1 20 1 https://d1y502jg6fpugt.cloudfront.net/44124/archive/files/a3649b43db6c5db44333f0e47433160a.pdf?Expires=1776902400&Signature=e5tVTUP081AU82QurYfn5OMXqcWZQz71bgIjQexQXKruT%7EdGWblabaKsXrRJBL3amhaarCZcjF74fqBPHsum9g4045vADCYK%7ETZOo6RoWhv9eI74AAeU3UY%7EB3bDW-j0P6VlKYWupFg9154TL8JVZnanQ%7EAIKvh-N4l9vN3xIHiGQJVxvIMjbeIwwh4X8QK8O4DHsL2nvThq4XrQvxwkuoW36O8ysmEYc40tGRI4qxEPHEylgw0h8362FVrbe6GurU9gBbk69I3OowfuB0B4QVCdMHe9jN4UDoJz1wqcf165ScyoAlebRc2rk53mOSEhQJ%7EXvgNodby9uTXE9wf7PA__&Key-Pair-Id=K6UGZS9ZTDSZM a5085ae1c26b7192817f1ce0a76605dd PDF Text Text �1-95 harbor crossing corridor study point III report for segment 14 of the interstate highway system in the city of baltimore prepared by urban design concept associates; skidmore, owings & merrill, j. e. greiner company. inc., parsons, brinckerhoff, quade & douglas, wilbur smith & associates. september, 1970. �contents section 1: introduction 1 section 2: report summa ry 3 section 3: traffic ana lysis 9 section 4: area description 31 section 5: corridor location studies 75 section 6: economic evaluation 99 sect ion 7: j oint deve lopment potent ial 127 sect ion 8: next steps 179 �I Photogr.ph. on pages 111 . 112 . 114 and 116 @ MllpS, IncorpOrated �INTRODUCTION a �I I I I I This report, contractually referred to as the Point I II Report, deals with 1- 95 Harbor Crossing (Segment 14) of the City's Highway System. Since the construction of this link is not scheduled until 1976, detailed plan - ning and alignment studies have been deferred . In order to record, however, the relationship of this link to all other segments and the entire 3·A System this report is prepared in concert wi th other studies called for in the Urban Design Concept Team work tasks. The report presents preliminary planning studies, traf · fie analysis, economic evaluations and initial design a I I I concepts for alternative roadway alignments and development programmed for the highway corridor. Consistent with the process followed by the Interstate Division for Baltimore City for all highway segments, the contents of this report will be reviewed w ith City agencies and community representatives. This Point III Report is divided into 8 sections and attention is given to traffic analysis and economic development potential in order to emphasize the importance of this link as an essential functional element in the 3-A System and also as a powerful generator of economic development. When the 3-A System was chosen by the City in December of 1968, it was chosen with the realization that the inclusion of Segment 14 represented a costly addition to their highway system. Yet for this cost a significantly better balance between the requirements of traffic and environment had been found. The refore, a central concern of this report is to emphasize the short and long term benefits which w ill accrue to the City as a result of this decision. �I REPORT SUMMARY I �I I • I The report is organized into eight sections, the first two are respectively, an introduction and a summary, with the remaining substantive sections as follows: 3. Traffic Analysis 4. Area Description: Social and Economic Profile 5. Corridor Location Studies 6. Economic Evaluation Joint Development Potential 7. 8. Next Steps The following is a brief summary of the findings and recommendations of each of these sections. I I 3 �section 3: traffic analysis section 4: area description-social and economic profile The 1 95 Harbor Crossing is the critical link in the 3-A system since it provides the only continuous The expressway will run from Hanover Street in the west to O'Donnell Street in the east, crossing the Harbor to the north of Fort McHenry. east-west expressway route. BMATS 12-1A· network predicts an average daily traffic of 115,000 vpd** using the bridge in 1990. Truckswill comprise 10% (11,000 vpd) of this total. Sixty percent of this volume is metropolitan traffic having both ends of each trip within the BMATS area. Twenty nine percent of the volume is interstate traffic, bypassing the City and the remaining 11 % has either origin or destination in the area. In prov iding this service, the Crossing will 1. 2. 3. Relieve congestion on CSD streets Permit the safe and efficient operation of other parts of the System- in particular 1-83 between O'Donnell Street and Baltimore Street, and Rei ieve congestion on the Inner Harbor Tunnel and will likely preclude congestion on the planned Outer Harbor Tunnel. The area is dominated by heavy industrial and waterfront uses with a significant inter-mixture of residential neighborhoods. Two residential communi ties are identified, Locust Point and South Balti more, known locally as "the point" and "the hill"_ "The point" is surrounded by rail tracks and in dustry but the community of 3,400 has a high rate of home ownership, low unemployment and a fiercely independent character. 'The hill" is unstable and has problems of deteriorating housing and unemployment. Five major issues were identified and the following goals established for the area. 1. 2. 3. In addition the Crossing w ill provide urgently needed access to important industrial areas of South and East Baltimore. 4. 5. Establish by amending the Proposed New Zoning Ordinance, residential zoning for the neighborhoods. Remove industrial traffic from neighborhood streets. Control environmental pollution from surrounding industry_ Extend community facilities. Establish as early as possible the exact location of the expressway in order not to stifle public and private investment in the -area. Economically the area from Hanover Street to O'Donnell Street is the most important concentration of heavy industrial plants in the City w ith over 40% of the City's total manufacturing employment representing over 60,000 jobs. The area is also the focus of $70 million of investment by the Maryland Port Authority in renovation and new container hand ling facilities. "Bal timo re Matroplitan Area Transportat ion Analysis ··Vehic les per day 4 In terms of future City tax revenue and job opportunity and in relation to metroplitan growth as a �section 5: corridor location studies whole, two points should be made. ,. 2. Continued economic growth of the corridor is of central importance to the city, to the region and to those manufacturing and transportation industries that depend on it for business. Projections show that the traditional importance of manufacturing industry wil l be maintained in the city and ways must be found to accommodate and develop the potential of these activities to the maximum. Presently expansion of the area is being retarded by severe local traffic congestion, especial ly in the east where regiona l access is inadequate. On its completion, Segment 14 of 1·95 will form a " transportation spine" for the existing and poten· tial industry. The following objectives were developed as a basis for the selection of the highway corridor. Avoid residential neighborhoods and community facilities such as schools and parks. Avoid existing and potentially developable industrial land. Minimize the disruption to industrial activi ty. Minimize the impact of the harbor crossing (either the bridge or tunnel) on Fort McHenry. Maximize access to indu stry and potentially developable land . The selected general route follows "natural breaks" in the development pattern , and utilizes vacant and underdeveloped land . By building the entire segment on structure, the freeway can be built over the extensive railroad yards with minimal interference to their operations. Within the recommended corridor two alternate roadway alignments, and both a tunnel and a bridge crossing of the harbor were studied. The recommended "southern alignment" with a bridge crossing to the north of Fort McHenry displaces only two industrial structures, takes no residential structure or recreatio n facilities and passes no closer than 700' to any residential neighborhood. 5 �section 6: economic evaluation section 7: joint development potential I n many respects the 1 95 Harbor Crossing is a unique - Four major project areas are ident ified in Section 7; they are: segment in the 3 -A system. It is the only segment t hat runs entirely th rough an area of major indus- tri al development potential and it is the on ly segment t hat includes a major engineeri ng structu re- in th is case a 2,000' suspension brid ge, the cost of which accounts fo r more than 50% of the total expenditu re 1. 2. 3. fo r the 5 .5 mi le segment. Acco rd ingly, emphasis has been given to quantifying the benefits accruing to bridge use rs, loca l landowners, indu stri al ists and the City resu lt ing fr om pu blic investmen t in t he faci lity. T he fo llowing benef its were id entified: 1. T raffic re lated a. User benef its b. 2. Non-user benefits Development Benefits a. I nc reased land va lue More in tensive land use b. c. Higher tax revenues to the City More employment opportun it ies d. Traffic related benef its alone ind icated the economic viab ility of the pub lic investment, but mo re impo rtant the add itio nal deve lopmen t benefit s ind icat ed t"'e poten t ial of providing between 6,000- 12,000 job opportun ities and $3 m illion to $6 .5 milli on tax revenue per year from the accelerated growth of indust rial activity in the area. 4. Wells Street Industrial Rehabilitation and Riverside Pa rk Joint Development Locust Point Neighborhood Reha bi litation Plan Maryland Port Autho ri ty Development Proposals and the O rganization of Container Facilities Canton/ Dundalk Industrial Development Program Proposals for Wells Stree t and Locust Point Neighbo rhood include multiple use of highway right-of-way fo r recreation facilities and furthe r study of the acoustical impact of the freeway on adjacent residential areas is recommended . T he completion of the harbor crossing and the provision of continuous no rth and south access will stimulate the growth of the Maryland Po rt Authority's ten year development plan. In addition, 1-95 will provi de access to all road, rai l and shipping oriented fac ilities w ithin the City bounda ry. Proposals are made to capitalize on these oppo rtuni ties by the development of an in tegrated container handling system centered on a new stripping and stu ff ing facility located at Clinton Street on the Canton/ Du ndalk side of the Harbor. The development of the considerable industrial potential on the east side of the harbor w ill be spa rked by th e com plet ion of th e Crossi ng. Th e maj o r developm ent sites identified are : 1. 2. 3. 4. 6 Penn Central Railroad Yards Sea la nd/ Canton landfill project at the foot of Newkirk Fort Holabird Red eve lopment Various sites adjacen t to Broening Highway north of Holabi rd Ave nue �section 8: next steps • I Fort McHen ry is the subject of a special study. It is c lear that t he proximity of the p roposed 1-95 freeway and the bridge crossing will change the background aga inst which the Nationa l Monument will be viewed. However , th rough the j oint d evelopment of the high way corr id or, additional design and landscaping pro- vision can provide compensatory additions to the Fort's present envi ronment. Thus the eff ects of the bridge crossing can be min im ized and the objec- tives of the Fort McHen ry Mast er Plan can be realized simultaneously . Although the Concept Team's con tractual responsi bility fo r planning Segment 14 ends with the pub lication of t his report it is assumed that the initial joint development and road way design concepts presented here will be developed further by the IDBC and its futu re highway planning consul· tants. T he following directions are recommended for the subseq uent planning effort: 1. Corridor Development Phasing Certain proposals outlined in Sections 4 and 7 can proceed independently of highway con· struction, e.g., the proposed industrial road , landscap ing and Fort McHenry imp rovement s. 2. Developmen t Projects Ea rly planning of certain joint development would have the advantage of: a. Allaying the fea rs of local residents that the highway will be solely a d estruct ive force in the community. b. Would provide rep lacement fac il ities before exist ing faci lities are d isplaced. 3. Corrido r Developmen t Co ndemnation Ordinance T he early determ ination o f a Point IV "road fix" is recommended to: a. Prov ide a basis fo r publ ic and private in vest ment decisions. b. Acqu ire potent ial jo int development sites fo r development as demonstration projects. The condemnat ion o rdinance wil l therefo re cover not only land fo r the highway right-of-way but also land requ ired for the execution of associated jo int development pro jects. 4. Industrial Development Corporation Section 6 recommends the establishment of an Industr ial Development Corporation to promote, plan and guide industrial development associated w ith the highway. I I I 7 �TRAFFIC ANALYSIS �1-695 === ======:;: EXISTING FREEWAY PROPOSED FREEWAY _ ____ 3·A SYSTEM / 3 .00 1 �1-95 harbor crossing and the 3-A system introduction The following section has two major parts. T he first describes the functional relationship of the 1- 95 Harbor Crossing to the 3- A System as a whole, and the second deals with the more detailed analy sis of the impact of the freeway on local circulation patterns. The 3-A System was formally adopted by the City of Baltimore and approved by the Bureau of Public Roads in January of 1969. the system described The system was the result of a comprehensive reappraisal of the routes, known as the 10·0 System which were a 'given ' at the outset of the UDCA 's work. As part of the reappraisal a number of al ternative alignments were developed and tested' and it was concluded that as long as the system included only one east-west facility and combined central busi ness dist rict movement with the through traffic movement, the loadings on the system would continue to exceed those permitted by the traffic performance criteria. 'For deu,ils o f this eYIIluat ion see TransportlltlOn. Environmen tlll lind Cost Summ,try - UDCA. October 18, 1968 . 9 �FREDER ICK 3.002 The 3·A System follows a large part of the " old" 10- 0 route but differs chiefly in that the 1-95 Harbor Crossing (Segment 14) replaces the Inner Harbor crossing . Segment 13, linking 1-70·N with 1·95 east of the Caton Avenue Interchange is added to complete the bypass function. The separation of CBO bound traffic from longer "through movements " is achieved by providing two 'spurs' and a generally north-south boulevard to supplement existing streets in serving the downtown area and a bypass route (Segment 14) to carry the longer distance east /west movements. These modifications result in a reduction of the number of lanes of the roadway in a number of im · portant areas throughout the system, freeing land for other development and reducing the number of homes and businesses to be displaced. 10 �3.003 The "Spur" Syl\"m:' 3 .004 The Bypass Rollt,,, ' ; �segment 14 function Segment 14 is defined as running from the 1-95 interchange with 1-83 at O'Donnell Street to the interchange with the 1-395 spur at Middle Branch, west of Hanover Street. To understand the function of Segment 14, a summary of the amount, composition, origins and destinations of the projected 1990 Fort McHenry bridge users is presented in the following paragraphs. Average Daily Traffic BMATS network 12-1A projects an average daily traffic of 115,800 vpd over the Fort McHenry Bridge in 1990. Trucks are expected to comprise almost 10% of this traffic (11 ,OOO/day). 3.005 1. Origin s and Destinations of Traffic : The select link analysis supplied by BMATS provides Internal city movements (having both origins and destinations in the city). City / City 12.6% Total 12.6% the origins and destinations of this traffic based on east-bound flow over the bridge. The analysis is summarized in the following tables and diagrams. Origin Destination External External External City County City City County County External City County External External City County County County 16,790 1,560 1,340 1,380 1,860 7,290 14,940 6,540 6,200 29.0 TOTAL 57,900 100.0% 12 Volume % of Total 2.7 2.3 2.4 3.2 12.6 25B 11.3 10.7 �• 3.007 3.006 2. Cumulative external / internal movements (having either origin or destination in the city .) 3. Through movements (having both origins and destinations outside the city) 29.0% Al l external / city 5. 1% External / External All county I city 37.1 % External I County 5.5% Total 42 .2% County / County 10.7% Total 45.2% 13 �Based on the preceding tables and diagrams it can be concluded that Segment 14 is expected to serve two distinct movements: 1, The east-west metropolitan traffic: 600k of the bridge traffic has both ends in the BMATS area," The predominant movement is from the west and southwest to the east and northeast. 2, The north -south interstate traffic: 29% of the bridge traffic is bypassing the area, another 11 % have either an origin or a destination outside the area. The predominance of the metropolitan trips explain the importance of Segment 14 as an east-west by· pass, the significance of the interstate traffic explains its function as part of an interstate route. effect of segment 14 on metropolitan circulation Due to its dual function, Segment 14 is expected to have positive impacts on systemwide circulation. As an east-west bypass, it will contribute to less CBD congestion and a better operation of 1·83, and as a north-south interstate route it will relieve the harbor tunnel. 1, CBO cong es tion One basic function of the 1- 95 Harbor Crossing (Segment 14) will be to relieve pressure on the main east-west city arterials which presently carry the cross town traffic in the Center Business District, principally: 1. Pratt and Lombard Streets 2. Franklin and Mulberry Streets 3. Baltimore and Fayette Streets Since the 1- 95 Harbor Crossing (the only continuous east ·west link in the 3 ·A System) will be the last link to be completed, the interim growth of metropolitan east-w est traffic will make the operation of CBD streets more critical than present conditions, The following table summarizing traffic loads on selected CBD locations as projected for 1975, 1980 and 1990 shows the impact of Segment 14 on CBD can · gestion: • Definition of BMA TS area: Baltimore City, about 75% of Baltimore County (all of the county south of Hereford); the northern half of Anne Arundel County (north of Fort Meade, Odenton and Severna Park), end the eastern half of Howard County least of Pine Orchard and Clarksville!. 14 Upon comp letion of Segment 14 in 1980 (1980 projections) the CBD street s wil l enjoy a significant decrease in their loads. T he continuing growth in t he metropo l itan area and the corresponding growth in t raffic between 1980 and 1990 (1990 projections) will result in an operation in 1990 sim i lar to or slightly better than the 1975 operation. �CBO Tra ffic Estimates: 19/ 5-1980-1990 I 6MATS System- BMATS System12·2 8MATS System" 124 1975 Volume 1980 Volume 1990 Volume 61,100 55,400 60,200 24,200 , 7 ,400 18,900 Bal ti more, Fayette (East of 1-83) 27,350 25,450 15,17'" Franklin / Mulberry West of 51 Paul) 53,700 49,900 60,900 1·395 Spur 22,400 17,400 19,400 49,700 42,900 54,600 Faci lit y I Prall & lombard 12 ·1A (West of 1-83) Pratt & Lombard (East of Boulevard) (South of Pratt) light & Calvert (South of Pratt) I BMATS System System 124 Assumes system 3·A first stage of CDnSlrllCI<Ofl t lhe absence of Ihe I 95 Harbor Crossong and lhe Gwynns Faits Bypass l The modal split does not assume Ihe rapId IranS,l in Oper&IIon System 12 ·2 and 12 -1 A ~ Both assume system l·A completed and Iho rapId Hans,! system on operaHon The low >JQlume o f Ihls link 's 81muuted to added h'ghwllV l:onSIr"l: l ,on bv Ih ,s veil' (Hllrford Road) 'n IIdjacenl ramp con fig urlllions m Ihe nelwork The 1975 and 1980 " gures lI'e comparable II~ well liS I:hanges 15 �2. 1 operation -83 As an East-west Crossing, Segment 14 is important for the safe and efficient operation of 1-83 in its southeast portion (between Pratt Street and 1 -951. 1-83 in this section is being designed as a six lane fac i lity to meet the 1990 projected demands with System 3-A completed. Interim projections, consistent with the current scheduled construction program , show that the operation of 1-83 will be critical upon completion in 1975. The following table summarizes the projected volumes on 1-83 and its critical ramps upon completion in 1975, after completion of the 3-A System in 1980 and in th e design year of 1990. Inspection of th e table shows that 1-83 will carry volumes exceeding its maximum service volumes (at level of service D ~ ) in 1975, but will operate be· low or near capacity in 1980 and 1990. • Lellel o f sen/oce 0 ma~omum serVIce volume oS 15,000 ADT / lane BMAT S Syst em 124 Location 1-83 (East of Washington 1975 AD T 104 ,7 00 (v/ c=1.16) " BMATS Syst em 12 ·2 1980 A DT 80 ,200 (v/c"'Q.89) BMATS System 12·1A 1990 A DT 86,900 & WaIleS!. ,.,...1 Ramps 10 Boston 5 1. & 1·95 south 29,000 Iv/c"' 1.20 ) 20 ,000 ( v /c~0 .83 ) "'-83 is being designed as a six lane facil ity in this section w ith a design capacity of 90.000 vpd . 16 �3, harbor crossing operation As a north-south interstate facility Segment 14 is expected to assist the existing Inner Harbor Tunnel and the proposed Outer Harbor Tunnel in carrying the East Coast interstate traffic in a balanced and satisfactory type of operation. The Inner Harbor Tunnel is presently suffering from over·loaded conditions resulting in daily peak hour traffic congestion and delays to motorists. The proposed Outer Harbor Tunnel is planned to complete the Beltway around Baltimore and plans for it call for a two· lane tube to be completed in 1972 with another two-lane tube to be added later. Both tunnels are included in BMATS networks 12·2 (1980 projections) and 12·1A (1990 projections) and the fo llowing table summarizes the expected average daily traffic in the tunnels and over Fort McHenry Bridge. Crossing A . 