Form PHOENIX HILL NEIGHBORHOOD PLAN
Office/Residential Districts (OR-1, OR-2, OR-3) The Office Residential Districts are intended to provide a balanced mix of professional and medical offices, residential uses, and supporting business and recreational services. Neighborhood Commercial District (C-N) The Neighborhood Commercial District is a specialized district for the sale of daily convenience items or services within neighborhoods for the use of local residents.
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each other and to the street, open space, street design standards, land use buffering techniques, signage, site layout, or landscaping. The intention of these districts is to provide diversity of land uses while ensuring the shape/ character of new development is compatible with adjacent development. Listed below are the four districts affecting development in the Phoenix Hill neighborhood. · Campus Form District (C) · Downtown Form District (DT) · Traditional Marketplace Corridor Form District (TMC) · Traditional Neighborhood Form District (TN)
Commercial Districts (C-1, C-2, C-3) Commercial Districts include areas where various levels of retail and service businesses, supporting businesses, and limited residential uses are located. The C-3 Commercial district represents a specialized area for the location of high density/intensity commercial and residential developments within the Central Business District (CBD). It recognizes the CBD as the focal point of business, commercial, and transportation activities in the Louisville metropolitan area.
Campus Form District (C) The intention of the Campus Form District is to create self-contained patterns of development integrated with the surrounding area that provide a mixture of uses to serve workers, students, and residents. Development includes good internal access, connectivity to adjacent districts, streetscapes that include sidewalks, landscaping, street furniture, or gateways, and opportunities for open space.
Commercial Manufacturing District (CM) The intention of this district is to provide a setting for a mix of commercial and manufacturing sales and service businesses.
Land uses in this district include medium to high-density residential, retail shops, services, offices, and institutional activities. This district emphasizes the importance of pedestrian activity within the site that focuses on pedestrian connectivity, open space, streetscaping, and non-disruptive (screened) parking areas.
Enterprise Zone District (EZ-1) The Enterprise Zone establishes a specialized district for locating commercial and industrial uses in areas designated as enterprise zones by the appropriate legislative body. Industrial Districts (M-2, M-3) These industrial districts are intended to provide locations for manufacturing operations and storage.
Form Districts Whereas standard zoning districts are used to regulate land use and density, the purpose of Form Districts is to shape the physical “form” of development. This can include building setbacks, height and materials, lot size and area dimensions, relationships of uses and buildings to
Downtown Form District (DT) The Downtown Form District is intended to support development and redevelopment in downtown Louisville while preserving the existing, historic character of the area. This district was created to strengthen downtown Louisville as the heart of the city and economic center of the region. Some of the main objectives of this district are to ensure a compact, “walkable” core and an active pedestrian realm by linking downtown, the waterfront, and adjacent neighborhoods. Streetscape improvements, conservation of historic resources, and the inclusion of public art and amenities are also key elements of this district.
Land Use and Community Form PHOENIX HILL NEIGHBORHOOD PLAN
Traditional Marketplace Corridor Form District (TMC) The identification and enhancement of the character along some of Louisville’s more prominent circulation corridors is the primary purpose of this district. These marketplace districts help to delineate corridor gateways, reinforce the corridor’s function and identity, and encourage alternative modes of travel. Additional objectives for this district include guidelines for access and circulation, streetscaping, and considerations for open space. Specific guidelines also address the development and appearance of prominent sites focusing on high quality design and design standards for linkages to adjacent districts and land uses. Traditional Neighborhood District (TN) Traditional Neighborhood Districts support the redevelopment, enhancement, and preservation of existing neighborhoods, and provide a sense of place for residents. Diversity, and the creation of healthy, vibrant, livable places are a primary goal of these districts. Such urban settings promote a culturally and economically diverse environment that accommodate people all ages and incomes. Guidelines include the creation of a neighborhood center, recognizable edges, and transitions between adjacent districts. A variety of land uses are encouraged within the Traditional Neighborhood District that are compatible with the scale and character of existing and proposed neighborhoods. These neighborhoods should accommodate a variety of residential uses, as well as office and neighborhood commercial uses, especially in aging neighborhoods with underutilized or vacant structures. Internal circulation, streetscaping, open space, and the integration of appropriate housing units are also elements of this district.
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SUMMARY OF EXISTING ZONING CONDITIONS In general, there are several instances where the base zoning designation does not reflect existing land uses. The higher-density “R6” classification around Rubel Park doesn’t reflect the fact that much of the area contains single family residences and/or duplexes. It is important the city’s zoning regulations for this area, as well as others that are predominantly single family residential areas, reflect and reinforce the importance of retaining existing residential development in Phoenix Hill. There are also opportunities where the existing Form District designation(s) could be modified to not only reflect existing conditions, but also encourage appropriate development in Phoenix Hill. The Traditional Marketplace Corridor (TMC) Form District designation could be Adaptive Reuse Along Market Street expanded along Main and Market Streets, as well as Broadway an appropriate response to the needs of the neighborhood along these corridors. The TMC Form District could also encompass sections of Jefferson Street to encourage redevelopment that supports the changing dynamics of Phoenix Hill as a result of the Liberty Green development project.
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Land Use and Community Form PHOENIX HILL NEIGHBORHOOD PLAN
SUMMARY OF NEIGHBORHOOD CONCERNS As noted previously in Chapter 1, Metro’s Planning and Design Services staff, the planning consultant, and the Task Force met on a regular basis to discuss issues relevant to the plan. This process, along with public workshops, gathered pertinent input and feedback from residents and businesses that revealed a number of issues or concerns in Phoenix Hill.
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There was general consensus among those attending the various meetings that recent (re)development in Phoenix Hill has had, or will have, a positive effect on the neighborhood. However, there are concerns that such development may gentrify the neighborhood and potentially Social Services at St. John Day Center push low-income residents from the area. Phoenix Hill is recognized as a diverse, socially-conscious community and many expressed a strong desire the neighborhood retain that quality. Along those same lines, the need to retain and develop more affordable housing to promote homeownership was also a primary issue. Listed below are additional issues raised by the Task Force and general public during the information-gathering phase of this Neighborhood Plan. Many of these items have evolved into the various recommendations at the conclusion of this chapter. ·
Continued development pressures and expansion of the medical complex threaten the neighborhood’s identity and historic integrity.
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Need for more green space and/or public open space.
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Existing R-6 Zoning District should be rezoned to more accurately reflect existing land uses and discourage multifamily conversions.
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Too much (unscreened) outdoor storage detracts from pedestrian-friendly streetscapes.
·
Large number of deteriorated or abandoned properties creates crime problems.
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Concern over the (unintended) consequences of the Liberty Green project (gentrification).
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Underutilized or vacant buildings along Beargrass Creek.
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The need for comprehensive solutions that address parking issues and allow for the full utilization of properties.
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Continued demolition of historic resources - especially the loss of historic shotgun homes along Jefferson Street.
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Beargrass Creek creates a barrier that divides the neighborhood into two sections.
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The need for quality (re)development along the primary corridors that reflects these important entries into the neighborhood.