1·95 Harbor Crossing · Capacity 1980 Vol. 1980 vIc 1990 Vol. 1990 vIc 120,000 vpd 93 ,600 0 .78 115,800 0.96 B. Inner Harbor Tunnel 60 ,000 vpd 62 ,000 1.04 63.500 1.06 C. Outer Harbor Tunnel· • 60,000 vpd 45 ,300 0 .76 56,600 0.94 "TraffIC demoncb lor the 1·95 Harbor Crossing are based on the assumption 01 i!I toll·free f acility. The 4 11, mile long I ·95 Harbor Crossing will require an 8·lane width providing a basic daily capacity o f 120.000 vehicles at level 01 service '·0" over 3% miles 01 iu length. However, the necessity of a 180 loot vertical clearance over the harbor requir~ a mi le long 3% per cent gr&Cle on each approach to t he br idge. which will slow t he heavy truck Ifallic 17 % in peak hours) to t he 11K tent thll! t he peak hour cap~clty on thll brodoe will be reduCed to the eq uivalent of 80.000 vehicles per day i f service Illvel 0 IS to be m aintained. Peak hour use of the 12' shoulder as a t ruck c limbing lane however. wi ll increase equivalent daily capIICity to approKimately 100.000 vllhicl~ al service levol O. Acceptance o f a reduced level of service. E, with minimum auto weeds of 30-35 mph during peak hour, would inc:roase capacity to the indica ted 120.000 vehicles daily. " fhi' aS$Umes tile constrUCtion of a parallel htcilitv r/llSing the capacity of the tunnlll f rom the present planned 20.00Cl ~pd to 60.000 vpd by 1980. Estimates l or the revenue bond p r OJecl anticipate an average dalty traffic that is significantly below these ftgures and dc:oM not justify the addl! Ion of another lube by 1990. BMAT S, however. assumes the two tubes to be tn operatton by 1980 !BMATS System 1221 3.008 17 �summary The 3-A System is part of the total metropolitan area tran sportation network . No part can function independently of the other without having signifi cant impact on traffic distribution to the various component segments. The 1-95 Harbor Crossing is a critical component, whose function is to take east/ west metropolitan traffic and north/south interstate traffic around the already congested inner city area. Without the Crossing and the associated Segment 13) the incomplete system would funnel traffic onto downtown streets as well as overload the two Harbor Tunnel facilities. Staged development of the total system is essential. As the interim traffic growth figures show, the completion of the Crossing component of the system by 1980 (in line with the ci ty/State Roads Commission constructil)n schedule) is criti cal to the efficient functioning o f segments to be completed in the earlier stages of development, particularly 1·83. 18 �I traffic characteristics and relationship to local circulation The Segment 14 Corridor runs through the major heavy industrial/water front areas of the City, c rossing two distinct areas presently separated • by the Harbor. 80th Canton/ Dundalk and Locust Point contain a number of large manufacturing faci lities emp loying large work forces. These in- dustrial plants are heavy generators of traffic with critical peaking characteristi cs which lead to considerable congestion and delay at the present time on the inadequate City street system. 3.010 19 �locust point Locust Point is presently served by a semi -circumferential arterial route, the components of which are Key Highway and McComas Street. Fort McHenry and local residential traffic is served by Fort Avenue, which also provides access to industrial operations in Locust Point. Hanover and Charles Streets, at the west end of Segment 14, serve the Hanover Street Bridge traffic, as well as the local traffic into and out of the CBD. Traffic counts at selected locations, made by the Department of Transit and Traffic , show the following volumes (1968 Average Daily Traffic): Facility location 1968 ADT Capacity VIC Hanover N. of McComas 32,440 34,000 0.95 Hanover N. of Ostend 27.510 20,000 1.37 McComas E. of Hanover 9 ,160 11,200 0.82 Fort Avenue w. of Key Hwy. 7,700 10,000 0.77 Existing capacities and resultant volume-capacity ratios are also shown. From the table it is apparent that the major problems are along Hanover and S. Charles Streets which are overloaded by the Hanover Street Bridge traffic . In addition to these overloads, there are heavy truck movements on residential streets due to the mixed pattern of land use and the dominance of industrial activity throughout the area. 20 �1I: 'UI ' C 11 II I ,I ' ., L "J~ II 11 EXISTING LOCAL TRAFFIC SITUATION 3.011 I •l Ul lW ...... �effect of segment 14 on local circulation patterns in the locust point area City Im provements The City has just completed upgrading McComas Street and Key Highway to a four lane road to handle heavy industrial vehicles. However, east of Key Highway , McComas Street is owned by the B & 0 Railroad and remains unpaved beyond the Fruit Pier. Direct access to the fr eeway, east and west, wi ll be provided via McComas Street, in the vicinity of the Key Highway intersection. There are tentative City plans to extend McComas Street past Southern States Cooperative and to make a connection with Fort Avenue immediately west of the entrance to Fort McHenry. The immediate effect will be to concentrate traffic , especially industrial traffic , on Key Highway and McComas Street for access to the freeway, thus reo ducing the impact on local residential streets. Even though the proposal diverts some traffic from Fort Avenue to McComas Street, it may increase the industrial traffic at the entrances to the Fort McHenry National monument and negate the effectiveness of a commun ity proposal to ex tend McComas under Fort Avenue around the north side of Locust Point and to link with Key Highway forming an exclusive, industrial loop. * In this regard the greatest benefits will be realized with the construction of the 'industrial ' loop connecting the major traffic generators directly with Key Highway and McComas Street. The traffic on Hanover and Charles Streets wilt not be substan t ially affected by the construction of Segment 14. The majority of these movements are north/south and CBD oriented and will be served by a proposed direct connection between Hanover Bridge and the 1-395 Spur. However, the traffic moving across Hanover Street Bridge and bound for the north and east of the City, presently crossing the CaD using Pratt Street will be able to divert to the more convenient Fort Mc Henry route via the McComas Street ramps. 'This proposal;s discuswd in section 7 as Development Plan . 22 part of the Locu$t Point �L ~ \ L L \, I' UUNOU lj[ 'U UWAY 3 .012 PROJECTED TRAFFIC SITUATION-1990 �canton/ dundalk 3. T he operation of Ponca and Newkirk Streets as a one way pair between O'Donnel l and Boston Streets. The Canton/ Dunda lk area is presently served by Broening Highway. Holabird Avenue, Newkirk and Clinton Streets and the Harbor T unnel. Effectively the area is d ivided into two sub·areas by the Harbor T unnel Approach , with the major traffic generators - the manufactu ring plants grouped along Broen ing Highway in the east subarea . T hese City im provements, in particular the proposed ext ension of Keit h Avenue t o Broening Highway, will divert some traffic f rom Broeni ng to Newki rk Street ; however, the majorit y of traffi c entering and leaving the area will still concent rate at the key inte rsections, Holabi rd , Boston, and t he ramps to t he already over-loaded Harbor T unnel. Congestion and delay can be expected at these poi nts unti l t he com pletion of Segment 14 in 1980 . T hese plants employ nearly 10% of t he total ind ustria l work force of Baltimore and since Broening Highway also serves the Dundalk Marine T erminal severe congestion results in peak hours. Facility Major problems occur at the intersection of Broen ing Highway and Holab ird Avenue and f urther north at the intersection of Boston with Broening H igh - location 1969 AOT Remarks T he accompanying table, developed from t raffic counts and remarks supplied by t he Department of T raffic and T ransit shows overloading throughout the area. city improvements The City has al ready scheduled a number of improvements to the local street system. 1. The extension of Keith Avenue to connect with Broening Highway. 2. A connection between Clinton Street and Broen ing Highway , involving the upgrading of Leland and Newgate Streets and the construction of Vail Street. 24 Holabird E. of Broening 16,700 Holabird W. of Broening 20 ,000 ,Ie > 0.90 Broening s. of Holabird 30,600 ,Ie > 0.90 Broening N . of Holabird 19 ,700 ,Ie > 0.90 Broening S. of Boston 12,800 ,Ie > 0.90 Boston W. of Broening 20,100 ,Ie > 0.90 Harbor Tunnel Ramp To & from Holabird 12,300 Ponca way . The approaches to the ramps of the Harbor T unnel at O'Donnell and Ponca Streets are overload ed. T he local ci rculation pattern is compli cated by the existence of a num ber of on grade railroad crossings - chiefly on Ponca Street, and the fact that Clinton St reet is not adequately linked to Newkirk Street. S. of Boston 19,000 Heavily traveled vIc = ,Ie > 0 .5 1 0.90 �" L 1U JI 3013 l JUl ._- II I U L , II" "I TRAFFIC SITUA Tl9N �effect of segment 14 on local circulation patterns in the canton / dundalk area The 1- 95 Harbor Crossing, by linking Locust Point and the Canton Area. and by providing maximum accessibility to local streets wi l l be a major factor in relieving local congestion . Direct access to and from the freeway system wil l be provided at: 1. Keith Avenue and Newkirk Street 2. Card iff Street 3. Boston Street and O'Donnell Cut-off Facility location 1990 ADT Remark s I mproved over 1969 Holabird W. of Broening 7,000 Providing direct access to the expressway at Keith and Newkirk will: Holabird E. of Broening 17,S00 1969 volume stabilized 1. Broening S. of Holabird 12 ,200 I mproved over 1969 Broening N. of Holabird 23,400 1969 volume stabil ized Broening S. of Boston 11,000 improved over 1969 Keith & Newgate at interchange 14,000 Boston E. of Broening 10,000 Boston W. of Broening 20,500 2. Contribute significantly to the reduction of pressu re on the local streets and ramp terminals at Boston St reet and O'Donnell Street. Handle the increasing t raffic generation of the Dundalk Ma rine T erm inal, which includes a significan t and increasing number of containerized freight movemen ts on truck chassis. In addition, the completion of Segment 14 will relieve overloading on the Harbor T unnel by providing an alternative Harbor crossing with access at Cardiff Avenue and Newkirk Street. 26 O'Donnell Cut-otf 5,000 I mproved over 1969 Improved over 1969 �r , I L lr I I I , -c 11 11 I, JI I Jl - II 8 • , , , ,I , , I: " ! r ) c , -" I ", TIll " •• , p 3.0 14 T - , �interim problems and recommendations During the period following the construction of 1- 83 in 1975 and before the completion of the 1-95 Harbor Crossing in 1980, the growth of traffic throughout East Baltimore together with changes in travel patterns due to new highway construction will keep the congestion in this area at its p resent level. The most crit ical problem is a potential bottleneck at the intersection of Broening Highway and Boston Street where all the 1-83 and 1-95 north as wel l as part of the Harbor Tunnel traffic w il l seek access. T he table below quantifies the interim problems by showing the expected volume! capacity ratio (1975 figures represent the interim situation) . Design Section Capacity 1975 Volume+ 1975 VIC 1990 VIC·· 1.83 direct ramps to 1-95 60,000 vpd. 70,800 1.18 0.97 Harbor Tunnel 60,000 vpd . 76,000 , .26 1.11 Boston St . ramps to 1-83 24 ,000 vpd . 29 ,000 1.20 0.83 Bosto n St. west of Broening Highway 18,000 vpd. 33,000 1.83 1.16 1-83 east o f Washington Street ramps 90,000 vpd . 104,700 1.16 0.96 Source: BM ATS Sy stem 12 -4 Source : BMATS Syst em 12 -1A 28 �O'DONNEll 1- 83 o z • • • • • z - HO lA8IRD As an interim measure parts of the proposed inter. change between 1-83 and 1·95 could be constructed early - perhaps as part of Segment 3 which is scheduled for completion by 1974. Even though the volume projected for the ramps at Keith /Newkirk appears to be low to justify early construction of the interchange, the relief it offers to the Boston/ l-83 interchange can be considerable. ~ \_______...-__ 1 ..... _ K..!!,T!!., _ I ~I ~I 3.015 I ~ ~"n[~ Another relief for the Broening/Boston intersection is the completion of the link between Boston Street and Cardiff Street together with the first stage of freeway construction. Another interim measure could be the use of O'Donnell Street for access to ' ·95 north, thus offering further relief for the O'Donnell Cut -off area. 3.016 �AREA DESCRIPTION �4 .001 introduction Although the Segment 14 Study Area includes both Canton/Dundalk and Locust Point, the following area descrip t ion and analysis of social and economic patterns is particularty oriented toward Locust Point. The impact of the expressway system on the residential neighborhoods of Highlandtown, Canton and Dundalk has been discussed in the Point III reports covering Segments 2/ 3 and 4 of 1·83. By contrast there has been no initial analysis of the social and economic condition in Locust Point or the impact of the expressway in that area. Th is section (4) of the report is broken into four parts dealing with the historical background, the identification of functional areas, followed by more detailed social and economic profiles and con · cluding w ith a summary of developmen t p lanning objectives for both the neighborhoods and the in· dustrial community. As indicated in the introduction to the Report, the purpose of these analyses and summary of objectives (issuf's) is to provide a comprehensive planning framework with in which the transportation needs of the city and the goals of the expressway system can be evalu:ncd in the context of the overall development patterns of the area. 31 �area description facility in the port is Dundalk Marine Terminal, located just off Broening Highway. The study area, through which Segment 14 wilt pass runs from O'Donnell Street in East Baltimore to Hanover Street at the western end of the Locust Point peninsula, thus the 1-95 expressway corridor will form the transportation spine for the most important concen tration of heavy manufacturing industry and port facilities in the City of Baltimore_ The Harbor Tun nel app roach road runs through the area, and effectively divides the manufacturing industries from the railroad land (mostly owned by Penn Central) and the piers. Fort Holabird , a military intelligence training camp is presently the other major emp loye r in the area, although recen t government announcements indicate that it will close by 1973. Despite the industrial nature of most of the Segment it is by no means homogeneous. Traditionally, the Canton/ Dundalk area of East Baltimore has had little or no connect ion with Locust Point either social ly or economically. The two areas operate independently although they share common characteristics. Both have a close inter-mixture of residentia l areas and heavy industry or port facili ties, and a traditional pattern of local employment. Functionally the area can be divided into the fol lowing sectors: 1. Canton/ Dundalk Industrial Area 2. Canton/ Dundalk Waterfrontage 3. Fort Mc Henry 4. Locu st Point Southside 5. Locust Point Northside 6. Fort Avenue/Key Highway Industrial 7. Middle Branch 8. "The Point" (residential neighborhood) 9 . "T he Hill " (residential neighborhood) 10. Sharp Leadenhall / Montgomery Street (residential neighborhood. Separated from Canton by the Fort McHenry Channel, Locust Point is a much more varied and comp lex area. The water frontage is almost completely developed and controlled by a small number of major users t he MPA, and Western Maryland Railroad. The southern water frontage although not yet fully developed, is total ly water-oriented. The most important faci lity is the Port Covington Terminal. The northern frontage has a much larger concen tration of non-port activities; however, all of them rely to some extent on water access. In the center of the peninsula, completely surrounded by industry, is "Th e Point ", a resident ial comm unity of 3,400 persons. It is a stable w~ rkin g class district, with higher than average income and a slightly declining population. Its isolation from other residential areas and the rest of Baltimore has led to a highly developed independence among the community. The Canton/Dundalk industrial area has the larger propo rtion of major manufacturing industries. Western Electric, Lever Brothers, American Standard, American Smelting and Refining, Nationa l Gypsum, and General Motors have large plants and employ over 20,000 worke rs. The Canton Company leases a major containerization facility at the foot of Newkirk Street to Sealand and also a number of other piers along the southern water frontage. Key Hi ghway and an associated belt of industry effectively separates 'The Point " from the other residential neighborhood which is referred to locally as 'Th e Hill ". Thi s commu nity is further divided in to the Sharp Leadenhal l/Montgomery Area, which is 50% bl ack; and the area south of Warren Avenue which is white, and similar to 'The Point " in social characteristics. The most important, and fastest growing, container Middle Branch marks the westwa rd boundary of the 32 �area. The eastern bank of this backwater is occu pied by Baltimore Gas & Electric Company. The major industrial land holdings on the Point are in the hands of the C & O/ B & and Western Maryland Railroads. The latter operates Port Covington, the major terminal facility in the south ern water frontage. C & OI B & 0 Railroad has recently released a large part of their holding to MPA, but it also owns a long strip of vacant land between McComas Street and the railroad. a Fort McHenry at the extreme tip of the Locust Point Peninsula is a National Monument under the jurisdiction of the Department of the Interior. Although the Fort and the small area of park land around it are wel l-kept, the site is hemmed in by heavy industrial development and the present access along Fort Avenue is heavily used by industrial traffic and inapp ropriate both as an approach and for tourist t raffic. 34 �• I I -- -:--,\l~~'T.t • UTHOGRAPHERS ---~~4 .003 BALTIMORE. THE LIVERPOOL OF AMERICA. 35 �historical development patterns of the area A brief summary of the historical development of two areas under study serves to illustrate the reasons for the present patterns of activity. It serves also to emphasize that these patterns of use are based on the original development of the land and waterfront resources, established during, and in response to, the needs of the 'railroad era', the industrial revolution of the late 19th century and the World War I boom in t ransatlant ic trade and immigration. In many cases these patterns remain unchanged, irrelevant and inefficient, perpetuated by inertia, curious differential tax systems, and, until now, lacking the stimulus for development brought to suburban industrial land by the recent growth of road transportation. 36 �'I - I '1': 2 t i ,."_ "_ _ . : - ,.,"":,_ I , , . i :-.': I _.=.~ - r:- j ! -;r-j, 'I,ll 4,.- .'I- .,. ~ - .. - .:- -.-.--::';". - I I I]) I •> .J,., • .. .. . ." ~ ~ I '.L! " j , j , I .t. 111 11111-. j I j Ij ._. I"" I T - f' 1 ' ., .,' " I _ ..I �, • \ • • I • • 4.005 Tho"" M..... ""'. e~l"""". �canton / dundalk peninsula As the name implies the history of the Eastern part of the Study Area has been determined by the development of the Canton Company. The commonly held story is that a Captain John O'Donnell came to the Port of Baltimore in 1785 with a ship load of goods from the Orient. He sold his goods, bought a large tract of land that stretched three miles east from Fells Point and named his estate Canton after his Oriental port ·of·call. After his death O'Donnell's son and several others including Peter Cooper of New York, formed the Canton Company to develop the land. They bought more land and soon owned virtually all of what is now East Baltimore. At the time, however, the city boundaries included only a small portion of th is area, most of which remained in Baltimore County until 1918. T he new company soon began selling parts of the estate to individual developers. To make the land more attractive they provided certain amenities, including a large resident ial area for workers from the Sparrows Point iron and steel works and the expanding port activities. The houses still exist as the Canton and Highlandtown neighborhoods of East Baltimore. The company also saw that a railroad connection would aid the sa le of their property and in 1866 financed the construction of the Union Railroad. At the turn of the century the Canton Railroad was formed to provide services between the various industrial developments on Canton land and the piers. All these 'improvements' spurred the development of the estate. One of the first major industrial plants was the Baltimore Copper Smelting and Refining Company which was to become American Smelting and Refining. The booming Atlantic Trade, the swift growth of a new industrial work force and the complementary development of both residential and commercial , ... PH'. M....... n. Sa" """'. 39 �• r , facilities soon led to the temporary establishment of places of amusement on the undeveloped land. The area was famous for its race tracks, taverns and cockfighting pits. An amusement park was located on Point Breeze. the site of the present Western El ectric Plant. Gradually, these uses disappeared as the land was acq uired for heavy manufacturing facilities. John D. Rockefeller bought the present Hu mble Oil Properties in 1897 and by the 1930's the General Motors and the Western Electric Plants had been constructed and the pattern of intensive manufac - turing uses that exist today had been established. 40 I �- I I locust point like Canton. the development of Locust Point was controlled by a railroad company, in this case the Baltimore and Ohio. Prior to 1830 the only buildings on the Point were military - Fort McHenry. a battery at Fort Covington, a powder magazine and a barracks. The 'Road to the Fort ' which became Fort Avenue. was the only road in the area. A famous etching of the 1830's shows a rolling bucolic landscape with meadows, trees and grazing cows. The B & 0 Railroad built its first l ine in Baltimore in 1831. It ran along Pratt Street from Mount Clare Station but was of little utility since the 41 �city fathers banned the use of locomotives on it citing, incidentally. smoke pollution and danger to horses as a reason for excluding the latest transportation technology from downtown streets. In 1848 the Locust Point line was built. It ran along Wells Street, turned north on Lawrence parallel to the present Key Highway and ended In the Locust Point Terminal on the northside of the peninsula. The completion of this project marked the beginning of the importance of South Baltimore as a major waterfront area. The following thirty years saw the rapid expansion of the T erm inal facilities with grain elevators, a tobacco warehouse. the Baltimore Dry Dock and Shipbuilding Company and the related residential community now called "The Point". The railroad 42 company also recognized the need for a harbor crossing in order to support the complementary growth of both the north and south sides of the harbor. They established a ferry service from the Locust Point Terminal to Fells Point which operated until 1938 and a fl oat bridge to handle freight cars which closed down only two years ago. �• I I '--c ,\000 4.010 Pre 1830 4.012 1890 4.011 1850 I 1920 43 �People as well as freight came into the country via Locu st Point. The B & 0 Railroad owned half of the North German Lloyd Steamship Li ne which transported many immigrants to the United States. I n constructing these facilities the railroad extended both the northern and southern shorelines of the pen insula to almost thei r present configuration. The last project to be completed was the southern line along McComas Street in 1870. Port Covington, the major terminal facility on the Southside of the peninsula was developed in 1903 by yet another rail road company. the Western Maryland . The development of Port Covington at this site entailed filling in Winan 's Cove and led to considerab le land f il l extending the Southern Shore of the peninsula. 