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Lack of businesses to serve the daily needs of residents.
·
The Broadway corridor projects a negative image of Phoenix Hill due to recent demolition and overall lack of investment or redevelopment along the street.
·
Ensure recommendations in the Neighborhood Plan complement and/or strengthen the findings developed by a 2006 charrette conducted by the East Downtown Business Association.
·
The appropriateness or effectiveness of existing Form Districts along the Main and Market Street corridors.
Land Use and Community Form PHOENIX HILL NEIGHBORHOOD PLAN
LAND USE AND ZONING RECOMMENDATIONS The following recommendations are based on an understanding of existing conditions in Phoenix Hill and extensive public involvement throughout this neighborhood planning process. These recommendations serve to reinforce and reflect the future vision of the neighborhood. Chapter 5 contains an Implementation Table that categorizes these Land Use/Community Form recommendations, lists relevant agencies, and preliminary time frames for implementing these measures. Throughout the neighborhood planning process, the general consensus centered on the desire to promote new development in Phoenix Hill, while simultaneously retaining the neighborhood’s existing character, diversity, and sense of social responsibility. Maintaining and expanding Demolition of Historic Resources in Neighborhood access to affordable housing was also a major issue with many participants. Also, although there was near-unanimous agreement that the demolition of historic resources must be curtailed, there was little agreement on how best to achieve such a goal. The following Land Use recommendations are based on public input, and discussions held between the Phoenix Hill Task Force, Louisville Metro, and the planning consultant.
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Cornerstone 2020 / Land Development Code: LU1 Evaluate and consider revising appropriate neighborhood areas currently zoned R6 to Urban Neighborhood (UN) designations. LU2 Evaluate and consider revising the Downtown and Traditional Neighborhood Form District boundaries to reflect the Liberty Green development and the expansion of the Medical Complex. Future development along Clay Street should reflect the scale and character of existing buildings in Phoenix Hill to buffer the neighborhood from encroaching Medical Complex buildings. LU3 Evaluate and consider revising the Traditional Marketplace Corridor Form District boundary to encompass the northern side of Jefferson Street between Clay and Chestnut Streets. LU4 Rezone Rubel Park from a R6 to R1 designation. LU5 Evaluate and consider revising the Downtown and Traditional Marketplace Corridor Form District boundaries along Market Street to reflect the corridor’s unique historical resources, and respond to current development trends. LU6 Utilize the urban design guidelines in the Liberty Green pattern book for future infill development within the Urban Neighborhood zoning district that incorporates the Plan Development option.
Infrastructure / Capital Improvements: LU7 Coordinate with the Metropolitan Sewer District for stormwater management policies and Federal floodplain regulations to determine potential limitations to the location, or type, of development within the Beargrass Creek watershed. LU8 Determine strategic locations, possibly along designated bike routes, for small neighborhood greenspace and/or public places. LU9 Identify strategic locations for trailheads along the Beargrass Creek corridor that maximize creek access and serve as amenities for existing or future development.
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Land Use and Community Form PHOENIX HILL NEIGHBORHOOD PLAN
Policy / Programmatic: LU10 Partner with the Housing Authority and other like-minded agencies to develop and market affordable, single-family housing. LU11 Investigate potential sites/strategies for locating community or recreational facilities within Phoenix Hill. Such a study could identify a network of locations focusing on a variety of activities that address a range of neighborhood needs. LU12 Explore and initiate strategies to reduce and/or eliminate the demolition of historic resources throughout the neighborhood. LU13 Promote land use strategies for the re-use of existing buildings rather than building new structures.
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LU14 Redevelop/rehabilitate industrial buildings for office, retail, mixed-use, or multi-family residential if existing uses are no longer viable. LU15 Encourage the appropriate rehabilitation of existing, industrial buildings along the Beargrass Creek/railroad corridor highlighting Phoenix Hill’s historic relationship to the waterway. LU16 Study potential sites/strategies for locating public restroom facilities within Phoenix Hill. Such an effort could be coordinated with efforts to expand designated bike routes.
School that result in a more child-friendly and safer environment. LU22 Target the triangular-shaped block surrounded by Liberty, Chestnut and Baxter utilizing land use and urban design strategies to create a gateway experience for the neighborhood. LU23 Work with medical and/or life science entities along Broadway between Clay Street and I-65 to develop new structures reflecting the scale and “rhythm” of existing buildings. LU24 Encourage land uses along Main Street that are mutually beneficial to Phoenix Hill and Butchertown due to its role as a shared boundary/corridor between the two neighborhoods. LU25 Target future development adjacent to Liberty Green that encourages compatible land uses and support services for new residences. LU26 Implement policies to ensure future development does not preclude the natural restoration of Beargrass Creek. LU27 Ensure stormwater Best Management Practices are implemented along Beargrass Creek to ensure runoff is properly treated prior to entering the waterway. LU28 Continue a neighborhood dialogue regarding the benefits and drawbacks for establishing a Local Landmarks District.
LU17 Support existing social service agencies to ensure the effective and beneficial implementation of their services to those in need in Phoenix Hill.
LU29 Consider amending the Phoenix Hill National Register Historic District boundary to encompass the eastern area bounded by Broadway and Baxter Avenue.
LU18 Locate/site new buildings and associated features along Beargrass Creek to promote public access to the creek.
LU30 Protect existing street trees and enforce/strengthen policies that protect/incorporate mature trees as part of development efforts.
LU19 Encourage partnerships between businesses and other property owners to develop innovative parking alternatives along Main and Market Streets to promote business development. LU20 Partner with the school district to keep Lincoln Elementary a vital part of the neighborhood. LU21 Promote land use strategies adjacent to Lincoln Elementary
LU31 Undertake a survey to inventory street trees within the public right-of-way and develop a prioritization plan to replace dead or missing street trees. LU32 Re-evaluate land use issues and recommendations in this Neighborhood Plan based on the future impacts of the Ohio River Bridges Project during and after construction.
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M O B I L I T Y
CHAPTER
FOUR Mobility
Intent
P H O E N I X
H I L L
N E I G H B O R H O O D
P L A N
This chapter outlines existing transportation and infrastructure conditions within Phoenix Hill. Based on this analysis and the input of Task Force members, recommendations are made to address these issues. One of the key goals of these recommendations is to integrate vehicular and pedestrian mobility needs within the scale and character of the Phoenix Hill neighborhood.
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Mobility PHOENIX HILL NEIGHBORHOOD PLAN
MOBILITY INVENTORY AND ANALYSIS Phoenix Hill’s urban fabric has been shaped by a variety of circulation networks over the years. From the early influences of Beargrass Creek, existing railroad, and today’s interstate system, the neighborhood has witnessed both the positive and negative impacts of the various modes of transportation. This chapter addresses mobility issues within and through the neighborhood including vehicular as well as pedestrian activity. Traffic patterns are analyzed for compatibility with available infrastructure, current and desired land use patterns, and the overall, collective vision for Phoenix Hill.