44 Th e Hill commu nity which occup ies the western end of the peninsula is a natura l extension of the City. It grew south along the 'Road to Annapolis' - t he present Hanover Street to a ferry crossing of the Middle Branch. �• I I I I • 4.015 �social profile: segment 14 area Three residential communities can be identified in the area, corresponding both to the neighborhood boundaries observed by the residents and the socia-economic differences observable in the data. They are identified in the accompanying diagram and are as follows: , . Locust Point - called locally "the Point" and co rresponding almost exactly to Census Tract 24 · 1. 2. T he area south of Warren Avenue and Fort Avenue called locally "the Hill" covering Census T racts 23-2, 23-3, 24-2, 24-3 and 24 -4 . 3. Sharp Leadenhall / Montgomery Street - sometimes called "Sharp Leadenhall Corridor" or " Fede- ral Hill" corresponding to Census Tracts 22-1 and 23-1. The last, Sharp Leadenhall / Montgomery Street, although geographically an extension of "the Hill " is more prope rl y dealt with in relation to another part of the expressway system - Segment 6 - the 1·395 spur which w ill pass through this area. T he neighborhood is sharply different from "the Hill" with 5CY% non ·white residents and diff erent patterns of home ownership and employment. However as part of South Baltimore it contains the major shopping center - Light Street - and a num ber of community facilities shared by the predom inantly white community south of Warren Avenue. T he other neighborhoods contain white, blue collar communities. Physically they are sim ilar, charac · terized by typical Baltimore rowhouses, and a close proximity to industry. Both are inward look ing, stable neighborhoods yet neither is dominated by one part icular ethnic group as are comparable communi t ies in East Baltimore . Corner stores, tav · erns, churches and union halls prominent through 40 �out the area emphasizing the work ing class origin of the neighborhoods. However, despite the outward similarities, the local residents continue to I recognize long held parochia l boundaries and there is an intense loyalty to and in sOme cases rivalry between the two communities. the point " The Point" is the smal ler of two communities and has a population of approximately 3,400 ( 1968 figures). I t is isolated from South Baltimore and the rest of the City by industrial development . Briefly stated, it is a classic working class neighborhood. Houses are well kept; despite the encroachment of industrial uses, its residents are fiercely independent, few of them receive public assistance, crime rates are low and a majority of workers are craftsmen and skilled workers employed in the surrounding shipyards, wharves and industries. I 4.016 T he age structure shows that the residents are in general slightly older than the City median, and there has been a decline in the number of child ren over the past ten years. Whole or extended families still predominate and only 9% of the popu lation lived alone in 1960. There is not yet a significant concentration of old people or an unbalanced population . The median annual income for the neighborhood slightly higher than the city average. (And inci dentally, higher than the average for the neigh boring "Hill".) In 1960 it was $5,850 . • • 23-3; ; 2.. -4 IS The independence and interdependence of the com munity is witnessed by the degree to wh ich it supports its own poverty families. A 1964 study revealed that while 13% of the fam il ies had incomes of less than $3,000 per year, only 1% received public assistance. Although there is higher than average car ownership, 75% of the residents work local ly and 19% 4.017 47 �4.0 18 walk to their place of employment. The housing stock is homogeneously old. mostly constructed at the end of the 19th century to house the growing shipyard workforce. It is almost totally of the single family rowhouse type. By far. the majority. 83%, are owner occupied. Vacancy rates are low. and the housing block is in good condition. the 1960 census indicating that only 4% of the 1.077 units were in deteriorated condition. None were found to be dilapidated or lacking in basic amenities (running water and interior plumb ing). Community facilities and services are not extensive but appear to be adequate for such independent communities. School 76 is a source of community pride. It sp.rves chitdren from kindergarten through the 48 ninth grade. It is the newest of all the schools in South Baltimore and the only one not slated for rep lacement in the near future. The other major community resource is Latrobe Park. The 12 acre park is located on the south side of Fort Avenue as is the school. It is heavily used and supple· mented by an additional 3 acres of open space, presently occupied by a soccer field, which is leased from the B & Railroad by the City. Th ere is a well used recreation building and community representatives have outlined plans for expanding the present facilities to include an open air ice rink. a The public school has adjacent play facilit ies but the parochial elementary school. Our Lady of Good Council, uses Latrobe Park for recreation. There is another soccer field near Reynolds Street. also on leased B & 0 land, used by the Norwegian Sailors Society . �" 1 ,~ c, L • I 4 .019 49 �Major shopping facilities do not exist on "the Point". There are some corner shops and small general stores. Shopping is therefore one of the major forces drawing people out of the neighborhood. The closest commercial area is the Light Street Center and there is a public transport connection via Fort Avenue. However, there are indications that many of the people use their cars and shop in the Glen Burnie Shopping Center to the south. Residents seldom use the Central Bus iness D istrict either for shopping (presumably because stores and merchandise there are oriented towards the middle class suburban shopper and luxury items) or for entertainment. Such is the inherent stabi lity of the community that, like those in Fells Point and Canton, the neighborhood has retained its residential integrity despite being zoned for heavy industry since 1931. While city policy has lately recognized the fact of continued residential use of these neighborhoods in the New Zoning Ordinance for Baltimore, community representatives are pressing for an extension of these proposals in order to remove light manufacturing uses from the fringes of the neighborhood and to guarantee the continued use of the 830 leased extension of Latrobe Park for recreation. The other expressed community concern is with the use of Fort Avenue for industrial traffic. Apart from the noise, fumes, vibration and obvious pol lution generated by these vehicles, the location of the major community resources, the school and the park on the opposite side of Fort Avenue from the housing area means that those most vulnerable age groups, the old and the young. are exposed to increasing r isks in crossing the main street. The construction of a special "industrial loop" joining McComas Street with the North Side T erm inal entrance to Key Highway has been suggested as a means of diverting through traffic from the Avenue.· 'Set! Section 3 50 4 .020 �the hill Il I I I I I ' 'The Hill" contains four times as many people as Locust Point but on the whole is slightly lower on a socio-economic scale. There are several subtle subdivisions of the area - one being the core area around the Light Street Shopping District and ! ' , ! i 24-! i 3! , 23-3 i , another being the area around Riverside Park and along Fort Avenue. - The total population of "the Hill" is approximately 16,815. The racial boundary line separating the community from Sharp/ Leadenhall along Warren Street and Hanover Street is presently quite strong, but coming under increasing pressure. The population has remained steady for the past decade; with an estimated change of less than 1,000 persons. O7f-S% lOSS 24-4 Many of the residents came to the area in the postWorld War II migration from the Appalachian regions, hence the local name. They settled in the blocks south of Federal Hill and east of Riverside Park. This area immediately around the Light Street shopping district is the least stable part of the neighborhood . ~'" 4.021 I Population Change 1960·1967 ....SlOOO-U9 Mi i 23_1 "~OO. 'W.l3 i. ·.,·0;'>1> .. v~\ ~ .SS500- S60~ I • '. 4.022 Median Income - 1960 .., "...., The same pattern can be seen in incomes. Incomes are lower than average among the people living in the 'core area ' and slightly higher than average among the people living in the remaining area. Consistent with the higher degree of transcience and low incomes, this part of the community is less self-sufficient and contains the greatest number of persons receiving welfare assistance. Throughout "the Hill" the majority of workers fall into the craftsmen and skilled operatives category. Unemployment rates are comparatively high. An average of 10% of the labor force was unem· ployed in 1960 compared to 3% in Locust Point and 7% on the city average. The population is marginally younger than the city median - 29.6 compared to 30.5, while median age of their neighbors in Locust Point is 30.7. 51 �Housing is physically similar to that in Locust Point in that it consists of single family row· houses; however, they are generally smaller and in poorer condition. Fifteen percent of the housing units were found to be in deteriorating condition in 1960, principally in the area east of Light Street. Owner·occupancy at 63% was above the city average but considerably lower than that in Locust Point. There is also more overcrowding. The poor condition of its housing stock is reflected in the low va lue per unit - particula; ~y in Census Tract 23 -3_ The school system on "the Hill" is particularly bad. There are three elementary schools that serve the area and one high school, Southern, serving "the Hill" and Locust Point. All of these schools are extremely old - the newest being Southern High School, built in 1910. T here are, however, plans for major renovations to Southern High School by 1972. A new elementary and junior high school are planned to be built in connection with the Inner Harbor Project and they will also serve the chil · dren from both "the Hill " and Sharp/ LeadenhalL 27.0. 2 .9 23-3 ~~ 4.023 Median Age - 1960 The neighborhood is densely built up and there is very little open space with the exception of the two major parks - Federal Hill in the north and Riverside in the southern edge. Both parks are well·used and well ·maintained. Federal Hill is of great historic importance to the city as it is the site of the ratification of the Constitution. It has fine views of the CBD and its harbor. River· side Park was once literally on the banks of the Patapsco River until the southern portion of the peninsula was filled in and developed by the B & 0 and Western Maryland Railroads. The other South Baltimore park is Swann Park . It is quite isolated on the banks of the Midd le Branch and is cut off from the neighborhood by a line of industry. 23-3 2H.. - Briefly summarized, the neighborhoods are well defined and, w ith the exception of Sharp/ Lead enha1l1 ~~ 52 4.024 Employment in Labor, Operative and Service - 1960 �Montgomery Street, relatively stable. The population appears to be aging slightly in the stable neighborhoods. but not sufficiently to cause unbalance or a preponder;mce of old people. Housing in the stable areas is in good condition, by city wide standards, and is adequate for immed iate needs (10-1B years). The outward migration will continue from " the Hill" and to a lesser extent from "the Point ". However, in-movements, I especially of non -wh ites will be confined to Sharp! LeadenhalJ / Montgomery Street and 'core area' of "the Hill", 23-3 I I 4.025 • • • • • • • 2.-4 Community facilities. although not until recently a s;>urce of local anxiety are deficient - especially the school system. Owner-.occupancy - 1960 23-3 24-4 ~,- 4.026 Stability - persons in same house from 1955-1960 53 �SELECTED DEMOGRAPHIC AND HDUSING DATA Baltimore City Locust Point 1 Sharp/ Lead enhal l/ Mont- " The Hill" 2 gomery St. 3 POPU L AT ION Total 1960 Total 1968 3,682 3,400 17,110 7353 16,815 6.355 -1 4% 290,155 % change '60 - '68' Median age - Males 1960 Median persons per household 1960 938,2 47 926,255 -1% 305 2.9 -8% -2% 30.7 29.6 3.2 3. 1 1,077 4% 4,940 335 2.9 HOUSING UN ITS Total 1960 % deteriorating 83% 15% 1% 63% 2,131 16% 10% 28% $4,676 $5,850 $4,908 $2.406 19% 13% 17% 40% 5% 1% 2% 12% 7% 3% 10% 13% 13% 3% 34% % dilapidated % owner occupied I NCOME Median family incom e 1960 % of families with annual income less than S3,000 1960 WELFARE Estimated No. of persons dependent on public financial assistance UNEMPLOYMENT % in labor force unemployed 1960 111 121 13) (Anlus Tract 24-1 Census Tract 23-2,23-3,24 ·2, 24-3, Census TrKI 22" ,23-1 24~ Based on City Planning Department Esti<mlte of pOpulation 1968 Sma ll Area AnalVsis, Healt h 80 Welfare Council, 1964 . 54 �community development issues v The following are the planning issues that have developed from the analysis and from meetings with local residents and city officials. In preparing this summary equal weight has been given to the perceived problems cited by the community repre· sentatives and those apparent from the analysis. While some of the issues'will not be affected by I the planning of the expressway corridor the major ity of the solutions could be reinforced by sensitive consideration of expressway impacts and the • development of a number of key Joint and Collateral Development Projects. j ,, issue 1 4.027 Proposed New Zoning Ordinance 'tLA...LJ , .. a.l.IT) ~ II ~ 100. . i:fl' ~r, r ; Through the extension of the Proposed New Zoning Ordinance, the definition of viable residential neighborhoods, including the removal of transfer companies and manufacturing industries from housing areas, is a simple and direct planning objective for both the neighborhoods which is central to the achievement of solutions required to the other issues identified in this report . Through the efforts of the City Planning Department's D istrict Planning Agency and the South Baltimore Community Council there appears to be a good chance of achieving this first step . I/-' ':. " I I ; THE PROVISION OF A STABLE CONTEXT TO ACCOMMODATE THE CONTINUED STABILITY OF RESIDENTIAL A REAS AND PROVIDE A BASE FOR THEIR RENEWAL ) • \ 4.028 • Community Spon50red Changes to Proposed New Zoning Ordinance 55 �4.029 4.030 issue 2 issue 3 THE REMOVAL OF INDUSTRIAL TRAFFIC FROM RESIDENTIAL NEIGHBORHOODS THE CONTROL OF ENVIRONMENTAL POllU TION FROM SURROUNDING INDUSTRY (A ND EVENTUAllY FROM THE EXPRESSWAY ) The designation of a hierarchy of local streets designed to separate heavy industrial traffic from local movements, could greatly improve en· vironmental conditions and reinforce solutions to ISSUE 1. In particular, the removal of heavy traffic from Fort Avenue where it passes through "the Point" would improve safety and the accessi bility of the school and the park from the neigh · borhood. The latter could be achieved by the early construction of the "industrial loop " from McComas to Key Highway. To a great extent the local residents have come to accept the visual aspects of an environmental domi · nated by heavy industry and shipyards. However, the tolerance of the direct effects of pollution smoke, dust, odors, detergent fallout and noise is much lower. A primary objective of neighborhood groups through organizations such as the South Baltimore Community Council, is the rigorous appli· cation of pollution control standards. The expressway will contribute to the cumulative scale of noise and air pollution unless corrective measures are taken. 56 �I I D I I I I I I 4.031 4.032 issue 4 issue 5 THE EXTENSION OF RECREATION AND COMMUNITY FACILITIES RELEVANT TO THE NEEDS OF THE NEIGHBORHOODS THE EARLY DETERMINATION OF THE LOCATION AND IMPACT OF THE EXPRESSWAY ALIGNMENT While there exists several well equipped and heavily used parks in the study area, there is a shortage of small scale local open space. The construction of vestpocket parks, especially to act as buffers between industry and housing areas, and the extension of the "active" facilities of both Latrobe and Riverside Parks are under con- Although both the neighborhoods are comparatively stable at the present time, they are in need of immediate programs of public and private invest· ment if they are to maintain their integrity and not enter the familiar downward spiral of inner city communities faced with aging population, relatively declining purchasing power and dete r ~ iorating environmental conditi ons. Throughout the city there is clear evidence that uncert ainty and procrasti nation in the definition of the alignment and construction schedule of the expressway system has resulted in the withholding of public funds, stifling of pr ivate investment and the creation o f commun ity resentment. A clear and early commitment to a specified alignment both in Segment 14 and in Segment 6 wou ld remove a major obstacle to the development and implementation of much needed housing rehabilitation and community programs. sideration by the community. Bearing in mind, the confined natu re of the housing areas, the isolation of the neighborhoods from the rest of the city and the lack of private open space inherent in a dense • rowhouse layout, expressway planning should minimize taking of public open space and through Joint Redevelopment, develop addit ional recreation fac ili ties for the community. 57 �DISTRIBUTION OF £MPLOYM£NT IN BALTIMORE CITY economic profile I; SMSA ...,... 0 <", ,,, I--------------==-------~ introduction In 1965, the metropolitan region of Ba ltimore contained nearly 2 million peop le, of which 47.5% lived in the city. By 1985, metropoli tan population is projected to be 3 million with most of the income occurring in the suburban counties. ". ". The same pattern of differential growth is apparent in jobs, although the dominance of the regional core and concentration of office space in new developments such as Charles Center makes the ". changes less significant . In 1965, 59.9% of all jobs w ere located in the city. By 1985, this will have declined to 48.6%, although the total number of jobs in the city will ". increase by about 100,000. The accompanying diagrams indicate the differential growth rates between the suburban counties and the city , the continued dominance of the regional core in service and office employment and the importance of manufacturing indust ry as a source of emp loy ment in the city. In 1968, manufacturing industry was the largest single source of employment in the city, accounting for almost 29% of the total city jobs. This heavy concentration of manufacturing employment in the city is expected to continue through 1985 despite the growth of other employment sources. The Regional Planning Council projection indicates a doubling of the number of jobs in industry by 1985. T he continued importance of manufacturing and the resultant heavy demands for industrial land are particu larly signi ficant in the context of the 1-95 section of the Interstate System in Baltimore since it runs through industrial and port-oriented sections of the city for almost its entire length. In particular Segment 14 will form the ' 'Transpor58 ,~ " " " o. ., .. .. ' 0 o· o· _0 '. 0 , .!: 5: • · • ~ , , . IOU OCO 4.033 • • B • , = • • 0 19 ... COU N fY IUSI N( U '''''U NS U S DI P! 0 1 (O MMUCl.I UU"U 01 ClNSU5 ' Standard Metropolitan StatIstical Area �tation spine" for the most important concentration of industry and nort facilities in the city in Canton/Dundalk and Locust Point peninsulas . • HOW"'!) COUN" ICOIUM'I ~ l Together with the continuing importance of industrial development, the significance of the Port to the economy of Baltimore and the metroplitan region cannot be overstressed. Whereas the value of industrial land around water- I I I fronts throughout the United States is low, the impact on the local economy in terms of "sp in-off" secondary industries and increased cash-flow resu lting from port activities is very high (lIT COU N n (A n Oll (OUNn COUNTY 4.034 lATE OF GItOWTH IN ,"O,"ULATION 1965-198S sou . el For examp le, it is estimated that for each ton of cargo handled by the Port of Philadelphia, $ 16 is added to the economy of the area. In terms of em ployment, the University of Virginia estimates that one out of eight persons employed in Virginia holds a job directly related to the activities of the port and harbors. IIOION"" ""HNIHG COUNCIL 1I0W .... D (DU Nn leOlU Ml lAI I • I •• !-_____-J;'-____--!____=....-1 ....tIIMOIl cou ..n ANNI A' U"' OIl " COUNn ~~§~§§~::::1 c..... ou ~ ..... .,O.D COUNTY COUNTY ~~~;~====t.:::::J 1911 4.035 RAn OF GROWTH IN EMPLOYMENT 1965_19lS SOU," IIG'ONA' 'I .... NNING CQUIHII .., ,. on cln " .. 