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The speed of traffic, one- or two-way traffic patterns, and the physical size of the street are all factors that affect the quality and safety of a circulation corridor. The type of street, based on standards established by Louisville Metro’s Thoroughfare Plan, are categorized into four main classifications including: · Major Arterials · Minor Arterials · Primary Collectors · Local or Neighborhood Streets Main and Market Streets, as well as Baxter Avenue and Broadway represent Major Arterials carrying traffic through the neighborhood. Phoenix Hill has a series of one-way, Minor Arterials traversing the neighborhood. They include the east-west routes of Jefferson and Market Street Defined as a Major Arterial Street Liberty Streets, Muhammad Ali Boulevard, and Chestnut Street. Preston and Jackson Streets are the north-south Minor Arterials along the western edge of Phoenix Hill. Floyd and Shelby Streets are listed as Primary Collectors in the neighborhood. The remaining network of streets are considered Local or Neighborhood streets and, in general, link the residential areas to the high-traffic corridors.
In the future, it is important the role and function of each of the streets that comprise Phoenix Hill’s circulation network is understood from both a traffic (engineering) perspective as well as an aesthetic (urban design) perspective. In an urban setting such as Phoenix Hill, the various roles the Chestnut Street Defined as a Minor Arterial Street corridor plays relative to that of a public place, are just as important as the street’s function to move vehicles through the neighborhood. The following mobility analysis includes a discussion of some of the tangible, traffic/safety concerns for motorists, as well as an exploration of some of the intangible, aesthetic issues in the neighborhood. In addition to concerns raised during the public meetings, a number of issues outlined below are the result of a “walking survey” conducted by residents as part of a pilot program developed by the Built Environment Committee of the Mayor’s Healthy Hometown Movement. As with the land use chapter previously, many of these issues and concerns were raised by Task Force members, neighborhood business interests and residents throughout this planning process.
SUMMARY OF NEIGHBORHOOD CONCERNS As noted previously in Chapter 1, Metro’s Planning and Design Services staff, the planning consultant, and the Task Force met on a regular basis to discuss issues relevant to the plan. This process, along with additional public workshops, gathered pertinent input and feedback from residents and businesses that revealed a number of concerns and ideas relative to mobility issues. Many of the items listed below have evolved into the various recommendations at the conclusion of this chapter.
Mobility PHOENIX HILL NEIGHBORHOOD PLAN
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Existing Circulation and Mobility Issues
Designated Bike Routes
Safety / Infrastructure Issue
Existing TARC Bus Routes
Urban Design / Streetscape Issue
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Mobility PHOENIX HILL NEIGHBORHOOD PLAN
Throughout this planning process, two of the most prominent issues that arose were the confusing series of one- and two-way streets, and parking issues along Market Street. There was nearly unanimous agreement Phoenix Hill’s disjointed and inefficient system of one- and two-way streets generates safety concerns and causes confusion for motorists. For example, the current configuration at the intersection of Main Street, Baxter and Story Avenues doesn’t allow west-bound traffic along Story to turn (south) onto the Chestnut Street Connector. This situation forces motorists to use Wenzel Street and as a result, generates a large volume of traffic - including semi-trucks - along this small, residential street and Lincoln Elementary School. To improve circulation in the neighborhood and linkages to greater East Downtown Louisville, there was overwhelming consensus among the Task Force and neighborhood residents to work with Louisville Metro to convert Phoenix Hill’s north/south, one-way streets to two-way traffic flow.
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The other primary issue that generated significant discussion was the need to address off-street parking in the neighborhood. Business interests noted that in some instances, current parking requirements stipulated in Metro’s zoning ordinances have limited redevelopment efforts. This issue has been at the forefront particularly along the Market Street corridor. As a result of these ongoing parking concerns, a parking study was initiated in the summer of 2007 to inventory existing parking capacities and develop recommendations appropriate to the neighborhood. It is anticipated that at the completion of this study, a series of short and longterm recommendations will be made that address methods to alleviate these parking issues. It is important the Phoenix Hill Neighborhood Association, East Downtown Business Association, PARC, and other relevant Metro agencies remain engaged in this process in an effort to act on feasible parking solutions generated from this study. Additional mobility issues raised during this neighborhood planning process include: · Disorganized collection of 1- and 2-way streets throughout the neighborhood creates confusing and sometimes dangerous situations for pedestrians and motorists alike. ·
Not a safe environment for children crossing the streets (particularly Main and Wenzel Streets) around Lincoln Elementary School.
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Beargrass Creek is viewed as a neglected or underutilized feature that should be viewed as a neighborhood asset.
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The Beargrass Creek/railroad corridor creates somewhat of a barrier between the eastern and western areas of the neighborhood.
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Concerns that parking requirements impede (re)development along Market Street and other commercial corridors.
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Members of the Task Force and the general public expressed concerns that on-street parking was not being fully utilized.
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The Chestnut Street Connector doesn’t function efficiently moving traffic through the neighborhood (poor intersection designs and 1-way traffic at Campbell Street).
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Need for a prioritization plan to improve streetscaping and repair sidewalk conditions (i.e. curbs, ADA ramps, etc...) throughout Phoenix Hill.
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Exploration of opportunities to improve signage and other methods highlighting the numerous bike routes in Phoenix Hill.
In addition to public meetings, a new survey was introduced to the neighborhood planning process in an effort to gather additional public input. The Phoenix Hill neighborhood was one of the first neighborhoods in Louisville to use the Louisville Neighborhood Walking Survey, a pilot program developed by the Built Environment Committee of the Mayor’s Healthy Hometown Movement. The purpose of this initiative is to analyze how “walkable” neighborhoods are in Louisville. This tool enabled Phoenix Hill residents to determine the neighborhood’s greatest needs relating to walkability and prioritize them in order of importance. The list of projects and priorities produced will be used by the Metro Council and Metro Public Works to determine which projects will be implemented first. Listed below are some of the issues raised by those who took part in this survey of Phoenix Hill. 1)
Standardize sidewalk improvements along the Chestnut Street Connector to conform to ADA width requirements.
2)
Enhance streetscaping along the public realm (right-of-way) to provide a more inviting environment along industrial properties in the Chestnut Street Connector corridor.
Mobility PHOENIX HILL NEIGHBORHOOD PLAN
3)
Prune trees and shrubs along all sidewalks to remove any obstacles for pedestrians.
4)
Provide sidewalk on east side of Wenzel Street between Liberty and Jefferson Streets.
5)
Inspect curb ramps at every intersection and ensure alignment with opposite side.
6) 7)
8)
Infrastructure / Capital Improvements: M2
Analyze the feasibility of converting all appropriate north/south streets-specifically Campbell and Shelby Streets-from 1-way to 2-way circulation.
M3
Analyze the feasibility of converting traffic flow along Main Street from 1-way to 2-way circulation.
Clean up weeds, tree boxes, especially along Jefferson Street between Shelby and Wenzel Streets.
M4
Develop gateway features at elevated train trestles at Broadway and Baxter such as lighting, improved sidewalks, plantings, and other treatments to improve the transition across neighborhood.
Analyze the feasibility of converting traffic flow along Jefferson Street to 2-way circulation.
M5
Remove the raised concrete median and reconfigure travel lanes at the convergence of Campbell and Gray Streets to improve (through) traffic along the Chestnut Street Connector.
M6
Reconfigure the Main/Story/Baxter intersection to effectively route 2-way traffic through this area and improve pedestrian safety.
M7
Return 2-way traffic along Campbell Street between Broadway and Gray Street as part of other improvements to the Chestnut Street Connector.
M8
Reopen Shelby Street at Phoenix Place and return 2-way circulation along Shelby Street.
M9
Analyze the feasibility of converting traffic flow along Chestnut Street from 1-way to 2-way circulation.
Create “front door� to Rubel Park from Broadway/Barret Avenue and create (ADA) accessible routes into and out of Rubel Park at this intersection.
9) Intersection at Jefferson, Baxter, Liberty (triangle) needs pedestrian safety improvements. 10) Need schedule and bench at TARC stop at Muhammad Ali Boulevard and Campbell Street. 11) Marshall Street needs curb ramps on south side, and a sidewalk on north side between Campbell and Wenzel Streets. 12) Reopen Shelby Street at Phoenix Place.
MOBILITY RECOMMENDATIONS The following recommendations are based on an understanding of existing conditions in Phoenix Hill and extensive public involvement throughout this neighborhood planning process. These recommendations serve to reinforce and reflect the future vision of the neighborhood. Chapter 5 contains an Implementation Table that categorizes these Mobility recommendations based on the Cornerstone 2020 Plan.
Cornerstone 2020 / Land Development Code: M1
Evaluate and consider revising existing parking standards within the Traditional Marketplace Corridor Form District designation specific to Market Street between Baxter Street and I-65.
4
M10 Study the feasibility of creating an internal (pedestrian) linkage or an extension of the local street network across the Beargrass Creek/railroad corridor between Broadway and Baxter Avenue. M11 Provide directional/informational signage for Rubel Park along Broadway, Baxter and Barret Avenues. M12 Improve signage and streetscaping at designated bike routes along Market, Madison, Wenzel and other local streets for the safety and enjoyment of cyclists. M13 Replace the chain link fencing and implement other streetscape and safety improvements around Lincoln Elementary School.
31
4
Mobility PHOENIX HILL NEIGHBORHOOD PLAN
M14 Improve pedestrian (i.e. school children) safety via trafficcalming features and traffic signalization at the Main and Wenzel Street intersection/crosswalks. M15 Improve informational and directional signage along bike routes, bus/trolley routes and stops to inform motorists and pedestrians throughout Phoenix Hill. · Provide schedule and seating at Muhammad Ali and Campbell Street bus stop M16 Coordinate with Ohio River Bridges Project engineers and the Butchertown Neighborhood Association to implement streetscape enhancements along Main and Market Streets as part of the Bridges Project’s mitigation efforts. M17 Implement streetscape and traffic-calming measures along Broadway that enhance pedestrian safety (improved crosswalks).
32
M18 Develop and implement a infrastructure improvement plan that prioritizes projects for new sidewalks, sidewalk replacement, curbs, and/or ADA-compliant ramps. Coordinate this with the results of the Walkability Survey recently completed by Louisville Metro. · New sidewalk on east side of Wenzel between Liberty and Jefferson Streets. · New sidewalk on north side of Marshall between Campbell and Wenzel Streets. · Standardize sidewalk widths and ADA-compliant ramps along the Chestnut Street Connector. · Improve pedestrian safety (crosswalks) at the various intersections where Jefferson, Baxter and Liberty Streets converge. M19 Implement streetscape improvements along Baxter Avenue to highlight its role as a neighborhood gateway corridor and viewshed of the existing and future I-65 bridges over the Ohio River. M20 Implement streetscape, lighting, and/or gateway features under the elevated railroad crossings at Broadway and Baxter Street to improve pedestrian safety.
M21 Coordinate with TARC to design and build future transit structures reflecting the unique features of Phoenix Hill and strengthen service at bus/trolley stops along designated neighborhood routes. M22 Develop and implement neighborhood gateway features along Broadway at I-65, Clay Street and Baxter Avenue. M23 Develop and implement a study to improve or maximize the efficiency of on-street parking for businesses and residents alike. M24 Develop and implement an ongoing maintenance plan (clean-up, plantings, pruning, etc...) for existing and future landscaping along neighborhood streets. · Focus initial efforts along Jefferson between Shelby and Wenzel Streets.
Policy / Programmatic: M25 Review the pertinent results of the parking study, and reconvene affected stakeholders along the Market Street corridor to discuss the study’s results and implement feasible, agreedupon strategies to relieve parking conflicts. M26 Encourage business owners to landscape or screen the perimeters of parking lots and outdoor storage areas to create pedestrian friendly edges. M27 Rename the Chestnut Street Connector to reflect the historic character and identity of Phoenix Hill. M28 Incorporate interpretive signage and/or design elements highlighting the importance of Beargrass Creek to Phoenix Hill and its symbolic connection to the Ohio River. M29 Study and implement a plan to prioritize designated streets to bury or relocate overhead utilities. M30 Undertake a study to determine the long-term feasibility of converting the existing railroad into part of a larger mass transit system for passenger service. M31 Re-evaluate mobility issues and recommendations in this neighborhood plan based on the (future) impacts of the Ohio River Bridges Project.
5
IMPLEMENTATION
C H A P T E R
FIVE
IMPLEMENTATION
Intent
P H O E N I X
H I L L
N E I G H B O R H O O D
P L A N
The purpose of this final chapter is to prioritize the previous recommendations and categorize them into short, medium, and long term strategies. Once adopted by the Metro Council, these implementation strategies will guide planning officials in future decisions regarding the Phoenix Hill neighborhood.
5
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
Introduction The recommendations outlined in Chapters 3 and 4 are the result of a cooperative, collective effort by the Task Force members, Louisville Metro officials, and the planning consultant. Once this plan is adopted by the Metro Council, many of these recommendations are intended to supplement Cornerstone 2020 and the Land Development Code, and guide future decisions relevant to the Phoenix Hill neighborhood.
34
Implementation of the Phoenix Hill Neighborhood Plan will require an ongoing commitment from the Phoenix Hill Association, the Metro Planning Commission and Council, Planning and Design Services, and other Metro agencies. The following tables expand on the previous Land Use and Mobility Recommendations by including pertinent stakeholders and decision-makers, as well as approximate time lines for implementing these recommendations. Such a time line will vary based on the progress of the Ohio River Bridges Project, economic development influences, as well as numerous other factors. In general, however, there are four basic time frames including: 路
Short-Term Opportunities - Projects that could be undertaken and/or implemented within the next year.
路
Mid-Term Opportunities - Projects that could be initiated in the next 1 - 3 years.
路
Long-Term Opportunities - Projects that could be undertaken in the next 3 - 7+ years. Some of these recommendations may go beyond the time frame of this Plan
路
Ongoing Opportunities - Projects that may require initial studies to determine their feasibility or may depend on other work prior to implementation. Such projects may also be implemented in a series of incremental steps involving numerous agencies or departments.