4.036 59 �In 1965, of the 2,645 manufacturing firms in the Baltimore Metropolitan Area, 72% were in the city, the majority concentrated in the south along the waterfront stretching from Lazaretto Point to La· cust Point and the westside of the Middle Branch, and in the Brooklyn area. The diagram opposite (4.037) indicates the distri· bution of industrial land (both zoned and used) In the metroplitan area, and emphasizes: 1. The extension of city land use patterns be· yond the city boundaries; 2. The heavy concentration of industrial land use in the southern part of the city. Diagram 4.038 illustrates the resultant concen · tration of manufacturing employment in the same area. Of the 48,000 acres of industrial land in the metroplitan area, approximately 16,400 acres or 34% are developed. In the city, 7,300 acres are devel· oped and 2,200 acres, or 23% of the city's in · dustrial land, remain vacant. The major concen· tration of vacant industrial land in the city (Diagram 4.039) lies in Marley Neck and extends south into Anne Arundel County. The area contains app roximately 4,700 acres of vacant industrial land (much of it in the County). It represents nearly 15% of the total avai lable land in t he Baltimore region. Although land in Marley Neck is physically attrac· tive to industry, it is too far removed from avail · able supplies of labor, and transportation connections are poor. The construction of the Outer Harbor crossing will connect Marley Neck to Sollers Point on the north side of the harbor, but access for westbound traffic from Marley Neck will be excluded because of the arrangement of toll collec· tion booths (similar to the situation on the present Harbor Tunnel road system). The remaining vacant land is scattered through the city with some parcels in the Canton and Locust 60 Point areas. However, much of this is being held by private firms for expansion, or is in the hands of the railroad companies. The relative lack of available industrial sites around the harbor has led to the initiation of a number of land fil l pro j ects (Diagram 4.040). T hree of those indicated have been started, one for Sea Land on the southern frontage of Cantonl Dundalk, the extension of the Dundalk Marine Termi · nal for the M.P.A., and a third in the Brooklyn area. Diagram 4.041 indicates the distribution of existing and planned container handling facilities in and around the Port of Baltimore . Although the majority of these faci lities are operated by shipping firms, Penn Central, Western Maryland, and C & 0 /8 & railroads operate a liner train, a piggy back and flat car service. a Diagram 4.042 is a composite made up from the preceding diagrams with the 3-A highway system superimposed. In terms of future metroplitan growth, two things are abundantly clear. F irst, the continued growth of the Port of Baltimore is of crucial importance to the city, to the region and to t hose manufac· turing and transportation industries that depend upon the port for business. Secondly, the traditional importance of manufacturing industry will be maintained in the city and ways must be found to accommodate and develop the potential of such activities to the maximum, within an urban context. As previously ind icated the 1·95 Expressway will form the industrial t ransportation spine through the vital industrial sector of the city, and it is the purpose of this economic profile to set the context in which both the positive and negative impact of its construction and the development opportunities can be described and analyzed. �I • ) I L __ o I I I I I I I 1! ':\;;' ... oj. • \', '. " ,- 4.038 4 .039 Industrial Employment by Sector Vacant Industrial land J , - .. ..,-_."f---, J / ,-1 ~ c, " f <:Iv ~ • ,~f<0- , I -, ,'-> , "\ 1 4.040 Current and Proposed Land Fill Projects 4 .041 Present and Proposed Container Facilities 4.042 Relation to 3·A System 61 �economic activity in segment 14 study area The study area contains between 15%-20% of the total industri al work force of the city, the largest single manufacturing employer (Western Electric) and t he si tes for the Maryland Port Authority's major containerization development projects. In the following description, the traditional divi -" ___ sion into Canton/ Dundalk and Locust Point has observed, while the Ma ry land Port Authority, whose jurisdiction covers both areas, is dealt w ith under a special heading. ,S)s"U, This and other data concerning ind ust rial development potential is summarized from the report of the independent consultant firm of American Real Estate Apprai~1 Corporation who interviewed the major users of the area to determine the present extent of their operations and to assess the subsequent impact of the freeway on the future development plans. 62 4 .043 Source of o wnersh ip: Real Estate Tal< ASJeumilm u , Baltimore 1969. �.-. -,- , ' ,' . .' ' ' "-/ 63 �canton/ dundalk The Can t on area is almost fu lly developed with manufacturing, warehouse and distr ibution and transportation industries. Most of the land users have large holdings, notably Humble Oil American Smelting and Refining Company, the Penn Railroad, the Canton Company, Lever Brothers, American Radiator and Standard Sanitary Corporation, Nationa l Gypsum, Gen- eral Motors, Crown Cork and Seal, and Western Electric (see illustration 4.047). These firms are not the on ly major industries in the area; however, they occupy the majority of the land, and employ more than 60" of the local work force. k Regional Planning Council estimates of 1965 em- ployment show 11% or 23,212 of the 203,668 industrially employed persons in Baltimore City work in this area. Interviews w ith the major users of the area indi cate 7(1% consider their service area to be national or world-wide and 15% serve the Baltimore-Washington region exclusively. Those firms with waterfrontage utilize water transportation for either the del ivery of raw materia l or the movement of finished goods. All firms interviewed had access to and used rai l sidings and trucks. With the exception of General Motors which has recently begun to use a new B & 0 faci l ity specially constructed for the pu rpose of moving new aut omobiles, truck usage is on the increase, mainly at the expense of rail road service. T he increase in truck movements and the growth In employment has led to severe congestion on the local road system, notably on Broening Highway and Holabird Avenue. This congestion and the lack of "available land" were repeatedly cited as con straints on futu re development. In 1964, the City Planning Commission estimated that there were approximately 156 acres of vacant land in the area. Much of this has been brought 64 4.044 into use and the major potential for development now lies with the Penn Central and the redevelopment of F ort Holabird. I n the past two yea rs, Penn Central has abandoned its plans to rebuild the coal pier, sold some land . to the M.P.A. and leased a large site east of Clin ton Street to U. S. Steel. In all, some 200 acres (approximately) of developable land owned by the Railroad have been identified . The Penn Central holdings He to the west of Newk irk Street and present company po licy is to make the sites available to Railroad users and the Port Authority . To the east of Newki rk the manufacturing firms of Lever Brothers, American Standard, General Motors, National Gypsum, and Western Electric have fully developed the available land - up to Broening Highway. The closing of F ort Holabird and the potential for ��expanding across the highway mean a considerable expansion of these operations, espec ially General Motors, and some significant rearrangements of land uses. (The potential development option for Fort Holabird and the area are discussed in Section VI.J The recent developments in the area are summarized below: 1. The Maryland Port Authority and Rukert T erminals have purchased most of their water· frontage from the Penn Central Railroad. 2. National Gypsum Company has added a manu· facturinq pla nt at their Canton site. 3. The Canton Company has converted approximately 40,000 square feet of its Colgate Warehouses to public warehouse use. 4. Sea land has built a containerization facil· ity on a seventeen·acre site at the base of Newkirk Street and at Ponca and Holabird. 5. A Canton Company pier has been leased to U.S. lines for their containerization strip· ping and stuffing facility. 6. General Motors has expanded open parking north ward along Broening Highway. 7. Western Electric employment has increased from 6,600 to 7,100 persons; however, the firm has no plans to expand its plant. 8. B & 0 Railroad has completed a new facility to load and ship new cars from General Motors. locust point like Canton/Dundalk, the development of Locust Point is controlled by the major land owners - in this case the B & 0 and Western Maryland Railroads and the Maryland Port Authority, together with the Department of the Interior. These fou r own over one·third of the land in locust Point. Both the North and South waterfrontages have major terminals, originally developed by the railroads, the North waterfront now com ing under the control of the M. P.A. Parts of the North waterfrontage and part of the peninsula at the intersection of Fort Avenue and Key Highway have been developed for manufactu ri ng industry. These operations are smaller on the whole than the large plants in Canton/Dundalk, although Procter and Gamble and American Sugar both employ more than 200 workers. These industries are, however, notable for their im pact on the environment, and local resentment against the noise, smog, detergent fa ll-out, grain dust and effluent is strong. Since the larger facilities are port·oriented and railroads which take up large areas of land, Locust Point is one of the major industri al employment areas. According to the RPC estimates of 1965 em ployment, approximately 6,415 persons were employed by industry in locust Point. An additional 4,294 persons were employed by industry in the area of South Baltimore, generally along Key Highway nort h of Webster Street. These 10,709 persons represent approximately 5% of the 203,688 persons emp loyed by industry throughout the city. The Regional Planning Council estimates that employment in these areas w ill increase, but wi ll be neither sudden nor large. Growth in total employment in the area wil l be primarily through ex · pansion of ex isting facilities. A major detriment to growth is the lack of vacant 66 ��land in Locust Point. The railroads own, and have plans for , most of the vacant parcels in Locust Point. The other vacant parcels are relatively small. Several firms have reserved land for expansion, but there is insufficient land to enable new firms to enter the area. Of the local firms interviewed , 15% serve only the port area , 35% serve national and interna t ional markets, 20% consider the Washington-Baltimore Region their trade area and the remaining 30% serve both the BaltimoreWashington Region and areas extending further north, west and south. These firms employ more than 2,300 persons of which t he majority are skilled workers. Most of the employees drive to work, but several firms reported many of their employees take a bus or walk from the nearby residentia l areas. T he firms reported t hat most employees live throughout the metropolitan area; however major concentrations of em ployees come from South and East Baltimore. Nearly half the firms said they had no land for expansion. Of those that do have expansion room only 14% have plans to expand. None of the firms plans to relocate its operation. T he major change occurring in land use in Locust Point will be the growth of containerization and the reorganization of the railroad land holdings. The Western Maryland Railroad is presently converting a large portion of its yard in Port Covington to accommodate the expansion of its piggy-back operation. The M.P.A. has recently acquired 40 acres from the B & 0 Railroad, an additional 11 acres of back ·up land for Piers 4 and 5, and 32 acres on the South side of Locust Point. T he rail yards now on the 25-acre parcel will be relocated on the vacant tract north o f McComas Street between Key Highway and Hanover Street. The South side parcel now is partially developed w ith the B & 0 Fruit Pier leased to United Fruit. 68 4.047 �maryland port authority "The Maryland Port Authori t y was organized in 1956 by the State of Maryland for the purpose of providing for the promotion and planned development of the ports of the en t ire state."1 It has the power to acquire land, issue bonds and make policy regarding opera t ions of port faci l ities in Mary land. The activities of t he Port Authority fall into two categories - one being the physical development and the other being coordination and promotion of port activities. As a part of its physical development program the Port Authority has acquired two major genera l cargo term inals, the Locust Point Terminal and the Dundalk Marine Terminal as well as piers along Clinton Street, McComas Stree t and in Ma r ley Neck. The facilities in these terminals are owned by t he MPA and leased to vari ous users. In a broader area the MPA is commited to making the Harbor more efficient and attractive to all users. Among these activities has been a "continuing effort on behalf of the Maritime Community to im prove road access to Marine terminals on two sides of the harbor with planned throughways connecting Baltimore with other major markets to the North, South, and West."2 T he recently revised Port Authority Master Plan w hich calls for the expend iture of $74.7 mi llion over a period of 10 years ( 1967· 1977 ) is interest ing primarily for the increasing emphasis on containerization. 'Maryland Port AuthOrity, 'Parr af Ba/rifflQre Handbook'. p.33 2'b,d,o 36 4.048 Marine Terminals 69 �The plan is cu rrently in its fourth year of imp lementation, its major achievement thus far being the expansion of t he Dundalk Marine Terminal and the rebuilding of piers in the Locust Point Terminal. The revision ca ll s for : 1. The renovation and expansion of the Cl in ton Street Marine Terminal (which has been acquired from the Penn Central Railroad), 2. Deletion of scheduled additional rehabili tation on the North side of Locust Point. 3. Assign ing high pr ior ity to the construction of a container facil ity on t he South side Clf Locust Point. T he new emphasis at South Side Locust Point in lieu of the Dundalk container berth extension beyond completion of the 4 berths currently under construction is based on projected needs for more balanced pier I of the harbor and the deii i ·i forallof the major rail systems serving the port. I t is estimated that the newly renovat ed Pier 4-5 Complex at Locust Point w ill be capab le of providing con tainer service to sh ips mak ing an interchange of 100 to 200 containers and handling up to 500,000 tons per yea r . Deletio n of proposed renovation of Locust Point Piers 6, 8 and 9 from present consideration is based on current reasoning that upgrading cost s are not economically feasible in view of reduced inter· est in finger pier facilities resulting from the ri se in containerization. 70 �industrial development issues • In summary it appears that broadly the same issues affect the pattern of industrial land use through ~ out the study area. issue 1 issue 2 THE HISTORICAL OEVELOPMENT PA TTERN S, BASED ON THE NE ED S OF 19th CENTURY RAIL · ROAD AND SHIPPING INTERESTS, PER SIST DESPITE INCREASING IRR ELEVANCE . LACK OF VACANT LAND FOR EXPANSION AND NEW DEVELOPMENT The large amount of land still taken up by rail road tracks is the most obvious indication of the Mainly because of the large areas of apparently under·utilized railyards there appears to be more vacant land in the Study Area than is actually the case . obsolescence of some of the land use patterns. Traditiona lly rail roads throughout the U.S.A. have been slow to consolida te their tracks since thei r land hold ings represent an ever grow ing asset that is nominal ly taxed. In fact the B & a Rail road pays no real property tax on any o f its property used for railroad operations and the decision as to which prope rty is operating or nonoperating rests with the railroad. Since there are no la rge areas of truly vacant land the change in railroad policy referred to in Issue 1 and the recent decision of the U.S. Government to release Fort Holabird (240 acres) are of the utmost importance. The lack of financial incentives coupled with the fluctuation in railroad development policy has meant that until recently, railroad owned land was simply not in the market. Recent moves by Penn Central in Canton, and sales by B & 0 to the M.P.A. indicate that this situation may be changing. In Section VI the impact of the exp ressway on this change in railroad development policy is assessed .in more detail. Clearly any increase in accessibility due to the construction of the expressway wit l reflect in the increased value of the land, and thus a greater incentive to accelerate change. I 71 �issue 3 PROBLEM S OF ACCESS ANO LOCAL CONGESTION Regional access and service areas are presently li mited by the Harbor. Traditionally the Locust Point area has served the Baltimore·Washington corridor while the Canton/Dundalk area has been oriented north and east. Connections between the areas are tenuous, requiring long journeys through congested city streets, and separa te trucking terminals' have developed to serve each area. T he Harbor Tunnel has provided some improvement in access from the south and west, but lack of en· trance ramps in the Canton area has prevented the utilization of the faci lity for the northbound traffic . Local congestion, severe around the large manu facturing plants in Canton , also hampers the efficient development of the area. The expressway, first by establishing a direct link between the two areas, second ly by providing direct access to an important continuous Interstate System (1-95), and thirdly by redu cing the load on local streets will clearl y play an important part in the economic development of the area . In order to maximize these benefits direct ramp access should be planned to each of the potential development areas. 72 I I �summary / conclusions The process of analysis in this section has been to identify those issues that affect the present industrial development. The thi rd factor, the impact of which has not yet been fully assessed, is the release of Fort Hola · bird by the U.S. Government, making available a potential 240 acres of land adjacent to the major manufacturing plants in the city. conditions and future development of the area through which Segment 14 of the expressway will pass. Clearly not all of these issues are directly affected by the expressway planning process and not all are of the same order of importance, but a number of general conclusions can be d rawn from the examination and these should serve to frame the location strategy for the expressway corridor in the Study Area. In this situation the role of the expressway is clearly to reinforce the development trends, to accelerate the rate of growth and, by cooperation with agencies, owners and developers to integrate the planning and design process. T he relevant goals should be: 1. Avoid taking exist ing industry. 2. Avoid taking potentially developable land. industrial and economic development 3. Provide more access to development areas. The area is dominated by industrial and port uses. 4. Support existing port development plans and improve potential for new facilities by providing direct access. It is the traditional core of the la rger South Baltimore industrial area and as such occupies a place of centra l importance in the City's economy. 5. Integrate highway designs and construction with consolidation of railroad yards. However, both Locu st Point and Canton/ Dundalk suffer from obsolescent land use patterns, a lack of vacant land for expansion, and considerable problems of regional and local road access. There are strong indications at this time that the inertia that has prevented industrial growth in the area for t he past few years is being overcome. As with most land use dynamics, there is no one single reason for the change but rather the for· tunate correspondence of a number of ci rcumstances. T he most important influence has been that of the Maryland Port Authority which, through a massive $75 million program of capital investment has accomplished the redevelopment of rundown pier facilities. This, in turn, has led to pressure on railroads to release some of their vital holdings, to a consolidation of rail trackage, and to a less conservative attitude toward community development needs The neighborhoods affected by the exp ressway are presently relatively stable, but vulnerab le to a number of external pressures. Its continued existence as a viable neighborhood relies on the maintenance, and reinforcement of the sense of community self-sufficiency that has enabled it to survive the encroachment of surround ing industry for the past 60 years. It follows that adverse impacts on any of the components of the residential envi ronment - homes, the parks or the school and its ad jacent facilities - would severly compromise future stabili ty. �The Hill is facing different problems and is relatively less stable than "The Point" and by common consent requires considerable external assistance in renewing the housing stock and its commercial center, Light Street_ Moreover, the area is also affected by the proposed 1-395 spur (Segment 6) and the mass transit alignment which together will control the amount and extent of redevelopment possible along the western edge of the area . Parts of the neighborhood are much sounder than others. The parks, Riverside and Federal Hill , con · tribute to the present environment and provide focus for future development , but " the core area " and the Sharp-Leadenhall / Montgomery Street have the all too familiar collection of human and en vironmental problems that affect deteriorating inner city housing areas. The success of proposa ls for a concentrated program of renewal, rehabilitation and joint development relating to the 1·395 spur and the mass transit alignment will be the real deciding factor in the future development of the area. The Segment 14 alignment passing to the south of the community is not well located to make a direct contribution to these renewal efforts, and coming much later in the construction schedule - 1976 and later as opposed to 1972·73 for 1·395 (Segment 6) - it should be of less immediate concern to the presently developing community and city programs. The recommended strategy for the location of Segment 14 corridor should therefore be to minimize the impact of th e road in all its aspects on the southern part of the community and especially on Riverside Park. A more positive goal should be for the city and State Roads Commission to adopt an acceptable alignment within the planning period fo r the complementary Segment 6 in order that the renewal proposals being developed will not be delayed by uncertainty as to o ther highway plans in the area. 74 �CORRIDOR LOCATION STUDIES �I introduction Section 5 describes the most significant steps in the planning process - the selection of the High way Corridor and the initial evaluation of alternative roadway alignments within the corridor. The "H ighway Corridor" can also be described as the "general route " of the expressway while the alternative roadway alignments represent a much more detailed level of design. This distinction is recognized in the planning procedures of the 1968 Federal Highways Act which calls for separate public hearings at each stage of the planning process. The general route of th e 1- 95 Harbor Crossing was established in the Study published by UDCA on Oc- tober 18, 1968. The following section sets out the criteria which were followed in establishing the route and de· scribes two alternative roadway alignments and two solutions to the crossing of the Patapsco River with the recommended corridor. 