Implementation Agencies: PHNA = Phoenix Hill Neighborhood Association DDC = Downtown Development Corporation EDBA = East Downtown Business Association JCPS = Jefferson County Public Schools MSD = Metropolitan Sewer District MEDD = Metropolitan Economic Development Department PARC = Parking Authority of River City PDS = Metropolitan Planning and Design Services PW = Public Works TARC = Transit Authority of River City
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
5
TIMEFRAME
Cornerstone 2020 / Land Development Code LU1
Evaluate and consider revising appropriate neighborhood areas PDS currently zoned R6 to Urban Neighborhood (UN) designations.
Short-term - Less than 1 year
LU2
Evaluate and consider revising the Downtown and Traditional Neighborhood Form District boundaries to reflect the Liberty Green development and the expansion of the Medical Complex. Future PDS development along Clay Street should reflect the scale and character of existing buildings in Phoenix Hill to buffer, the neighborhood from encroaching Medical Complex buildings.
Short-term - Less than 1 year
LU3
Evaluate and consider revising the Traditional Marketplace Corridor Form District boundary to encompass the northern side PDS of Jefferson Street between Clay and Chestnut Streets.
Short-term - Less than 1 year
LU4
Rezone Rubel Park from a R6 to R1 zoning designation.
PDS
Short-term - Less than 1 year
LU5
Evaluate and consider revising the Downtown and Traditional Marketplace Corridor Form District boundaries along Market Street PDS to reflect the corridor’s unique historical resources, and respond to current development requirements.
Short-term - Less than 1 year
LU6
Utilize the urban design guidelines in the Liberty Green pattern book for future infill development within the Urban Neighborhood zoning PDS district that incorporates the Plan Development option.
Short-term / Ongoing
Infrastructure / Capital Improvements LU7
Coordinate with the Metropolitan Sewer District for stormwater management policies and Federal floodplain regulations to PHNA / MSD / PDS / PW determine potential limitations to the location, or type, of development within the Beargrass Creek watershed.
Mid-term - 1-3 years
LU8
Determine strategic locations, possibly along designated bike routes, PHNA / PDS / PW / Brightside for small neighborhood greenspace and/or public places.
Short-term - Less than 1 year
LU9
Identify strategic locations for trailheads along the Beargrass Creek corridor that maximize creek access and serve as amenities for PHNA/ PDS/ MSD/ Metro Park existing or future development.
Mid-term - 1-3 years
35
5
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Policy / Programmatic
36
LU10
Partner with the Housing Authority and other like-minded agencies P H N A / M e t r o H o u s i n g Mid-term - 1-3 years to develop and market affordable, single-family housing. Authority
LU11
Investigate potential sites/strategies for locating community or recreational facilities within Phoenix Hill. Such a study could identify P H N A / M e t r o H o u s i n g Short-term - Less than 1 year a network of locations focusing on a variety of activities that address Authority a range of neighborhood needs.
LU12
Explore and initiate strategies to reduce and/or eliminate the P H N A / demolition of historic resources throughout the neighborhood. Commission
LU13
Promote land use strategies for the re-use of existing buildings rather PHNA / PDS than building new structures.
Ongoing / Long-term
LU14
Redevelop/rehabilitate industrial buildings for office, retail, mixeduse, or multi-family residential if existing uses are no longer PHNA / PDS viable.
Ongoing / Long-term
LU15
Encourage the appropriate rehabilitation of existing, industrial buildings along the Beargrass Creek/railroad corridor highlighting PHNA / PDS Phoenix Hill’s historic relationship to the waterway.
Long-term / Ongoing
LU16
Study potential sites/strategies for locating public restroom facilities within Phoenix Hill. Such an effort could be coordinated with efforts PHNA / PDS to expand designated bike routes.
Short-term - Less than 1 year
LU17
Support existing social service agencies and ensure the effective and beneficial implementation of their services to those in need in PHNA Phoenix Hill.
Short-term / Ongoing
LU18
Locate/site buildings and associated features along Beargrass Creek PHNA / PDS / MSD to promote future public access to the creek.
Long-term / Ongoing
LU19
Encourage partnerships between businesses and other property owners to develop innovative parking alternatives along Main and EDBA / PHNA / MEDD Market Streets to promote business development.
Mid-term - 1-3 years
LU20
Partner with the school district to keep Lincoln Elementary a vital PHNA / JCPS part of the neighborhood.
Long-term / Ongoing
Landmarks
Short-term - Less than 1 year
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
5
TIMEFRAME
Policy / Programmatic (cont.) LU21
Promote land use strategies adjacent to Lincoln Elementary School PHNA / JCPS that result in a more child-friendly and safer environment.
Short-term / Ongoing
LU22
Target the triangular-shaped block surrounded by Liberty, Chestnut and Baxter utilizing land use and urban design strategies to create PHNA / PDS a gateway experience for the neighborhood.
Mid-term - 1-3 years
LU23
Work with medical and/or life science entities along Broadway PHNA / MEDD / PDS between Clay Street and I-65 to develop new structures reflecting Downtown Medical Group the scale and “rhythm� of existing buildings.
Mid-term - 1-3 years
LU24
Encourage land uses along Main Street that are mutually beneficial PHNA / Butchertown to Phoenix Hill and Butchertown due to its role as a shared boundary/ Neighborhood Assoc. / PDS corridor between the two neighborhoods.
Short-term / Ongoing
LU25
Target future development adjacent to Liberty Green that encourages PHNA / PDS / DDC compatible land uses and support services for new residences.
Short-term - Less than 1 year
LU26
Implement policies to ensure future development does not preclude PHNA / PDS / MSD the natural restoration of Beargrass Creek.
Short-term / Ongoing
LU27
Ensure stormwater Best Management Practices are implemented along Beargrass Creek to ensure runoff is properly treated prior to PHNA / MSD entering the waterway.
Short-term / Ongoing
LU28
Continue a neighborhood dialogue regarding the benefits and PHNA / Landmarks drawbacks for establishing a Local Landmarks District. Commission
Short-term - Less than 1 year
LU29
Consider amending the Phoenix Hill National Register Historic PHNA / Landmarks District boundary to encompass the eastern area bounded by Commission Broadway and Baxter Avenue.
Short-term - Less than 1 year
LU30
Protect existing street trees and enforce/strengthen policies that PHNA / PDS / PW protect/incorporate mature trees as part of development efforts.
Short-term / Ongoing
LU31
Undertake a survey to inventory street trees within the public rightof-way and develop a prioritization plan to replace dead or missing PHNA / PDS / PW street trees.
Short-term - Less than 1 year
LU32
Re-evaluate land use issues and recommendations in this neighborhood plan based on the future impacts of the Ohio River PHNA Bridges Project during and after construction.
Mid- and Long-term
37
5
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Cornerstone 2020 / Land Development Code M1
Evaluate and consider revising existing parking standards within the Traditional Marketplace Corridor Form District designation specific PDS to Market Street between Baxter Street and I-65.
Short-term - Less than 1 year
Infrastructure / Capital Improvements M2
Analyze the feasibility of converting all appropriate north/south streets-specifically Campbell and Shelby Streets-from 1-way to PHNA / PW 2-way circulation.
Short-term - Less than 1 year
M3
Analyze the feasibility of converting traffic flow along Main Street PHNA / PW from 1-way to 2-way circulation.
Mid-term - 1-3 years
M4
Analyze the feasibility of converting traffic flow along Jefferson Street PHNA / PW to 2-way circulation.
Short-term - Less than 1 year
M5
Remove the raised concrete median and reconfigure travel lanes at the convergence of Campbell and Gray Streets to improve (through) PHNA / PW / PDS traffic along the Chestnut Street Connector.
Short-term - Less than 1 year
M6
Reconfigure the Main/Story/Baxter intersection to effectively route PHNA / PW / PDS 2-way traffic through this area and improve pedestrian safety.
Short-term - Less than 1 year
M7
Return 2-way traffic along Campbell Street between Broadway and Gray Street as part of other improvements to the Chestnut Street PHNA / PW / PDS Connector.
Short-term - Less than 1 year
M8
Reopen Shelby Street at Phoenix Place and return 2-way traffic PHNA / PW / PDS along Shelby Street.
Long-term - 3 or more years
M9
Analyze the feasibility of converting traffic flow along Chestnut Street PHNA / PW from 1-way to 2-way circulation.
Mid-term - 1-3 years
M10
Study the feasibility of creating an internal (pedestrian) linkage or an extension of the local street network across the Beargrass Creek/ PHNA / PW / MSD / PDS railroad corridor between Broadway and Baxter Avenue.
Short-term - Less than 1 year
M11
Provide directional/informational signage for Rubel Park along PHNA / PW / Metro Parks Broadway, Baxter and Barret Avenues.
Short-term - Less than 1 year
38
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
5
TIMEFRAME
Infrastructure / Capital Improvements (cont.) M12
Improve signage and streetscaping at designated bike routes along Market, Madison, Wenzel and other local streets for the safety and enjoyment of cyclists.
PHNA / PW / Metro Parks
Short-term - Less than 1 year
M13
Replace the chain link fencing and implement other streetscape and safety improvements around Lincoln Elementary School.
PHNA/ PW/ JCPS
Short-term - Less than 1 year
M14
Improve pedestrian (i.e. school children) safety via traffic-calming features and light signalization at the Main and Wenzel Street PHNA / PW intersection/crosswalks.
M15
Improve informational and directional signage along bike routes, bus/trolley routes and stops to inform motorists and pedestrians PHNA / PW / TARC / Metro Short-term - Less than 1 year throughout Phoenix Hill. Parks · Provide schedule and seating at Muhammad Ali and Campbell Street bus stop
M16
Coordinate with Ohio River Bridges Project engineers and the Butchertown Neighborhood Association to implement streetscape PHNA / PW / Butchertown enhancements along Main and Market Streets as part of the Bridges Neighborhood Assoc. Project.
Mid-term - 1-3 years
M17
Implement streetscape and traffic-calming measures along Broadway PHNA / PW that enhance pedestrian safety (improved crosswalks).
Mid-term - 1-3 years
Short-term - Less than 1 year
Develop and implement a infrastructure improvement plan that prioritizes projects for new sidewalks, sidewalk replacement, curbs, and/or ADA-compliant ramps. Coordinate this with the results of the Walkability Survey recently completed by Louisville Metro.
M18
· New sidewalk on east side of Wenzel between Liberty and Jefferson Streets. · New sidewalk on north side of Marshall between Campbell and Wenzel Streets. · Standardize sidewalk widths and ADA-compliant ramps along the Chestnut Street Connector. · Improve pedestrian safety (crosswalks) at the various intersections where Jefferson, Baxter and Liberty Streets converge.
PHNA / PW
Mid-term - 1-3 years
39
5
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Infrastructure / Capital Improvements (cont.)
40
M19
Implement streetscape improvements along Baxter Avenue to highlight its role as a neighborhood gateway corridor and viewshed PHNA / PW of the existing and future I-65 bridges over the Ohio River.
Mid-term - 1-3 years
M20
Implement streetscape, lighting, and/or gateway features under the elevated railroad crossings at Broadway and Baxter Street to PHNA / PW improve pedestrian safety and unify the neighborhood.
Short-term - Less than 1 year
M21
Coordinate with TARC to design and build future transit structures reflecting the unique features of Phoenix Hill and strengthen service TARC / PHNA / PW at bus/trolley stops along designated neighborhood routes.
Short-term - Less than 1 year
M22
Develop and implement neighborhood gateway features along PHNA / PW Broadway at I-65, Clay Street and Baxter Avenue.
Mid-term - 1-3 years
M23
Develop and implement a study to improve or maximize the PHNA / EDBA / PARC efficiency of on-street parking for businesses and residents alike.
Short-term - Less than 1 year
M24
Develop and implement an ongoing maintenance plan (clean-up, plantings, pruning, etc...) for existing and future landscaping along PHNA / PW / EDBA neighborhood streets. 路 Focus initial efforts along Jefferson between Shelby and Wenzel Streets.
Short-term / Ongoing
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
5
TIMEFRAME
Policy / Programmatic M25
Review the pertinent results of the parking study, and reconvene affected stakeholders along the Market Street corridor to discuss PDS /PHNA /EDBA /DDC / PW the study’s results and implement feasible, agreed-upon strategies to relieve parking conflicts.
Short-term / Ongoing
M26
Encourage business owners to landscape or screen the perimeters of parking lots and outdoor storage areas to create pedestrian PHNA friendly edges.
Short-term / Ongoing
M27
Rename the Chestnut Street Connector to reflect the historic PHNA / PW character and identity of Phoenix Hill.
Short-term - Less than 1 year
M28
Incorporate interpretive signage and/or design elements highlighting the importance of Beargrass Creek to Phoenix Hill and its symbolic PHNA / MSD connection to the Ohio River.
Mid-term - 1-3 years
M29
Study and implement a plan to prioritize designated streets to bury PHNA / PW or relocate overhead utilities.
Short-term / Ongoing
M30
Undertake a study to determine the long-term feasibility of converting the existing railroad into part of a larger mass transit PHNA / TARC / PW system for passenger service.
Short-term / Ongoing
M31
Re-evaluate mobility issues and recommendations in this Neighborhood Plan based on the (future) impacts of the Ohio River PHNA Bridges Project.
Mid- and Long-term
41
5
42
Implementation PHOENIX HILL NEIGHBORHOOD PLAN
A APPENDIX
P H O E N I X
H I L L
N E I G H B O R H O O D
P L A N
PHOENIX HILL NEIGHBORHOOD PLAN
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Background Mapping
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Legend Phoenix Hill Study Boundary
Area covered by Downtown Plan
Overlay District Downtown Waterfront Review
Feet 0
125
250
500
750
1,000
Copyright (c) 2006, LOUISVILLE AND JEFFERSON COUNTY METROPOLITAN SEWER DISTRICT (MSD), LOUISVILLE WATER COMPANY (LWC), LOUISVILLE METRO GOVERNMENT, and JEFFERSON COUNTY PROPERTY VALUATION ADMINISTRATOR (PVA). All Rights Reserved.