75 �criteria for corridor location The objectives can be summarized as follows: 3.1 The selection of the highway corridor was based on the consideration of three broad sets of cri teria : Avoid residential neighborhoods and com - munity facilities such as schools and parks. 3.2 Avoid existing and potentially developable industrial land. 3.3 M inimize the disruption to industrial activity. 3.4 Minimize the impact of the harbor crossing (eithe r the bridge or tunnel) on Fort McHenry. 3.5 Max imize access to industry and potentially developable land. 1. ENGINEERING CRITERIA - the standards set for geometry and structural requirements for the Interstate Highway System in Baltimore City·. 2. TRAFFIC REQUIREMENTS - based on the in - formation supplied by BMATS to the Interstate Division. 3. ENVIRONMENTAL AND PLANNING CON· STRAINTS - based on the analysis and determi nation of issues outlined in Section IV. · S!.'gineering Oesi.9n Criteria for Baltimore City Interstate Highways, U.D.C.A., Mar .• 1969 . 76 �, • I } ,~ '" Th e fixed points in the study were th e req u irements to link with 1-395 in the a rea wes t of Hanover Street around the Middle Branch and to link with 1-83 in the general area of Humble O il / O'Donnell Street in the east. It quickly became evident that to meet the obj ec tives of avoiding residential ne ighbor hoods and minimizing the disruption of existing industry the major pa rt of the corridor should follow the 'natural breaks' in the pattern of development, utilizing vacant and underdeveloped land wherever possible. By build ing the en tire segment on structure the free way could be carried over the extensive railroad yards generally without interference with their operations. Also, from the point of view of development potential, the close proximity of both road and ra il transportation facilities in the same 'corridor' offered the advan t age of easy transfer and the possibi li ty of integrated development. 5 .001 77 �• 5.002 -- Three alternative corridor routes which satisfied /, • dock and across the Patapsco River to Canton. the objectives were examined: The northernmost corridor, Alternate No. 1, took the Freeway west along McComas Street from the in terchange with 1-395 , which is common to all alignments, and turned northeast just east of the intersection with Key Highway_ It traveled across the B & O/C & 0 Railroad ya rds, the Maryland Port Authority piers, and over the northwest branch of the Patapsco River to Canton. Th ere 1-95 interchanged with 1 -83 in the general area of the Can- ton playground, west of Clinton Street. The second corridor, Alternate No.2, traveled west along the same alignment, past the B & 0 1 C & 0 Railroad yards, where it turned slightly northeast over Bethlehem Steel Corporation's dry 78 It then turned almost due east until it crossed over the Baltimore Harbor Tunnel Thruway, at which point it turned north until it interchanged with 1-83 in the vicinity of Boston Street, east of Ponca Street. The third corridor , Alternate No.3, followed the same route as the second, but instead of turning northeast over the B & OIC & 0 Railroad yards, it continued over the railroad yards, crossed over Bethlehem Steel Corporation's dry dock and over the Patapsco River to Canton. There it continued due east until it crossed the Baltimore Harbor Tunnel Thruway where it turned north and, like Alternate No.2, interchanged with 1-83 in the vicini ty of Boston Street east of Ponca Street. �• the harbor crossing The th ree alternative co rridors studied differ chiefly in the position of the harbor crossing and the feasibility of achieving this crossing became the major determining factor in the selection process. A suspension bridge of this magnitude wou ld requi re a stiffening truss of approximately forty feet. Consequently, it was proposed to double deck the structure, i.e., place one roadway over the other, inside the st iffen ing truss, to reduce the width by almost one half and still maintain a well -pro· portioned si lhouette. For the pu rpose of selecting the corridor, it was decided that only a bridge structure should be studied initially since a tunnel did not appear feasible for Alternative 1 or 2. Accordingly, certain basic engineering and operational criteria were identified. Roadway grades shou ld be no more than 3.5% Tower piers should be located outside of navigable waters , preferably behind the bulk head line , to cause minimum interference to navigation Vertical clearances should be no less than those for the Chesapeake Bay Bridge, approxi mately 180 feet. With the establishment of these criteria, approxi · mate span lengths could be established, and as a result, the type of structure to bridge the Patapsco River could be determined. Of all the routes studied, the minimum main clear span required was approximately two thousand feet and the maximum twenty-two hundred feet. Span lengths of this magnitude are out of the economic range of orthotropic or cantilever design and fall within the range of major suspension structures. Anchor arm spans wou ld vary from six hundred to one thousand feet and would require massive anchor piers on each side of the river, with dimensions of approximately eighty by two hundred feet. As an alternative, side tower piers could be built which would make it possible to considerably reduce the size of the anchor piers. 79 �. , ~ .. - :.~- ~. l~~~ft .•.. • ~ • I , -- --. selection of the recommended corridor alternate no. 1 Alternate Corrid or No.1, which crosses the water in a northeasterly direction and ties into 1·83 in Author ity at Locust Po int, and consequently would disrupt berthing operations between the recently rebuilt Piers 4 and 5. In addition, an unsatisfactory interchange configuration would occur with 1-83, as 1·95 would be nearly cne hundred feet in the air at this point, and would require ramps nearly hal f a mit e long to meet the mainline of 1-83, as well as requiring the taking o f considerable industrial property and pri· vate houses. the vicinity of the Canton Playground, would re- quire the east main tower to be located in the harbor opposite Humble Oil Company's fuel pier; conse· quently, it would interfere with the docking maneuverability of Humble's large oil tankers. as well as with other harbor craft. Although the west main tower pier would fall w ith · in the bulkhead lin e, nevertheless it wou ld be located adjacent to Pier 5 of the Maryland Port 80 As a result of these major considerations , this corridor was no longer considered as a feasible alternate. �~ L . . . _ _ ~ __ -, 5.004 -- alternate no. 2 • -- '-, '-- up area behind Pier 6. This route was considered better than Alternate 1 The corridor alternate. which is approximately but the bridge structure cost would be higher and three hundred feet north of Alternate Corridor No. the impact on Bethlehem Steel and the Maryland Port Authority would be quite severe. 3 on the western side of the water . has a main span of approximately twenty -two hundred feet. The east main tower pier would be located between the bulkhead line, but between two active Maryland Port Authority piers, one of which has just been rehabilitated; consequently, it would inter fere with the berthing operations. To locate this pier outside of the docking areas, the main span wou ld be increased by approximately three hundred feet, with a corresponding consid erable increase in cost. In addition, the east anchor pier would be located in the middle of the M .P.A.'s newly acquired back 81 �f .. , .,... , " .", . r"" ""'" ~ -' "- ....,,,·,,.·.c, ---- ...., .:::'11 - ;t" j j,'" , I 5.005 -. alternate no. 3 In Alternate Corridor No.3, which is the south ernmost corridor, the two main tower piers are located within the bulkhead lines, with a main span of approximately two thousand feet. The east tower pier is situated at the end of, and could become a part of, the existing pier at Rukert T erminals. Docking takes place only on the north side of this terminal; consequently there should be practically no interference w ith the berthing operations at the terminal. The east anchor pier is located on the east side of Clinton Street, along a paper street in a presently undeveloped area. There is no activity at th is location and as a result there apparently would be no interference to any of the terminal's operations. 82 • , -. .. ))' At the western end of the bridge the tower pier would be located inside the bulkhead line, on the site of the present Coast Guard Pier. The main line will cross only the extreme southern corner of Bethlehem Steel, presently used fo r parking, and one of the parking areas of the Fort McHenry Monument. This corridor alignment also makes it possible to provide the best ramp connections from the eastern approach to the bridge to the proposed street im provements in this area of Canton. Based on these considerations. this corridor alignment appeared to be the most satisfactory and it was decided that Alternate No.3 should be the recommended general route for Segment 14. �I ... l) ;PUR I I L I I I I I I �alternative alignments within the recommended corrido Within the recommended corridor, there exists the possibi lity of a number of different roadway al ignments and interchange configurations. T he study of various roadway alignments was divide into three areas. The South Baltimore alignmen t study from the ' ·395 interchange eastward covers the sector lines to Andre Street. Th e Harbor Crossing alignment study describes th e tunnel and bridge crossing plans and thei r respec ti ve alignments. The study area runs from Andre Street, in Locust Point , ac ross to Clinton St reet, in th e Canton area . The Canton/ Dundalk study area picks up from Clin- ton Street and runs to the eastern terminus of Segmen t 14 at O'Donnell Street. 84 5 .007 ��south baltimore alignment study the northern alignm ent Description The first or northern alignment, traveling in an easterly direction from the 1-395 interchange, runs between the Baltimore Gas and Electric Company 's new liquified natural gas tanks at Spring Gardens and the Allied Chemical Company's buildings. I t then proceeds .east over Hanover Street and runs adjacent to the north side of the present B & OIC & 0 railroad tracks, th rough the existi ng railroad roundhouse, over Key Highway. and interchanges w ith a proposed new road l inking F ort Avenue with McComas Street approximately one thousand feet east of Key Highway. I t stays no rth o f t he rai lroad yards in the vicinity of Latrobe Park and starts the gradual transition to becoming a double·decked structure at Andre Street. \ SOUTH IALTIMORE ALIGNMENT STUOY 5.009 86 From this point on , the alignment of 1 ·95 is the same with each elevated alternative within the recommended corridor as it continues eastward across the Harbor. �5 .Q10 Impact Summary - Riverside Park - high acoustical impact. The northern alignment requires a large building take on the southern edge of the Hill community. This take will require t he displacement of fami Iies as wel l as jobs. - B & 0 Roundhouse - must be acquired and relocated . Access to local street movement (via McComas Street and Fort Avenuel is achieved with the constru:::tion of an elevated interchange to the east of Locust Poin t neighborhood. Substantial acoustical impact on the Key Elementary School wi ll be generated from these ramps. _ Latrobe Park - soccer field and baseball diamond must be relocated. - Key School - playfietds must be relocated ; high acoustical impact on SchooL - Fort McHenry Lumber - must be relocated because it is an incompatible use under the road. _Allied Chemical Warehouse - must be relocated . _Wells Street Industrial Loti Buildings - must be demolished. - 12 Residences on Light Street - must be a(:Qulred and families relocated. B7 �the southern alignment Description The second or southern alignment. moving east from the 1·395 Interchange, crosses the northern edge of Swann Park. However, this part of the alignment is interchangeable with the northern option outlined earlier and the route to the north of Allied Chemical could be substituted. \ It then follows the general route of McComas Street from Hanover Street to Andre Street where it starts the transition to a double decked structure. A split diamond interchange is provided with Key Highway at McComas Street. 5.01' 88 From Andre Street to the Interchange with 1·83, the alignment is common to both alternatives. �5 .012 Im pact Summary - Allied Chemical Warehouse - must be relocated . The southern alignment requires coordination of construction with the 8 & 0 and Western Maryland Railroad. With this alignment, there is no build · ing take but tile existing service road, McComas Street, will have to be rebuilt. - 8 & OIC & 0 Railroad - some trackage must be Access to local streets is provided through a simple interchange in contrast to the mo re compli · cated faci l ity necessary for the northern alignment. relocated; exact footage dependent on column placement. - Western Mary land Railroad - tracks adjacent to McComas Street may have to be relocated ; exact footage dependent on colum n placement. - Fort McHenry Lumber - must be relocated because it is an incompat ible use under the road. Acoustical impact on the Riverside Park area, Key School and Latrobe Park w ill be substan ti ally less than with the nor thern alignment. _Swann Park - the northern part will be taken and the severe acoustical impact could reduce the utility of the park. 89 �harbor crossing bridge alternative Description ------. As has been mentioned in earlier discussion, the bridge would be a 2,000 foot span provid ing 180 feet of clearance for ship access to the Inner Harbor. The main tower piers are located within the bulkhead lines with the western pier located north of Fort McHenry in the present fire boat station. The eastern tower pier is located at the head of the Ru kert Ship Terminal. Temporary disruption to Bethlehem Steel Corpo ration, the Naval Reserve Sta tion and the Rukert Pi er would occur but upon completion of the bridge, normal operat ions could be restored. \ HAUOR CROSSING ALIGNMENT STUDY 5.013 90 T he bridge is designed as two levels - one servicing eastbound movement while the other services westbound movement. �5 .014 Impact Summary The bridge crossing will disrupt Bethlehem Steel. Aukert T ermina ls. and Naval Aeserve operations during constr uction. Upon completion of the bridge , land can be returned to users with the exception of the areas lost to the anchor and tower piers. ness during that period. - Aukert Terminals - construction easemen t necessary for interruption of traffic d uring that period. With t he main tower piers located behind the bu lk· head line and outside the dredged channel. there will be minimum interference to shipping. A 180' clea rance wil l allow ships that clear the Chesapeake Bay Bridge to use the Inner Harbor Pier facilities. _ B & 0 Railroad - relocation of trackage near Fort Avenue; exact footage dependent on column placement. _ Bethlehem Steel - acquisition of Southwest corner of property for anchor pier ; construe· tion easement for partial disruption of busi · 91 �tunnel alternative Description In addition, studies have been made on providing a tunnel alternative to the bridge crossi ng. The route for a tunnel crossing would be slightly dif· ferent than one for a bridge crossing. T he most economical method of sub-aqueous construction wou ld be by floating and sinking prefabricated tunnel sec· tions into place in a predredged bed, carrying these tunnel sect ions several hundred feet into each land approach. T he remaining land sections would be built by cut and cover construction. Th e west portal of the tunnel woul d be located at the west end of the B & Ole & Railroad yards adjacent to the For t McHenry Lumber Company's yards. The al ignm ent from the west portal to the east would be generally south of the bridge align · ment and would cut across the northern end of Fort Mc Henry National Park . It wou ld then go under the harbor, surfacing south of Rukert T erminals, and would portal east of the Penn Centra l coa l pier. From the end of each portal approach the align · ment is the same as that for the bridge crossing. a T he tunnel wou ld have 4% grades, a 50 foot dredged shipping channel, and would be approximately 6,400 feet long from portal to portal. Impact Summary 5.015 92 As has been mentioned above any tunnel construction would require at least temporary disruption to all property t ha t lies w it hin the construction limits from the extension of McComas Street in the west to the crossing of the Harbor Tunnel Throughway in the east, incl udi ng the en tire north end of t he Fort McHenry Park . However , after construction, this park area could be returned to its or iginal state. Th e tunnel wou ld also require two large ventilation buildings outsid e the Park, one to provide fresh air , and the other for contin uous vent· ing o f exhaust ai r. In addition, it would be necessary to provide guards and emergency service on an around ·the·clock basis. �5.016 preliminary conclusions It is felt , therefore , that a tunnel crossing would be less desirable than a bridge due to: Construction costs for a tunnel would be much more than for a bridge, Large scale disruption to park property, Sizeable annual maintenance and operating costs. _Latrobe Park - soccer field must be relocated with tunnel and either northern ·southern alignment. destroys connection to L ocust Point Ma r ine Terminal. - Southern State Cooperative - must be acqui red; Total disruption of business wi ll occur duro ing construction and portion of land will be needed fo r ventilation bu ilding. - Fort McHenry - employee housing and mainte· nance building and parking lot will be destroyed du r ing construction. - Penn - Central Railroad - pier between Rukert T ermi nals and Coal Pier and t he Penn - Cen t ra l land behind it must be acq uired f or tunnel exit and ventilation bu ilding. - 8 & 0 Railroad - track area south of Fort Avenue must be acquired for tunnel entrance; 93 �canton/ dundalk alignment Description From a point just behind Rukert Terminals east to the interchange with 1-83, the recommended corridor is fairly narrow, and the roadway alignment is common to either of the alternativeocrossing solutions described previously. The roadway is carried on structure over Penn Central Yards, the Baltimore Harbor Tunnel approach road, and the northwest corner of Lever Brothers' property. In effect, the section from Newkirk Street to Boston Street is one large interchange which provides service to Canton/ Dundalk through ramps to Newkirk and Keith Streets. mainline interchange between 1 -83/ 1 -95 and access to Boston and O'Donnell Street. Impact Summary The alignment through Canton/ Dundalk does not require displacement of active industrial facilities_ With the elevated posture of the road, industrial development and access can be achieved with pier locations being the only restric tion . -----. However, the tunnel portals and the need to bring the main line down to grade would severely reduce the development potential of the Penn Central Yards for future industry. \ 5.017 94 �~~" !~ 0 01,0 :~. , 0000 0 ' , '1RI"'IU OIl . . 10000, , '\ : \,:~,~""'•. 0 0 0 . 0 : I I '-"-'" UOlHUS 95 �acoustic analysis A preliminary acoustic analysis of the alternative alignments within the corridor was carried ou t by U.D,C.A.'s consultants, Bolt, Beranek and Newman to determine those areas chiefly affected by noise generated by the freeway. The following is a summary of their prel iminary findings and recommendations. Acoustic Recommendation for Point III Report on Segment14 (BBN Job Number 138248,) Of the two alternative routes shown to us (northern and sou thern) from an acoustic standpoint we recommend the southern aligmnen{ , Choice of this alignment will reduce acoustic im - pact on houses near Riverside Park , on School Number 76, and Latrobe Park. The noise level at Fort McHenry will be very nearly the same for both northern and southern alignments. 