Background Mapping PHOENIX HILL NEIGHBORHOOD PLAN
N WENZ EL ST
S JOHNSON ST N JOHN SON ST
S FLOYD ST
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Background Mapping PHOENIX HILL NEIGHBORHOOD PLAN
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EDBA Charrette Results PHOENIX HILL NEIGHBORHOOD PLAN
Introduction In an effort to provide additional background regarding ongoing efforts stakeholders to improve Phoenix Hill’s quality of life, this section summarizes the results of a charrette sponsored by the East Downtown Business Association in July 2006. This two-day workshop gathered input from neighborhood residents and businesses, and generated a series of recommendations specific to the East Main and Market Street corridors, as well as other areas of Phoenix Hill. Although many of the following issues coincide with recommendations put forth in the neighborhood plan, this listing does not necessarily represent an endorsement of these items. • ADJUST FORM DISTRICT Our area possesses a distinct scale and character that does not match the existing form districts of Butchertown, Phoenix Hill, and the Central Business District. Our current status of “in-between” all of these areas makes it difficult to reinforce our identity and grow in a unified manner.
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• CREATE PLANNED USES Progressively encourage development of complementary neighborhood businesses which provide valuable goods and services to residents. • EXPRESS NEIGHBORHOOD IDENTITY The neighborhood history and culture can find expression in many elements such as sidewalks, street murals, benches, bike racks, and lighting. • PERCENTAGE FOR ART PROGRAM Many cities have successfully created public art programs funded with 1% of all new construction projects. Such a program in our neighborhood could show our dedication to the arts. • CREATE MEDIAN STRUCTURE In the mid 1800’s Market Street actually had six market houses in the middle of the street. The group has proposed a median in the spirit of this history between Shelby and Campbell Streets.
• ADJUST PARKING REGULATIONS Change parking regulations to a single code that reflects our distinct area and it’s needs.
• PROVIDE HISTORICAL MARKERS Historical markers can generate tourism interest and reinforce our neighborhood’s identity.
• IMPLEMENT PLANNED PARKING Investigate multiple strategies to meet future parking demands such as; shared lots, restricted times, and resident or business passes.
• IMPROVE SIDE STREETSCAPE Improving the streetscape on the side streets will encourage development on Main and Jefferson Streets and will safely encourage visitors to the area.
• PROVIDE WAYFINDING Directions to parking and points of interest can help visitors and residents understand the neighborhood and feel more comfortable in the streetscape.
• CREATE DESIGN OVERLAY REVIEW Creation of a design review process like Bardstown road has will help ensure the quality of new development and it’s appropriateness to the neighborhood.
• CREATE A LOCAL FUND Creating a Business Improvement District can allocate funds for streetscape beautification and community events based on increased tax base and parking revenue.
• IMPROVE OPEN STORAGE LOTS Improving the screens will help unify the neighborhood. In some locations the use may be improved to community gardens, art installations, and public parking.
• IMPLEMENT TWO-WAY TRAFFIC Two-way traffic can help slow vehicles down, improve local access routes, and make our area less of a thru way. Our group proposed opening all north-south streets and portions of Main and Jefferson streets.
• PROMOTE RESIDENTIAL ABOVE COMMERCIAL The existing “mom and pop” or “live-work” buildings provide a practical model for continued growth in our neighborhood and providing a base of commercial space will ensure space for future goods and services.
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EDBA Charrette Results PHOENIX HILL NEIGHBORHOOD PLAN
• EMPHASIZE DISTRICT GATEWAYS The interstate underpasses to the west as well as the Marketand-Story median and Chestnut-Baxter edge to the east are considered natural opportunities to announce our neighborhood’s identity and provide opportunities for public art. • INFILL GAPS ALONG STREETWALLS Vacant lots should be considered opportunities to add buildings that improve neighborhood density and street activity. • LAYER DEVELOPMENT Service and parking areas should be located to rear of lots encouraging pedestrian activity along the sidewalk.
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• ENCOURAGE ORGANIC GROWTH Our community’s gradual growth of residential and businesses has created an authentic, patchwork character. Future growth should retain this quality and deter large-scale, monolithic impositions. • CREATE A MARKET VENUE A market area for small vendors would provide a new niche for business and entertainment in the community and serve to revive the neighborhood’s street life.
References PHOENIX HILL NEIGHBORHOOD PLAN
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The following list references the various resources utilized in the development of Phoenix Hill’s Neighborhood Plan. John Milner Associates, Inc. Kentucky Historic Facade Rehabilitation Guidelines, Kentucky Heritage Council and Renaissance Kentucky Alliance - 2003. Kleber, J.E., Editor The Encyclopedia of Louisville, The University Press of Kentucky, Lexington - 2001.
Louisville and Jefferson County Planning Commission Cornerstone 2020 Comprehensive Plan, Louisville and Jefferson County Planning Commission - 2000 adoption.
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PHOENIX HILL
NEIGHBORHOOD PLAN EXECUTIVE SUMMARY
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Introduction and Process Overview PHOENIX HILL NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
Adoption Date:
February 28, 2008
Acknowledgments:
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The Phoenix Hill Neighborhood Plan is the result of efforts by numerous individuals, government agencies, and consultants. A plan that does not involve those it hopes to serve can not fully realize its potential or vision. For this reason, those with a vested interest in the future of Phoenix Hill put forth their time, effort, and ideas in the creation of this Plan. It is important to recognize and thank those Task Force members who were an integral part of this process including: Cindy Brown-Kinloch Susan Fridenstine Steve Kersey Doug Magee Edie Mahaffey Bill Marzian Tom Nolan Todd Rine Louisville Metro Planning and Design Services: Ken Baker, Planning Supervisor Chris French Steven Sizemore Louisville Metro Neighborhood Planning website: http://www.louisvilleky.gov/PlanningDesign/Neighborhood+Plans/
INTRODUCTION Phoenix Hill was greatly influenced by the religious and cultural institutions and traditions immigrants brought with them from their homelands. These ethnic groups, primarily comprised of Germans and Irish, settled the area during the 1840s. It was primarily a residential neighborhood within a predominately German enclave east of the central business district of Louisville. The first German Catholic church in Louisville, St. Boniface, was established here in 1836. The diverse neighborhood endured in spite of anti-immigrant sentiments and violence during its early years. The Bloody Monday riots of 1855 began in Phoenix Hill at Shelby and Liberty Streets, and spread to surrounding ethnic neighborhoods. The event witnessed mobs that set fire to buildings, ransacked stores and homes, and beat passersby. Phoenix Hill remained a flourishing German neighborhood well into the twentieth century, though the area experienced gradual change as businesses encroached and residents began to move to newer neighborhoods. The decline of other urban neighborhoods, encroachment of the interstate, and a dwindling population contributed to the deterioration of Phoenix Hill. To combat this, several business leaders and residents organized the Phoenix Hill Association in 1975 to focus on the community’s rebirth. In 1977, Mayor Harvey Sloan declared the area a prime revitalization candidate and secured federal funds for rebuilding efforts. Since that time, dilapidated housing has been removed, several new housing developments have been constructed, and new businesses have returned to the area. In 1983, Phoenix Hill was listed on the National Register of Historic Places for its diversity of land uses, history, and architectural significance.