96 �summary / conclusions From the foregoing analysis, the alignment of Segment 14 through South Baltimore. should be placed as far south as the road geometry and operational requirements allow. This southern alignment does not require displacement of existing facilities and those railroad activities that are impacted can be relocated w ith minimum disruption forded. Likewise, the Southern Alignment maintains the large loft structures along WeJls Street providing additional acoustic protection to the adjacent homes. By constructing the bridge crossing instead of the tunnel, similar traffic service is maintained at considerably less capital outlay, and less main tenance cost. In addition, the disruption to uses within the construction right-of-way would be of a shorter duration. to continuity of operations. As the road moves further away from residential neighborhoods (the 'Hill ', the 'Point'), the acoustic impact of the road diminishes. Therefore, by concentrating interchanges away from the neighborhoods and placing the road in the South ern Alignment. greater acoustic protection is af97 �The Canton-Dundalk alignment p laces only one minimal restriction upon industrial development; pier locations for the 1-95 structure should be coordinated w ith railroad and industrial development plans to provid e maximum flexibility for d evelopment opportunities_ With major interchanges to primary streets and Interstates 1-83 and 1-95, Segment 14 provides an increase in service to the harbor and the surround ing industrial facilities_ In return, the construction of Segment 14 produces negligib le impact upon existing activities during and after construction. DISPLACEMENT INVENTORY Bridge Alternative Structures Industrial Recreational Facilities Jobs 6 2 12 0 0 0 2 0 200 180 Residential Other Recreational Facilities J obs 13 1 0 Tunnel Alternative Northern Alignment Southern Alignment 98 Other Structures Industrial Northern Alignment Southern Alignment Residential 7 3 240 220 �ECONOMIC EVALUATION �in trodu clion / surn rna ry In the preceding section, the recommended highway corridor has been defined and the feasible alternative alignments w ithin that corridor described and evaluated. T he physical effects of the alternative road alignments have been identified as part of th e evaluation process. However, the re are a numb er of wider consequences resu lt ing from th e construction of this highway segment that will affect a city-wide spectrum of inte rests and in particular, the future development of cor ridor land use patterns th roughout the Segment 14 Study Area. Although the emphasis throughout has been on the small displacement, both of buildings and jobs within the recommended co rrid or, and the compa ratively low cost of land acquisition (mainly due to the high proportion of air-rights situations as opposed to "full -takes")' several elements of the design combine to make this the most ex pensive segment in the 3-A System. Preliminary engineering estimates indicate that the 5.5 mile Segmen t will cost approximately 53 10 million· of which the City 's contribution is estimated to be 18%. The inclusion of a unique element - a 2000' suspension span - will alone account for 5160 million of th e total figure. (A tunnel alternative to the suspension span will cost even more.) Whereas this figure seems high when compared to other segments, it is this very link that makes the 3-A work as a system. The provision o f this link has permitted the size of the highway to be reduced in other areas of the city, particularly where development is already dense and land values are high. In critical areas such as Fells Point and Frank li n/Mulberry, the highway width has been reduced from an eight lane facility to a six lane facility . By reducing the number of required lanes, the displacement of homes, businesses and jobs has been significantly reduced and valuable in ·City land has been retained on the tax rolls, thereby allowing important land re'F igure deri...ed from "IOBC Unprogrammed Funds," October 3 1, 1989 99 �sources to maintain their productivity. In summary, Segment 14 constitutes nearly 1/ 4 of the total mileage of the 3-A Interstate System yet it represents slightly more than 1!3 of the total cost of the System. Factors other than the bridge which have contributed to the cost of Segment 14 are easily identified. They include: 1. the "premium" of building the entire facility on structure rather than on grade or on fil l, in order to provide uninterrupted access under the expressway and the continued use of rail yards and tracks; 2. the extensive system of ramps and collector! distributor roads to provide maximum access to the area's industrial use rs (see Section 3); 3. the provision of this access, in conjunction with full interstate interchange facilities (1-83 to 1-95) has necessitated the design of a complex interchange in the Canton area. Despite the technical rationale for these design decisions, the costs shou ld be seen in relation to the benefits derived from construction of the facility. It is also important that the recipients of these costs and benefits be clearly identified. The positive benefits can be viewed as emanating from improvements to the transportation system (e.g., traffic-related benefits) and changes induced in the land use patterns as a result of increased accessibility. Briefly, these can be defined as: 1. Traffic related benefits - broken down into: a. b. 2. 100 User benefits Non -user benefits Projected land use and activity changes measured in terms of: a. b. c. d. Increased land values More intensive land use Resultant higher tax revenues to the City More employment opportunities �traffic benefits c_determination of road user benefits 1_ Basis for Comparison: 8. traffic characteristics Traffic analysis indicated that Segment 14 provides improved traffic service to: 1. The local traffic (with either origins or destinations in the Segment 14 area) and in particular, to heavy truck traffic which comprises 25% of the total local movements. 2. The CBD and county or cross city traffic: since the Segment 14 acts as a bypass of the CBD for trips between the southwest and west to the northeast and east of the City. 3. The interstate traffic which is currently suffering excessive peak-hour delays due to To quantify the benefits that the future users of Fort McHenry will enjoy upon completion of the bypass in 1980, a "nu ll -alternative," defined as System 3-A without the 1-95 Harbor Crossing in 1990, was assumed. T he road user costs: (a) (bl (c) Operation Cost Accident Cost Time Cost were quantified for both the "proposed alternative" (System 3-A completed) and the "null·alternative" (defined above) . T he difference in road user costs were considered as road user benefits and were weighed against the construction and maintenance cost of the facility to test its economic viability. 2. Traffic Assignment to the Alternatives the overloading of the Harbor Tunnel. b. methodology There exists a commonly used set of techniques for quantifying the road user benefits described above. Simply stated, the method is to calculate costs to the road user (time, operating costs and accident costs) associated w ith each of the alternatives under consideration. The difference between the costs resulting from using the present facilities and the costs associated with using the proposed alternative a re considered "road user benefits." In a commonly used project measure of viability, the accumulated road user benefits can be divided by the construction cost (plus maintenance) to provide benefit-cost ratio_ SMA T's network 12-1A provides the 1990 traffic assignment to System 3-A, including the 1-95 Harbor Crossing - the bridge is expected to carry an average daily traffic volume of 115,800 vpd. To assign vo lume to the "null·alternative," reference is made to Section 3 of this report, where a select link analysis indicates the origins and destinations of the bridge users. Under the "nullalternative" the volume that uses the bridge is assigned to other facilities (competing facilities), namely: - The Inner Harbor Tunnel" - 1-83 - CSD and City streets Detailed inspection of the select link (analyzed in Section 3) revealed that 40-50% of the prospective bridge users would find the Inner Harbor Tu nnel to be their most direct route in the absence of a 1- 95 Harbor Crossing. ' The Ou ter Harb or T unnel is inclu ded i n both al ternative oncl shows a capacity load ing. 11$ 4 lanes 101 �Capacity limitations would leave the majority of those users with no alternative except traveling through City streets, especially through the CBD. It was assumed that changes in the operation and peaking characteristics in the I nner Harbor Tunnel would allow a possible load of 75 ,000 vpd (1.25 times its capacityl. This volume diverted to city streets would be: 115,800 -175 ,000-63,5001 = 104,300 vpd This traffic with its 10% trucks would have to travel through city streets, mainly: (a) (b) (c) (d) Charles and Hanover Streets through South Baltimore Pratt and Lombard Streets Baltimore and Fayette Streets Frank l in and Mulberry Streets for an average distance of 0.8 mile. Most of these users will want to move eastbound on 1 ~83, but the load on this facility will be limited to its capacity 90,QOO vpd, which is ex· pected to be filled by other users (87,000 vpd in 1990). Again assuming that changes in peaking characteristics and operation would allow 1-83 to take up 120,000 vpd, a total of: "In the 'null -alternative' a daily volume of 100,000 vehicles would have to travel an average distance of 3.5 miles through signalized urban arterials versus 3.5 miles on controlled access urban freeways in th e 'proposed alternative' (including the 1 95 Harbor Crossing)." 3. Assumed Un it Cost s From field test runs in Baltimore during both normal and peak hours, the following operational characteristics for streets in the affected area (CBO and East Baltimore) were projected: Average speed on City streets Average speed on freeway Projected stops on city streets (per vehicle from an average speed of 20 mph) Car occupancy 1.5 person /car Standard unit values for the costs of operation, accidents, and time were derived from the follow · ing sources: - AASHO red book Robely Winfrey: Economic Analysis for Highways HRB Record #225: Direct Cost of California State Highway Accidents by Sm ith and Tamburri of California Division of Highways - Data supplied by the Department of Transit and Traffic summarizing acci dent frequency on selected intersections in Baltimore 104,000 - (120,000-87,0001 = 71,300 vpd would have to find their way east on the following facilities: (a) (b) (c) 25mph 50mph 5 stops Eastern Avenue Baltimore and Fayette Streets Orleans Street and Pulaski Highway Thus: for an average distance of 4 miles to ge t to their destination or to connect with 1-95 fur t her ~ast. Due to the diversity of alternative routes avail able to road users a precise assignment of the diverted volume to the "null-alternative" is very difficult to predict manually. However, a conser· vative conclusion, based on the above discussion, could be stated as follows: 102 (a) The cost of operat ion: includes fuel, oi l, tires, maintenance and depreciation. It is usually divided into: - running cost - change in speed cost It is assumed here that the running costs are �comparable at high speeds (freeway) and low speed (city streets); therefore, only the cost of changes in speed is considered: Thus in the "null-alternat ive", the cost of 1000 stops from 20 mph - 54.95. While in the "proposed alternative " changes in speed are negligible, there · fore no costs are assigned. (b) Cost of accidents: " nu ll -alternative" : saOO,0001100 million veh icle miles on city streets operation once Segment 14 is built. 6. Summary Although not all the savings are quantified, the analysis demonstrates that despite the apparent high cost of Segment 14 and the Fort McHenry Bridge-which has been estimated at 5310,000 mil lionthe traffic related benefits alone are of the same order as the public investments required to construct the facility. To these benefits must be added the returns to the City and comm unity ac· cruing from the accelerated growth of the industrial land in the co rrid or. Th ese benefits are considered in the following subsection. "p ro posed alternative": 5200,000/ 100 mvm on urban freeways I I I I I I I (c) Cost of time: Both alternatives: 51.50/hour/person, at 1.5 persons per vehicle 4. Fort McHenry User Savings Based on the assumed volumes, unit cost and operation characteristics, the fol lowing average ann ual savings will accrue to the users of the 1- 95 Harbor Crossing upon completion of System 3- A. Operation cost saving: Accident red uction saving: Time saving: Total savings: 5 3,162,000/ y, 766 ,000/ yr 17 ,246,000Iy' 521 ,174,000/ y, These annual savings to the users of Segment 14 would justify a total initial investment of 5292,000-,000 to be recovered in 30 years at an interest rate of 6%. 5. Related Traffic Benefits In add it ion to benefits to users of th e facility, significant savings will accrue to the users of city streets and other con trolled access facilities (1-83, Harbor Tun nel), due to improvement in their 103 �development benefits 8. corridor development characteristics ,~ '" ".' The 1 95 Harbor Crossing traverses an area of the city dominated by industrial and waterfront ac~ tivities. I n the description and analysis (Section 4) it is indicated that the residential comm unities of Locust Point and South Baltimo re, occupying the remainder of the area, are relatively stable in size and composition. T he recommended strategy for the future planning o f these neighborhoods was to reinforce their stability and to upgrade their en vironmental q ual ity. ..•• , .' / " ...."" way construction should not sign if icantly change the land use pattern of these commu niti es, al th ough steps must be taken to reduce the impact of noise, disruption and heavy traffic on the local environment (see Section 7). On the other hand, signi ficant changes in the pattern and distribution of industrial activity are inevitable. In the past there have been significant increases in land value and development density along expresS\-\lay corridors. Route 128 Bypass to the east of Boston is common ly cited as an area where land values increased 1000% in some cases and where 190,000 new jobs were crea ted in a period of 10 years. Changes of this magnitude w il l not occu r in Baltimore sim ply because the exp ressway route lies through an established, important industri al sector of the city where land values are already high. Howeve r, because development density is low, substan tia l increases in the intensity of use can be anticipated. An independent economic analysis carried out by American Real Estate App rai sal Corporation for UDCA indicates that land values alone shou ld increase at least 50% after the construction of the fr eeway. 6.001 / // . The increased accessibility resulting from express- 104 " ..•. . ,. " .." ~ " l �b. methodology Four types of change in existing land uses are predicted: Since it is the combination of decisions made by these individuals, organizations and agencies that determines the amount and nature of land use change, each was questioned as to his view of, and ro le in, the future development of the area. The swift absorption of existing vacant land More productive use of existing land and property A raising of development potential to a level where it becomes economica ll y feasible to consider major redevelopment and changes of use I 2. Identification of Metropol itan Grow t h Assumption/ Determination of Alternative F utures T o provide a framework within which to project land use changes in the Segment 14 Corridor, two sets of parameters were defined. (a) Based on the Metropolitan Growth Projections of the Regional Planning Council and the U.s. Department of Commerce, the overal l growth potential for population, em pl oyment, land use categories and personal income in the City o f Baltimore were noted. (b) Recognizing the interdependence of d ecis ions made in each of the areas listed in 1, three sets of assu mpt ions were developed to describe the parameters within which " local" decisions regarding land use and development could be made. T he acceleration of land fill pro jects due to a comb ination of the above and given an existing shortage of vacant land. Wh ile these can be identified as the di rections of change, the projection of the amount and dist ribution of change requires consideration of many variables, not all of which can be easity quantified. I n order to structure this process, a range of alternative Corridor Land Use Plans was developed as follows: 1. Inventory/ Identification of Decision-Makers Based on the initial survey and analysis by American Real Estate Appraisal Corporation, individual parcels of land which would be affected by the construction of the exp ressway were identified as were the decision makers, or "acto rs", whose business directly influence the management, sale and development of industrial land in Baltimore. T he decisionmakers, including land owners, plant managers, City officials, industrial realtors, and developers, were grouped into three categories: Public , Quasi ·Public and Private. In order to cover the wide range of potential development patterns, these "F utu res" were deliberately defined to illustrate opposite extremes of the spectrum of possibility. While these projections have been based on carefully considered assumptions, the economic analysis contained in this section should not be read as a forecast of development in the Segment 14 corridor. Rather, the discussion treats the development potenti al of the corridor under three strictly defined sets of future conditions and actions. T hus, future development with in the corridor can approximate the assumed "features" only to the extent that the defined future conditions and actions are rea lized. The Alternative " F uture" assumptions are sum marized as follows: 105 �PHASE I INVENTORY INVENTORY EX IST ING SITUAT ION Land Use Ownersh ip Tax Revenue Jobs Utilization PHASE II ASSUMPTIONS PHASE III ALTERNATIVE CORRIOOR LAND USE PLANS DEVelOP ASSUMPTIONS FOR Metro Grow th l and Values Development Plans Local Investment Etc . Etc. DEVELOP THREE ALTERNATIVE CORRIDOR LAND USE PLANS FOR 1990 IDENTIFY DECISION MAKERS Owners Realtors Developers City Agencies GBC DEVELOP PARAMETERS FOR THREE ALTER NATIVE FUTURES Alt. Future One Alt. Future Two Alt. Future Three (No Road) (Min. Dev.) (Max. Dev.) I I IDENTIFY ASSOCIATED ECONOMIC EFFECTS FOR EACH A LTERNATIVE Etc. A LTERNATIVE CORR IDOR LAND USE PATTERNS, CONCEPTUAL FRAMEWORK FOR PROJECTI ON PROCESS 106 �ALTERNATIVE FUTURE ONE - NO ROAO CONSTRUCTION IN SEGMENT 14. ternative Corridor Plans were constructed and economic benefits quantified for the following indicators. consistent with the "null-alternative" defined in the user benefit study - a situation with the 3-A completed, except for Segment 14. ALTERNATIVE FUTURE TWO - ROAD CDNSTRUCTED BUT WITH MINIMUM COORDINATION , NO JOINT DEVELOPMENT AND NO INTEGRATION WITH OTHER AGENCY PLANNING AND DEVELOPMENT PROPOSALS. INDICATOR 1. Increases in Land Value 2. Increases in Tax Revenue 3. Number of Jobs Created GROUP AFFECTED BY CHANGE Land Owners City of Baltimore City and the Community e.g .• reproduce the uncoordinated nature of previous expressway planning, without appropriate planning and development programming. ALTERNATIVE FUTURE THREE In order to illustrate this process the next section of t~ report takes as an example the application of these assumptions to the Penn Central Property in the Canton/Dundalk area. - ROAD CONSTRUCTED ACCORDING TO A CORRIDOR DEVELOPMENT PLAN WITH MAXIMUM COORDINATION OF JOINT DEVEL· OPMENT WITH MPA PLANS, RAILROAD CONSOLIDATION , DEVELOPMENT OF FORT HOLABIRD. CITY /PRIVATE INVESTMENT PROGRAMMED FOR MAXIMUM RETURN . e.g. , the realization of maximum development potential through the total integration of planning, design and investment decisions. 3. Development of Alternative Corridor Land Use Plans and Associated Economic Benefit Within the framework of the metropolitan growth projections, and based on the responses of the decisionmakers and the analvsis of proposed development plans provided by American Real Est ate Appraisal Corporation, projections of alternative land use patterns were made for each site, or group of sites, identified in 1, under the three different sets of assumptions or " Futures". From this site by site assessment, three AI · 107 �Example - Assumptions Applied To Case Study The example chosen to illustrate this projection technique is an amalgamation of parcels owned by Penn Central in the Canton Area. It is fronted by Clinton Street to the west and Newkirk to the east. The site covers 200 acres and is presently used for open storage and ra il yards serving the coa l pier, M. P.A.'s Pier 2 and part of the Canton waterfront. Projected Land Use Changes 1. Under the Alternative Future One assumptions, the major projected change in land use was the development of some 40 acres of ware· housing, assumed to be associated with the redevelopment of the ad jacent waterfront by the M. P.A. The remainder of the site was assumed to continue as open storage. 2. In Alternative Future Two, assuming the com · pletion of the freeway by 1980, considerably more development was projected. In addition to the facilities supporting the waterfront, a similar proportion of general road ·rail oriented warehousing serving downtown distrib ution is shown. Mo re important, 40% of the site is assumed developed for manufacturing industry, reflecting the greatly increased accessibility provided by the freeway and the reduction in peak hour congestion. Land Use Employment Per Acre Assumed F.A.R. for Calculation of Improvements Open Storage 1 per acre Warehousing 5 per acre 0.3* 25 per acre 0.5 - 0.8" Industry In order to establish improvemen t values an average unit cost of $15 per square foot was applied to the projected building areas which were derived from th e assumed Floor Area Ratio. Although the increase in land values will vary considerably throughout the area depending on the particular virtues of any given site American Real Estate Appraisal Corporation estimated the following general rises under the alternative assumptions Alternative Future One Alternative Future Two Alternative Futu re T hree - 25% 500 10 75% 3. The maximum development Alternative Three maintains app ropriate facilities for the support of the MPA - 20 acres of open storage and 40 ac res of waterfront ori ented wa rehousing - but the major part of the site is assumed developed for its highest and best use - manufacturing in· dustry. Assumptions for Economic Indicators I n projecting the number of jobs associated with different land uses, the following assumptions were made. 108 "The FA.R. 's of 0.5 to 02 Which were applied to indust rial si tes were based on the p resent industrial F A.R.·s in the area. In general, sites along 8roening Highway - General Mo tors, Western Electric, etc ., have rnul! i'$tory buildings and F.A.A . '$ in the range 0 .75- 1.00; however, th roughout the area the average is 0 .5 . �TA X JOB S CREATED LAN D USE PROJECTIONS RETURN w 40 acres@ 5 jobs/acre I- < Z 80% open storage and rai lyards 160 acres DI: w 160 ac res @ 1 job/acre - 200 • 160 I- ...... < Acreage: ~ : :\ 1 r,==" nT'i'T.;-;,..-t" "" m~.LJm ::::: ::.; ('oj w I- < Z I:!r. back .uP DI: w I...... < 1 u I- < Z DI: W ~ Ir.~o:'o:'r:I ::~n~ .;ot-t. ..•• ••.1' ... warel1o"ji+-t:f 40% industry ~ ~;:. 0 ~ ," u ...... 1 :::::::: ~ '-'- j ~c~:i~': : • , ' 80 acres@ 5 jobs/acre 40 acres@ 1 job/acre 80 acres@ 25 jobs/acre 360 '" " 105 Im provement Value: 40acresxO.3F.A.R . x S15 s.!. x 60% '" S 4 ,704,480 - $ 7,209 ,480 Tax Return: S7,209,480 x 0.0494 ( tax rate) -$ 356,148 '" Land valu e = +50"A. Projected Assessed Value: S2,004,000 x 150% "" S 3,006,000 Improvement Value: 80 acres x 0.3 F .A.R. x SIS /d. x 60% 80 acres x 0.5 F.A.R. x SI5/s. 1. x 6ax. ; $ 9,408,960 = $15,681,560 ; $28 ,096,560 Tax Return: 528 ,096,560 x tax base 0.0494 = Land value = +75% Projected Assessed Value: S2,004,000 x 175% Im provement Value: 40 acres x 0 .3 F ,A.R. x S 15/5. 1. x 60% 140 acres x 0.5 F.A.R. x S15/s. 1. x 60% ; $ 3,507,000 3500 Total Assessed Value = 535,654,280 3720 Tax Return : $35,654,280 x .0494 = S 1,761,321 40 40 -2000 • Z Acreage: 200 Total 20% warehousing 40 acres : : : •: " ~":':'~ ~ ¥.'".'~.; , " "" " 1"/1;" , 80 acres ~ ~ I- < 40 acres "-Y" ;:i '::~:' w ......o....'Y " "" .:.:.. . •••:.: ........ . . . ... ' .... / "~~ . . .. I,-m M W 20% storage •••••••• ,' " j';'~":7 : Total: - $ 2,505,000 Total Assessed Value: 40% warehousing 80 acres • • ind .. wy "... r ' 200 acres Land value = +25% Projected Assessed Value: $2,004,000 x 125% Total Assessed Value: 2ax. warehousing 40 acres 40 acres@ 5 jobs/acre 10% storage 20 acres @ 1 job/acre 20 acres 140 acres 140 acres @ 25 jobs/acre 200 T otal: 70% industry , / I:: 2440 • ; 200 20 $ 1,387,9 70 '" S 4,704,480 $27,442 ,800 = I~ I: • Acreage: �In all, some 50 sites throughout the corrid or were identified as being lik ely to change their land use charac teristics in response to the construction of the fre eway. For co nvenience the 50 individual sites were amal gamated into six major "development areas" of generally con tigu ous property and one "ca tch -all " grou p of "other small sites", The "development areas" are noted below and located on the map opposite. 1. WELLS STREET INDUSTRIA L AREA 2. M.P.A. LOCUST POINT EXPA NS ION 3. PE NN CENTRAL CANTON YARDS 4. CANTON /SEAG IRT LAN D FILL PROJECT 5. BROENING HIGHWAY INDUSTRI A L REDE V ELOPMENT 6. FORT HO LABIRD INDUSTRIAL REDEVEL · OPMENT 7. OTHER SMA L L SITES The same procedure described in the "case stud y" example ( 111.4.) was applied to each of the aggre- gated "development areas" to project alternative co rridor land use patterns. The resultant growth in land value, employment and tax revenue associ ated with each land use con figuration was compu ted . The three alternative Corridor Plans are summarized in the foll owing section. 110 ��FT. HOLABIRD s �cen tage increase in all categories, this is mainly due to the comparat ively low level of activi ty on the majority of the si tes at the present time. c. analysis of alternative corridor plans A LTERNATI V E COA AI OOA PLAN ONE In order to determine the amount of "natu ral" economic growth (e.g., not attri butable to the construction of the freeway), and thus to provide a " base condition" against which to compare the other projections, a land use pattern was developed assuming no exp ressway constructi on in the area. While there was some growth in activity, and most of the vacant land was absorbed, the pred ictions refl ected three major constraints on development. The con tinued congestion of Holabird and Broening Highway in the absence o f links to th e expressway via Keith Aven ue and Newk irk Street A continued orientation toward waterfront activit ies Lack of access to the expressway places potential development sites at a disadvantage to those around the Beltway when compet ing for manufacturing indus try - especially when the areas of market expansion are to the south in the Washington/Baltimore Corrid or The effect on development would be to maintain rel atively low land values favoring low intensity space-consuming wa rehouse storage and container facilities with co rrespondingly low emp loyment opportunities LAND VALUE Piecemeal Development Patterns Without severe pressu re on the land and lacking the interest of a coord inating Development Corporatio n, the panern of development would be spo radi c and disjo inted w ith conseq uent inefficiency in the utilizati on of land and City services. The cumulative effect would essentially reproduce present conditions where neg lect and lack of order make sites less desirable . VEIIAC.E o JOBS TAX REVENUE BASEL-~~~~~~~~~~~~W 1970 200 1500 2000 The economic implications of these changes are summarized below. Although there is a healthy per· %INCREASE 6.005 113 ��ALTERNATIVE CORRIOOR PLAN TWO o nly 30 out of the planned 113 acres. Th e construction of Segment 14 will remove many of Much of the potentially valuable Penn Central and Fo rt Holabird property is pre-empted for nonintensive use. the restrictions on development identified in Alternative Future One . The facility will provide direct north and south access to 1 as well as to 1 -95 ·83. It will significantly reduce congestion on Broening High way between the Western Electric Pl ant (the point of access for the new Keith Street extension) to O'Donnell Street and reduce traffic loads on the HolabireJ/Broening intersection. The projected growth indicated here is corroborated by projections from other sources, specifically, stud ies of the City Planning Department and the employment projections of R.P.C. Together with the completion of the City's street improvemen ts to Newki rk , Keith , Leland and Vail in Canton, and the construction of the recommended industrial loop road in Locu st Point, the expressway will provide the transportation base for the expansion of industrial activity throughout the Study Area. Although the construction of the expressway wil l increase the probability of industrial growth, it will not guarantee the efficient and orderly development of the area. To be sure, co nsiderable expansion, growth and change will undoubtedly take place (and the magnitude of that growth is indicated here). but much of the potential return to the City will be lost in the absence of a mechanism to promote, initia te and control industrial development here and throughout the City. LAND VALUE JOBS The projected development pattern reflects this lack .of coordinated action by assigning a considerable proportion of growth to storage and warehousing - the traditional uses of the area. Since these uses are non-intensive, land values will increase less dramatically and the number of jobs created will be correspondingly fewer. TAX REVENUE BASE~~~~~~~~~~~~~" 1970 1500 Although the M.P .A. plans for the South Side Termin al landfill are assumed completed, the Canton-Seagi rt landfill is assumed to have grown to % INCREASE 6.001 115 ��ALTERNATIVE CORRIDOR PLAN THREE T he 'maxim um development' alternative is an opti · mistic projection of the best possible situation. The assumptions include an effective, operating Industrial Development Corporation with funding and powers to acquire and hold land similar in principle to the Land Bank proposal developed by EOe and City Planning Departments and set out in the EB S Economic Development Study· - but with stronger emphasis on private sector participation and promotion. Such an Industrial Development Corporation should have the following general capabilities: 1. 2. I To acquire, improve, develop and dispose of land, buildings and oth er property. To provide assistance to firms contemplating expansion, location, or relocation in Baltimore. 3. To engage in promotional and advertising activities, 4. To accept gifts, grants, and loans of money, property and services, 5, To make feasibility and economic studies. 6, To make recommendations for improvements of municipal facilities and services affecting industrial sites in Baltimore, 7. To help establish neighborhood economic development organizations, 8. To implement mortgage insurance financing, to issue industrial revenue bonds, and to execu te, purchase and sel l other evidences of indebtedness, · ' 'Strengtheninu Blltimore'. Indunrlll B_: ' eBS Management Con· sult.,ts, April 19B9 . 117 �This Alternative Future assumes further that railroad consolidations will continue, the M.P.A. Development Plan will be completed and the City will complete the planned and necessary improvements to the street system and services concurrently with the construction of the expressway. Under these conditions the maximum development potential for the area could be realized. In addition these projections differ from those in Alternative Two chiefly in that they recognize the need and possibility of attracting labor intensive, revenue producing, manufacturing industry to the City. While storage and warehousing is still accommodated on the Penn Central Yards, it is reduced to the estimated requirements of the M. P.A. operation while the majority of the site is assumed to be developed for industry served by road and rail rather than water transportation. The same is true for Fort Holabird, where manufacturing industry would be encou raged to locate at the expense of less labor intensive operations. Throughout the area the results of promotion by the proposed Industrial Development Corporation and priority City investment in services would result in higher land values, more efficient utilization of resou rces physical and human, and a higher return on City investment. The total number of jobs projected is about 3,000 more than the RPC projections-representing about 5% increase in the total projected employment in the area. LAND VALUE JOBS TAX REVENUE BASEL-L-L-~~L-~-L~~LU~~ 1970 so 100 200 %INCREASE 118 6.009 400 600 100 1000 1500 2000 ��Summary The diagram opposite summarizes land use projections made for each 'development area' and illustrates the sign ificant increase in returns accompany ing a shift from traditional storage and warehousing activities to industrial development. The diagram on this page demonstrates the components of the projected economic growth in relation to planning and construction of the freeway_ The fi rst, the 1990 "null-alternative" essentia ll y describes the "natural" as opposed to expressway "induced" growth in industria l act ivity in the Corridor. COMPARATIVE DEVELOPMENT LEVELS The second, Alternative Corridor Plan Two. indicates approx imately the amount of development that wi ll be stimul ated by the construction of the expressway, in addition to "natural" growth. T he third, Alternative Corridor Pl an T hree, is an assessment of the extra development that could be generated by the application of integrated planning policies, joint development projects, and the creation of an effective, responsible Industrial Development Corporation. LAND VALUE JOBS TAX REVENUE BASE~~~~~~~~~~~~~•• 1970 %INCREASE ~ m _ 120 6.01 1 NATURAL GROWTH HIGHWAY INDUCED GROWTH COORDINATED DEVELOPMENT BENEFITS I �ALTERNATIVi PROJECTED LAND USE DISTRIBUTION FOR 1990 ALTERNATIVE ONE _ Null AII" nIIli ... in .... nt 14 ALTERNATIVE TWO s.g, KEY Distribution Of land Use AI E.:h Si l' ~ SITE 1 WELLS STREET - RoMl CO mtruclMl but with Minimum Coordinlltion , No Joint o.-..Iopment and No Intogr.tion with Other Agency Plenni"911nd o.-..Iopment PrOilOMII •• •••• 54 ;00. $70,000 $72,500 , •• , ..",n '&>1 ," urn SITE 2 MPA' 115 EXEMPT '" 68 ACRES 30 ACRES - RoMl ConWucted Aa;:ording to • Cor ridot o.-..Iopmen\ Plln with Ma .. imum Coordinnion of Joint a....lopmenl 750 jobs $430,000 .&>1 ' eturn '" EXEMPT EXEMPT 2,440 3,720 $356,000 $1,388,000 $1,761,000 17 30 $67,000 17 ACRES $ 127,000 30 ACRES $829,000 50 '.<'60 '.300 ....000 5695,500 $858,000 1,920 2, 112 5.0<0 $111 ,500 $708,000 $2,164 ,000 ... ... 960 $53,000 563,000 $459,000 5,B29 11,998 $3,054,000 56,501,000 SITE 3 PENN -C ENTRAL 204 ACRES SITE 4 CANTON / SEAGIRT LANDFILL' SITES BROENING HIGHWAY 113ACRES 50 ACRES SITE 6 FORT HOL AB IRD ACRES SITE 7 OTH ER SITES 4B ACRES TOTA L JOBS T AX RETURN $751,500 While the site now supports mo re than 17 jobs, a consinent standard of one job per ac:;r e was applied in deri~ingemployment figu res for open stOfagl! sites, Thi s results in a conserva t iw Htimalt o f e mployment potential. 6,012 121 �Related Econo mic Benefits T he indicators selected to measure the range of development possibilities - tax revenue, land value and jobs - are by no means inclusive. For instance the proportion of the wages and salaries earn ed by employees that is spent in the City can be computed. Likewise the manufacturing indus· try will generate a demand for special support industry and services thus creating more jobs and con tri buting to the flow of money into the total City economy. industrial development. d. investment costs and returns These benefits are not without certain costs . T hese include (1) the loss of land for Right-of-Way and (2) the cost to the City of providing services to support the anticipated growth of industrial activity. 1. land requirements for Segment 14 A U.S. Chamber of Commerce Study, based on ana lyses of ten commun iti es illu strated the im pact of 100 new factory workers on each com munity in the following manner: "J ust 100 new factory workers mean: - 296 more people - 112 more households - 51 more schoo l children -$590,000 more personal income per year -$270,000 more bank deposits - 107 more passenger cars registered - 4 more retail establishments -$360,000 more retail sales per year" A simil ar study, conducted by the Missou ri Division of Resources and Development, estimated the impact of a new plant employing 150 male employees in basic industry: -Plant investment of $390,000 - Annual payroll of $539,400 - T he creation of 1,200 secondary jobs - The sale and service of 431 automobiles - The need for nine new school rooms -Property subject to taxation with assessed valuation of $1,972,686 - Need for 48 additional professional fIlen - Rail freight revenues of $1 10,000 annually - Food sa les of $469,637 annually Cl early these benefits, derived from this "spin -off," are proportional to the amount and type of the new 122 The taking of land for expressway right-of-way will be minimal. Assuming that the harbor crossing wil l be by means of a bridge, the entire length of Segment 14 will be elevated on structure in order to allow the continued operation of railroad facilities, and the possibil ity of industrial development. The approaches to the bridge, crossing the Penn Central Yards on the East and M.P.A ., Beth lehem Steel Corporation and the Naval Reserve on the West, are between 40' and 100' above the ground allowing ample clearance for a wide range of operations to be carried on. Column footings would require some space, but the span lengths, 80'- 300', and the verti cal clea rances contemplated should ensure minimum physical restrictions on site deve lopment. In constructing the bridge, the ma jor effort wil l be concentrated in the largely under-developed Penn Central Yards and the Naval Reserve property. There will be some disruption to existing operations during the construction phase, but this could be programmed to minimize conflict and could be carried out concurrently with the reorganization and reloca· tion of affected propert ies . Thus, although th e preliminary construction time table cal ls for four years to complete the Segment (and the bridgel. a phased program would ensure that the disruption to operations would only occur �in one place at a ti me and for a minimum length of time. Annual Ta x Revenue from Projected Development Magnitude of Public Investment Supported by Returns fro m Projected Development lI. lt . Fut . 1 $ 75 1,000 $ 5,920,000 AIL Fut. 2 $3,054,000 $49,600,000 Alt . Fut. 3 $6,501,000 $93,000,000 2 . City costs and Capital Investment Capital investment s, often of considerable magni tude, are requ ired in pub lic imp rovemen ts to provide supporl for futu re d evelopments. Investment dec isions made in the public sector d irectly affect private invest ment decisions; furthermo re, public investment decisions are made largely on the same cost/ benefit basis as private investment d ecisions. T ha t is, an investment is considered justifi ed when the projected benefit (retu rn ! matches or is greate r than the magni tude of the investment. However, un like priva te invest ment decisions, public investment decisions also take into account soc ial benefits which accrue as a resu lt of pub lic act ion. These take t he fo rm of more jobs, improvement of the physical environment and upgrad ing the standard of living, all of which contribute to the well -being and stab il ity of the City. I T he City, recogniz ing the potent ia l of the Dundalk / Canton area, has al ready demonst rated its intentions to support industri al development here. As indicated in the Capital Improvement Program, the City is already comm itted to an investment of $17,073,656 in the area . While the la rgest single improvempnt is a water ma in und er the harbor ($ 11,391,000) whose benefits accrue City -w ide, over $-6 million in sewer and local circu lation imp rovements are earmarked spec ifica lly fo r Dundal k/Canton. Stated another way, bonds o f the magn itude ind icated in Co lumn B could be amort ized (6% for 30 yea rs! from the projected return shown in Column A. Wh ile the d evelopment potential alone supports in· vestment dec isions that would provid e the pub lic improvements (sewage and local circulation! needed to real ize part of this potential, the provision of the 1- 95 Harbor Crossing, supportab le itself from user-benefits, allows the max imum benefit to the City to be gained. Seen purely in terms of an investment decision, the retu rns to be rea lized by the City (including tax revenues and new jobs as well as associa ted social and env ironmental benefits) far exceed the costs of the 1 95 Harbor Crossing and other program med pub lic improvements. Should these public actions be supported by the coord inated efforts of d ecision-makers on all levels, pub lic, quasi-public, and private, pu b lic investments of the foll ow ing magn itude can be supported. 123 �CAPITAL IMPR OVE MENTS SCHEDULED FOR THE CANTON /DUNDA LK A REA - 1970-1975' Department Completion or A gency Date Highland Avenue Branch of Division of Waste 1974 S the East low level I ntereeplor Water - Sanitary Sewers 1970 $ 1,123,000 1974 s 197 1 $11,391,000 1971 S 1,000,000 Project Project No. 348 351 Elltension of Canton Trunk Sewer - Newgate Avenue do . Total Cost 526,656 Branch 367 Clean and Line Highland Division of Water 63,000 Avenue Water Main 370 72" Under Harbor Water do. Main 386 Keith Avenue and Connections Bureau of Engineer ing; Division of Highways Newkirk Street to Broening Highway 392 Leland Avenue/Newgate Avenue Clinton Street to Newki rk Street do. 1972 S 1,330,000 395 Newgate Avenue, Newkirk Street to Vail Street do. 1973 S 480,000 Newkirk Street - Newgate Avenue do . 1973 $ 380,000 do. 1975 S 780,000 397 to Keith Avenue 404 Vail Street - Newgate Avenue to Keith Avenue TOTAL COST : • Baltimore Depanment of Plannin9 , BilUimore's Development PrO(p"lIm 124 The Ne ill Six Yean, 1970- 1975 , June, 1969 . $17,073,656 �Summary The need for industrial growth in Baltimore is clear and unquestioned. It can be summarized in two words jobs and taxes. The residents of the City need a diversified choice of appropriate job opportunities while the City needs to maintain its dwindling tax base. The need to meet these objectives has been the fre quent subject of public statements and planning reports. I I I I "There can be little doubt ... that in Baltimore, where the economic base is so firmly rooted in industry, its continued expansion must be a major objective of public policy. It also seems clear that the City must take affirmative action to obtain for itself an adequate portion of the region's growth. "* The expressway system and, in this case, the 1- 95 Harbor Crossing, could act as a catalyst for industrial renewal and expansion, but without the provision of an effective coordinating mechanism, able to bridge the gap between private capital and the necessary city coordination functions, the opportunity will almost certainly be lost. Such a mechanism could be forged by combining the talents of EDC, GBC, HCD, and Charles Center/ Inner Harbor Management. Thus, while it can be demonstrated that the transportation benefits alone justify the construction of the 1- 95 Harbor Crossing it is a central finding of this section that the full economic potential of industrial development in this area can only be realized by construction of the expressway. The elegant and successful Charles Center Renewal Project was developed in response to the recognition of the need for a strong CBO/ Regional Core, and it now provides an appropriate focus for regeneration of the City's downtown activities. The administration of Charles Center, and the sub sequent Inner Harbor Renewal Project, is in the hands of a special quasi -public development agency, Charles Center/ Inner Harbor Management, which ful fills a critical coordinating and promotional role. The City has created a special agency, the Economic Development Commission (EDCl. charged with the task of relocating industry in the City in the face of increasing competition from suburbs. Other groups and public agencies with important development capabilities include the Department of Housing and Community Development (HCD) and the Greater Baltimore Committee (GBC). 'Expanding B.ltimore's Indu$lrill!..B~e, City Planning Department. 1960 _ 125 �JOINT DEVELOPMENT POTENTIAL �7.001 Locust Point (Illustrative Sketch) introduction The purpose of this Section is to present joint development planning and design concepts wh ich respond to the issues identified in the preceding sections. T he issue analysis has involved: 1. A description of ex isting conditions (Section 4 ). 2. A descript ion o f projected physical and environ mental changes within and adjacent to the high way corrid or assoc iated with each altern ative alignment (Section 5). 3. A description of the wid er econom ic impacts of Segment 14 upon patterns of industria l development throughout both the corridor and the metropolitan area. (Section 6). 127 �The joint development concepts presented here are deliberately cast in schematic form and are intended to be the basis for discussion between com munity residents and property owners, city agencies and h ighway planners at the Po in t 3 Conceptual Review. Although the Concept Team's planning responsibi li ty for Segment 14 ends with the publica tion of this report , it is assumed that the initial Corridor Development and Roadway Design concepts presented here w ill be ca rried forward to the preparati on of detailed desig n and finan cial feas ibili ty studies. As t o future development, the initial concepts proposed in th is report should form the basis of the final Corridor Development Plan. Final planning shou ld proceed to the extent t hat community support for various joint development proposals is generated at the Conceptual Review. SECTION 4 Area Description Social Profile Economic Profile Community and Industrial Development Issues SECTION 5 Corridor Locatio n Studies Alternate Roadway A l ignments Highway Impact St udies SECTION 6 Economic Develop· ment Stud ies Corr idor land Use Patterns 128 SECTION 7 Joint & Collateral Development Opportunities and Design Concepts �7 .002 project areas To date, four project areas have been identified where joint public and private action could promote appropriate redevelopment patterns. It is anticipated that other redevelopment wi l l be undertaken throughout the Corridor w ith purely private investment. The project areas are : 1. Wel ls Street I ndustrial Rehabilitation and Ri ver side Park Join t Development; 2. Locust Poi nt Neighborhood Rehab ilitati on; 3. M.P.A . Development Proposa ls and the reorganization of Con taineri zation Faci li ties; 4. Canton/ Dundalk Industri al D evelopment. In addition, Fort McHen ry is cove red under a separate subsection due to the unique significance o f this historic momument. ! Fort McHenry : Jo int Development Proposals for a National Monument). 