Prepared by: Today, two of the most influential factors on the neighborhood include the medical complex and the Liberty Green redevelopment project. The medical complex is comprised of a 20-block area between I-65 and Hancock Street just north of Broadway. Future plans call for the development of a bio-medical research park to strengthen Louisville’s already-strong reputation as a leader in the healthcare industry. The Liberty Green project, located just north of the medical complex, involves
Process Overview PHOENIX HILL NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
the redevelopment of the Clarksdale public housing site. The $233 million project is funded through a variety of public sources including a $40 million HOPE VI federal grant. Currently under construction, the project will incorporate a wide range of housing types including apartments, townhomes, and attached houses.
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PHOENIX HILL VISION STATEMENT The future of Phoenix Hill should represent a seamless transition between the neighborhood’s historic past, with the rebirth of the neighborhood’s identity. Residents, businesses, and community leaders alike must strive to retain, and build on, Phoenix Hill’s cultural, historical, and environmental resources as it looks to the future as a vibrant and inclusive community. The Phoenix Hill community must continue to reach out to those in need, and strive to maintain and promote a population comprised of a diverse mix of incomes, races, and abilities. The continued revitalization of the neighborhood must include affordable housing, strategies that promote home ownership, and appropriate business development serving the needs of neighborhood residents while strengthening the tax base, and creating job opportunities. The unique urban fabric of Phoenix Hill serves as a solid foundation on which to strengthen the natural, architectural, and historical features needed for a successful neighborhood. A renewed focus on Beargrass Creek as a multi-use greenway connecting the neighborhood to greater Louisville, and as a (re)development opportunity, could strengthen the economic viability of the community and weave the neighborhood into a cohesive whole. The neighborhood will also continue to seek circulation strategies that encourage the return of local streets from one-way to twoway traffic. Such an effort will not only create more pedestrian-friendly settings, but also serve as another catalyst for economic development. The neighborhood should also work with Louisville Metro to reverse the destructive trend of building demolition. The individual “communities” of businesses, residents, artists, and social agencies must collectively work together with a renewed sense of purpose to strengthen the identity of Phoenix Hill as a vibrant and inclusive Louisville neighborhood.
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Introduction and Process Overview PHOENIX HILL NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
SUMMARY OF NEIGHBORHOOD CONCERNS This planning process was initiated by Louisville Metro Planning and Design Services and builds on recent historic preservation planning efforts as part of the Ohio River Bridges Project. Planning and Design Services staff, the planning consultant, and the Task Force met on a regular basis to discuss issues relevant to Phoenix Hill and this plan. This process, along with public workshops, gathered pertinent input and feedback from residents and businesses that revealed a number of issues or concerns in the neighborhood.
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Relative to land use issues, there was general consensus among those attending the various meetings that recent (re)development in Phoenix Hill has had, or will have, a positive effect on the neighborhood. However, there are concerns that such development may gentrify the neighborhood and potentially push low-income residents from the area. Phoenix Hill is recognized as a diverse, socially-conscious community and many expressed a strong desire the neighborhood retain that quality. Along those same lines, the need to retain and develop more affordable housing to promote homeownership was also a primary issue. Listed below are additional issues raised by the Task Force and general public during the information-gathering phase of this Neighborhood Plan. Many of these items have evolved into the various recommendations at the conclusion of this chapter. Throughout this planning process, two of the most prominent issues that arose were the confusing series of one- and two-way streets and inadequate parking standards or availability along the Market Street corridor. As a result, one initiative that was undertaken was a parking study to determine existing conditions within this area of Phoenix Hill. It is anticipated that at the completion of this study, a series of short and longterm recommendations will be made that address methods to alleviate these parking issues. It is important the Phoenix Hill Neighborhood Association, East Downtown Business Association, PARC, and other relevant Metro agencies remain engaged in this process in an effort to act on feasible parking solutions generated from this study.
A new survey introduced to the neighborhood plan process was the use of the Louisville Neighborhood Walking Survey. The Phoenix Hill neighborhood was one of the first neighborhoods in Louisville to use this Louisville Neighborhood Walking Survey, a pilot program developed by the Built Environment Committee of the Mayor’s Healthy Hometown Movement. The purpose of the Louisville Neighborhood Walking Survey was to analyze how “walkable” neighborhoods are in Louisville. This tool enabled the neighborhood to determine its greatest needs relating to walkability and to prioritize them in order of importance. The list of projects and priorities produced will be used by the Metro Council and Metro Public Works to determine which projects will be implemented first. Listed below are some of the issues raised by those who took part in this survey of Phoenix Hill. The following tables summarize the previous Land Use and Mobility Recommendations relating to Metro’s Cornerstone 2020 Plan. As noted previously, these recommendations and associated timelines will vary based on construction of the Ohio River Bridges Project, economic development influences, as well as numerous other factors.
Cornerstone 2020 Recommendations PHOENIX HILL NEIGHBORHOOD PLAN - EXECUTIVE SUMMARY
LAND USE RECOMMENDATIONS
IMPLEMENTATION AGENCY
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TIMEFRAME
Cornerstone 2020 / Land Development Code LU1
Evaluate and consider revising appropriate neighborhood areas Metro Planning Commission currently zoned R6 to Urban Neighborhood (UN) designations.
Short-term - Less than 1 year
LU2
Evaluate and consider revising the Downtown and Traditional Neighborhood Form District boundaries to reflect the Liberty Green development and the expansion of the Medical Complex. Future Metro Planning Commission development along Clay Street should reflect the scale and character of existing buildings in Phoenix Hill to buffer, the neighborhood from encroaching Medical Complex buildings.
Short-term - Less than 1 year
LU3
Evaluate and consider revising the Traditional Marketplace Corridor Form District boundary to encompass the northern side Metro Planning Commission of Jefferson Street between Clay and Chestnut Streets.
Short-term - Less than 1 year
LU4
Rezone Rubel Park from a R6 to R1 zoning designation.
Metro Planning Commission
Short-term - Less than 1 year
LU5
Evaluate and consider revising the Downtown and Traditional Marketplace Corridor Form District boundaries along Market Street Metro Planning Commission to reflect the corridor’s unique historical resources, and respond to current development requirements.
Short-term - Less than 1 year
LU6
Utilize the urban design guidelines in the Liberty Green pattern book Metro Planning Commission Short-term / Ongoing for future infill development within the Urban Neighborhood zoning / PDS district that incorporates the Plan Development option.
MOBILITY RECOMMENDATIONS
IMPLEMENTATION AGENCY
TIMEFRAME
Cornerstone 2020 / Land Development Code M1
Evaluate and consider revising existing parking standards within the Traditional Marketplace Corridor Form District designation specific Metro Planning Commission to Market Street between Baxter Street and I-65.
Short-term - Less than 1 year
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