129 �wells street industrial rehabilitation riverside park joint development area descripti on Th e southern edge of the South Baltimore Com- munity is defined by a comp lex of industrial buildings along Wells Street and by Riverside Park . The indust rial buildings house manufacturing facili - ties requiring both rail and road access, and a group of part ly empty loft buildings. There are also twelve residential units immed iately adjacent to the loft buildings, south of Wells Street. Riverside Park , which is surrounded by row homes on all but its southern edge, serves the major 130 recreation needs of South Baltimore and has a swimm ing pool, basketball and baseball facilities. T here are also tot lots fo r smal l chi ldren around the edge of t he park close to the houses. Immediately south of the ind ustri al complex and the park are the B & OIC & 0 railroad yard s. Presently, trucks serving Well s Street indu stries use local residential streets, chiefly Light, Charles, Williams, Barney and J ohnson, in addition to Wel ls Street itself. This heavy truck traffic causes disruption through ou t the ' Hill' community and adds to the deteri · oration of both th.e housing stock and the shopping facilities along Light Street. A further negative impact on the residential environment is the B & OIC & 0 plan to consolidate its marshal ling yards in the Locust Point area and repai r trackage immediately south of Riverside Park. �the impact of the freeway The freeway corridor, as defined in Section 5, includes the southernmost industrial buildings and passes within 200' of Riverside Park . However the recommended roadway alignment retains the structures and passes 500' south of the park. I I I Proposed freeway access at McComas Street and planned improvements to the Hanover Street Bridge will increase the accessibility of the industrial sites and thus the probability of their rehabilitation or renewal. However the freeway's proximity will also have an unfavorable environmental impact on the homes closest to it, especial ly those around the south end of the Park where the noise level will increase. The Park itself will al so be affected by freeway noise and visual intrusion. 131 �The following Joint Development proposals therefore seek to maximize the development potential of those facilities in or adjacent to the highway corridor and to minimize negative environmental impacts of the freeway. The major objectives are as follows:· 1. 2. 3. 1 Improve the local street system. Minimize the acoustical and visual impact of the freeway on the residentia l community and Riverside Park. Provide for the rehabilitation of the Wells Street Industria l Complex. IMPR OVE THE LOCAL STREET SYSTE M A central problem in the area is the inadequacy of the local street system. Providing for both the freeway and rehabilitation of industrial property in the area will on ly compound this problem unless a satisfactory separation of industria l and residential traffic can be achieved . By connecting Wells Street westward to Hanover, industrial traffic could be diverted from the neighbo rhood streets. These streets could function solely for local neighborhood service and become a focus for a community redevelopment effort. 132 7 .005 �2 MINIMIZE THE ACOUSTICAL AND VISUAL IMPACT OF THE FREEWAY FOR THE RESI DENTI A L COMMUNITY AND RIVERSIDE PARK F rom an acoustical standpoint, preservation of the large loft buildings along Wel ls Street is high ly desi rable since they shield the neighborhood from noise generated by the freeway. Howeve r, these buildings do not form a continuous barrier, and preliminary acoustical surveys indi- cate the need to provide additional noise protection as part of the expressway structure . Further east, opposite Riverside Park, the noise problem generated by the freeway will be com- pounded by the increased proximity of relocated B & Ole & 0 tracks and the increased activity in the ya rds themselves. In addition the freeway structure will visua ll y dom inate the southern part of the park. Although acoustic protection may be provided on the freeway structure, an additional Joint Development project is recommended, utilizing vacant land between the B & OIC & 0 tracks and the southern edge of Riverside Park approximately along the line of an extended Wells Street. Consistent with the provisions of PP M ~ 29 ~ 1 this land should be included in the highway right-ofway and developed as an extension of the pa rk facilities. The design objectives would be to both increase the utility and usability of the park with specific recreation facilit ies and to provide, through screening and planting, additional acoustic and visua l protection from both the freeway and the B & OIC & 0 yards. 133 �3 PROVIDE FOR THE REHABILITATION OF THE WELLS STREET INDUSTRIAL CO MPLE X The Wel ls Street sites already lie close to the Central Business District, the Inner Harbor Renewal Project and Charles Center Renewal Project from which a large number of businesses are being displaced . The construction of Segment 14, with access to the freeway via McComas Street ramps, will greatly increase accessibi lity to the area . Presently there are tight industria l and storage act ivities in the complex and the buildings, though old, are basically sound. In 1969, EB S Management Consultant, Inc., selected a five sto ry vacant loft structure as a case study for rehab ilitation . The resu lts, based on then cu rrent conditions, indicated a ma rginal return on rehab il itation costs fo r the 450,000 square foot structu re. However, with improved access to the freeway , Wells Street improvements, and the tota l comp lex of buildings treated comprehensively, reha· bilitation may prove to be more profitable. 7.006 T he EBS Study recommended that a growth ind ustry be chosen as tenant, but additional consideration should be given to the possibi lity of relocating small businesses displaced by the various renewal and freeway projects affecting the inner city. Rehabilitation of the complex shou ld provide a central parking and transportation terminal. Sufficient parking provision cou ld eliminate the need to use neighborhood streets. By consolidating trucking and rail service in a common load ing and transfer shed, costs cou ld be shaved between users. 134 7 .1)07 �u _ _______ _ ___ ----__ 7 .008 7 .009 7.010 ""1'0 __( I_"~~~'DS • f--l • 1-95 --------------- - ------- --- Wells Street Industrial Development Sectio n A-A Sectfon 8-8 135 �7 .0 11 locust point neighborhood area description The Locust Point community is totally surrounded by the B & Ol e & a Railroad. The Railroad defines the boundary between the neighborhood and industrial land on all except the northern side, where road access has been maintained to service the industries. T he result is a pattern of mixed industrial and residential use with truck service to industry on local streets. Latrobe Park serves the Locust Point community, providing both active and passive recreational facilities for all age groups. The characteristic high-density row housing eliminates play areas in the immediate vicinity . Community representatives 136 would like to see Latrobe Park facilities expanded to include an open air skating rink and the devel· opment of children's play spaces within the neighborhood . Neighborhood commercial facilities are not adequately meeting the needs of residents. The neigh· borhood must rely upon facilities outside the immediate area for shopping and community activities. Residents have expressed a desire for neighborhood shopping faci lities within 'the Point'. Fort Avenue is a major local distributor serving the Locust Point neighborhood, the adjoining indus· tria l areas and Fort Mc Henry, The increasing volume of tru ck traffic on this street is clearly in con· flict with the residentia l environment and the street's function as an approach to a national monument. �development objectives I. MINIMIZE TRUCK TRAFFIC ON NEIGHBOR· HOOD STREETS Increased industria l activity in the area, resulting from construction of the expressway, will place an additional burden on Fort Avenue unless an alternative route for heavy truck traffic is provided. T he construction of an Industrial Ring Road linking Key Highway , McComas and the expressway wou ld allow the removal of virtually al l industrial traf· fic from Fort Avenue east of Lowman Street. Much of this Ring Road is in existence as a private street linking North Side Terminal to the Fruit Pier. In order to complete the link, some 1500' of new road would be required to link Key Highway along the north side of t he peninsula. The remain · der would also need resurfacing . 7.012 Present Truck Service There are two options for implementation of this proposal. T he street could be constructed by the M.P .A. as a private service facility. with advan tages of secu rity and the restriction of use solely to port-oriented operations. Alternately, it could be designated a public street and, being a continuous loop , could become part of the City 's central system, eligible for 50% Federal participation under the Topics Program. 7 .013 Proposed Industrial Loop Road 137 �2 THE PROVISION OF IMPROVEO ACCESS TO LOCUST POINT ANO FORT McHENRY Consistent with the removal of heavy truck traffi c from residential neighborhoods and the entry to Fo rt McHenry. more direct access to the Freeway witl greatly benefit both the residents o f Locust Point and visi tors to Fort McHenry_ As presently planned, traff ic between 1-95 and Fort Avenue will follow a circuitous and confusing route. Traffic leaving 1-95 would fol low exit ram ps to McComas Street. then turn north onto Key Highway. proceed under Fort Avenue. turn south on Lawrence Street, then east on Fort Avenue. Traffic from Fort A venue to 1-95 wou ld reverse this pro- ced ure. This local circulation pattern will increase safety hazards, impact th e residenti al quality of Street, and confuse visitors to the Fort McHenry national monument. T o avoid these problems, ramps could be built from Key High way to Fort Aven ue to provide more direct access. Tru ck traffi c could be proh ibited from Fort Avenue eastwa rd except for service and essen ti al uses. It is also contemplated that the landscaping of Fort Avenue would be en hanced and new street furniture introduced. The street could then function as a landscaped approachway to Fort McHenry. ADDITIONAL RAMPS TO FORT AVENUE BETHLEHEM 'e 1I1I1I111UIi/llIIIIIIIIIIIIIIIIIIII~ 1101 1111111111 138 7 .014 Improved Access from the Freeway to the Locust Point Community and Fort McHenry �3 JOINT OEVELOPMENT OF MAJOR RECRE · ATION FACILITIES ANO THE EXPANSION OF LATROBE PARK As noted in Section 4, Latrobe Park is the only significant public open space and recreational resource in the neighborhood. I t is an object of considerable community pride and affect ion. Depending on the specific roadway alignment chosen. the park will be affected to a greater or lesser extent by the construction of the freeway (see Section 5). If the northern alignment is chosen, not only w ill existing recreation resources be taken, but the level of the acoustical impact on the ad jacen t school and neighborhood will also be considerabl e. The recom mended sou thern alignment wi ll not displace any recreation facilities, but the visual and acoustical impacts o n both the park and the school, although less serious, will requi re remedial action. I I I LOCUST POINT NEIGHBORHOOD .. .. ,' ..... : • I Further study of the impact on the school fac il ity is recommended elsewhere in this report (Section 5), but it is clear from preliminary stud ies that protection for the park envi ronment could take the form of an acoustica l barrier constructed as part of the elevated freeway structu re, and the addition of landscape elements to the southern edge of the park . ~ I :' • . ··.... ·.. . .. " .. " . FORT AVE . CONTROLLED CROSSINGS l.ATROBE PARK EXISTING PLAY FIELDS [ 7 .015 In addition it is proposed that the lOBe and City respond to the stated plans of the neighborhood resid en ts and participate in the development of additional recreation faci liti es under the pro visio ns of PPM 29-1. SOCCER PITCH 1 INFORMAL PLAY AREA Latrobe Park Expansion 139 �The recreation facilities could be developed along the southern edge of the bank, in conjunction with the proposed landscaping and on the site currently occupied by the Fort McHenry Lumber Company immediately to the ~ast of Andre Street_ The lumber company appears certain to be relocated since federal regulations prohibit the storage or manufacture of inflammable material under interstate facilities. However, the freeway will pass over the site at an elevation of approximately 70 '--80 ' with a minimum of space required for column footings. - Specific facilities under consideration by the residents are an open air skating rink, a covered play area and additional ball diamonds. In conjunction with construction of the proposed industrial loop road (objective 1) and the provisional access ramps from Fort Avenue to Key Highway (objective 2), Andre Street could be closed to through traffic and become a service road to the nevoJ facility and the proposed neighborhood shopping center (objective 3). 140 7.016 -- • �4 DEVELOPMENT OF ADDITIONAL NEIGHBOR HOOD COMMERCIAL FACILITIES T he comparatively small size of the popUlation and isolation from the rest of South Ba lti more has restricted the growth of commercial facilities in the neighborhood. However, growing personal income, increasing num- bers of visitors to Fort McHenry and the proposed extension of latrobe Park 's forma l recreation facilities - the skating rink - could lead to in clusion of commercial faci lities in the redevelopment of the F art McHenry Lumber Company site. 141 �5 DEVELOPMENT OF SMALL SCALE LAND · SCAPE AREAS IN THE RESIDENTIAL NEIGH· BORHOOD The amount of physical rehabilitation required for individual houses in Locust Point appears to be small since the majority of the structures are in good condition. Effarts to upgrade and improve the overall environment should therefore be concen- trated in outdoor spaces - the street, playgrounds and public areas. The development of small scale landscape areas throughout the neighborhood would serve this and other needs. Firstly , they CQuid be designed and located at the edge of the community to form a buffer between industrial and residential uses. Secondly, they cou ld be located at strategic sites, perhaps at closed streets (where they would provide a natu ral element in an env ironment dominated by hard surfaces and harsh textures - concrete, steel , brick and perma stone). Thirdly , much needed preschool playgrounds could be provided nearby for young children and older people who presently must cross Fort Avenue to Latrobe Park. I 142 7.01 8 �"""","'~, ,, ,, ~. ,' " . . [" r '~H., I: • '1 . t.,••••••• ~ 'LAV ... "lA I 'I I I r r I LJ • • • .... ....... . · 'OT LOTS ~ ' . • .. • • . • ~ "'.'."- i ",I"",., T LI\Noac.o.',NO " !!~ ... I _ _ , 'LA'f"'R[jt.~ ?Ji TOt Lon .t: ~ I .... V ... U SOCCEII "'CH FORT AVENUE r I ~ ',,",liE _ _' _ , " ~, \ 7.01 9 Landscaping 7 .020 Recreation Facilities I I I 143 �6 RELOCATION OF N ON-CONFORMING USE S FROM THE NEIGHBO RH OO D A number of trucking companies and small industrial firms are in operation around the fringe of the residential area, particularly on the west and north. These operations, and partjcular ly the truck - ing terminals, generate considerable truck traffic along otherwise quiet residential streets and cause parking problems. They are, wi t hout exception, poorly maintained with large areas of open storage, junk, broken veh icle pa rts and unsu rfaced pa rking areas; in short, they are ugly, psychological ly depressing. and unacceptably close to the housing area. Residen ts of the area have proposed several zo ning changes which wou ld designate most of t he Locust Point neighborhood as a residential use district . Ad opt ion of t hese proposals wou ld be a necessary fi rst step in the phasing out of most of the ex ist · ing industrial uses. 7.021 144 ��a neighborhood development plan for the locust point community While the construction of Segment 14 will greatly benefit the development of industry throughout the corridor, the negative environmenta l effects on the Locust Point neighborhood will outweigh the advantages of increased accessibility for residents un less steps are taken to minimize noise and visual intrusion and to develop joint development projects relevant to community needs. Th e drawing opposite summarizes in graphic form the proposals outlined in this section, but it should be emphasized that the effects of the pro· posals are largely cumulative. Anyone of the concepts cou ld make a sign ificant contribution to the improvement o f the residential environment , but taken together they represent the basis for a con · tinuous communi ty developmen t program. A central objective of ongoing highway planning studies and city action in this area shou ld be the development, in conj unction with emerging community organizations, of a comprehensive program o f actions to strengthen and rehabilitate the neighborhood. Even though the construction of Segment 14 is not scheduled to begin until 1976, the jo int development planning effort leading to the fi nal Corridor Development Plan should proceed as soon as possible. Thi s wou ld permit implementat ion of jo int development projects which respond to ex isti ng and anticipated problems o f the Locust Point community well in advance of actual highway constructi on. 146 7 .023 �7 .024 Neighborhood Development PI an - Lo cust Point 147 �7.025 Newly Acquired M.P A. Sites mpa development proposals and the reorganization of containerization facilities T he MPA has recently acq u ired, for S3. million, 43 acres of land fro m B & OIC & 0 at the eastern end of the Locu st Point penin sula. The northern porti on o f th is land w ill form th e 'back up ' area fo r th e recentl y renovated Locust Po int Marine Termin al; the southern pa rt w ill be devel oped as a land fill project to provide a two berth conta iner and conven tiona l general ca rgo facil ity, and for the steel pier' displaced by the Inner Ha rbor Renewal Pro'ject. Both development areas will have direct access to the 1- 95 Harbor Crossing at McComas Street via the proposed industrial loop road. 148 �mpa and the growth of containerization I A factor contributing to M.P.A.'s decision to develop the south side for containerization was the increasing demand for container handling facilities and the gl owth of trans-Atlantic container traffic. Presently Baltimore's container hand ling operations are scattered throughout South Baltimore, located in relation to waterfront and I rail connections - Penn Central, Dundalk 1V1arine T er- minal, Sealand Terminal, Port Covington, and the proposed South Side Terminal. The development of the South Side of L ocust Point, concurrent with construction of the 1 95 Harbor Crossing, opens the opportunity for integrated planning of future container operations in the port of Baltimore. I I I I Completion of the 1-95 leg of the 3-A freeway system has two major impacts on port facilit ies. 1. It will pass close to, and provide access between all the major container handling facilities, present and proposed, in the Port. 2. It will provide direct access from these individual terminals to the metropolitan and regional area as wel l as to the whole Eastern Seaboard via 1-95. I I I To further capitalize on this lin kage, the Penn Central site in Canton/ Dundalk could be used to develop a centra l container stripping and stuffing facility to serve the major water, rail and road container hand li ng operators throughout the area . .I 7.026 149 �7.0 27 Illustrative Sketch (not neceua rily reflective of M.P .A:s future facility) southside container terminal ing the site area. Except for the extreme northwest corner, the MPA 's proposed container development area lies well to the south of the highway corridor. Development of the site, and access to the north side of the penin· sula, w ill not be affected by construction of the freeway . For instance, a massive two berth conta iner termina l, comprised of a container stack, consolidation shed, equipment maintenance shops, and ad ministrative offices, can be designed to efficiently handle four million tons of cargo per year, on a 29 acre site.· Put another way, the entire container throughput of the Port of Baltimore for 1969 could be handled through the South Side Terminal - without increasing the site area . However, it was noted that the back up area planned for new berths wil l be lim ited in terms of futu re expansion by the Fruit Pier to the east, and McComas Street and the B & Ol e & a tracks to the north . Recent technological developments in container handling have included a multi ·level stacking facility similar in concept to an automated parking garage. Such a faci lity may prove necessary in the future to accommodate increased throughput without expand · 150 • A report for Conlainet"porl Dellelopment Cor portlt ion prepared by Persons, Brinckerhof( Quade and DOugtM. Inc., New York �I I I I I I 7.028 15 1 �joint use of freeway construction fill Construction of the freeway, and especially the Fort McHenry Bridge, will provide considerable quantities of good quality fill material. The amount will be greatly increased if the anchor piers for the bridge are buried, in order to lessen their visual impact on Fort McHenry. Although the construction schedule for the freeway (starting work in 1976) will not allow this material to be used in construction of the MPA's South Side land fill project (due for completion 1972-3), the material will be available for other projects in the area. While the MPA itself could use the material at Hawkins Point it would be cheaper and more convenient to dispose of it in the immediate vicinity of the bridge construction sit e. Under these circumstances the MPA may con· sider expanding its development program, or another waterfront user, perhaps at Port Covington, could develop a project to take advantage of the situation. 152 7.029 �canton / dundalk industrial development The site is particu larl y attractive since it has fr ontage on to Newkirk and Clinton Streets, both of which have direct access to the freeway system. The Clinton Street access to 1-83 north avoids th e co ngestion around Broening Highway and O'Donnell cu t-off. I n Section 6, four major "development areas" were identified in Canton/ Dundalk. Of these only the Penn Central property falls within the highway corridor; but development of all four areas is The freeway passes over the southern portion of the "deve lopment area" at an elevation of 100' to 75'. There wi ll be footings for columns supporting the bridge structu re and the anchor pier, but spans of 300 feet are contemplated so that amp le room will rema in for the construction of buildings and the operation of industry under th e expressway. dependent to a greater or lesser degree on construction of the f reeway and completion of complementary Ci t y Cap ital I mprovement projects. penn central railyard development D As noted in Sections 4 and 6, there has been a discernible change in the attitude of railroad landowners over the past few years. Ind ications are that such large parcels of land will be coming into the land development market in the new few years. This site occupies a strategic location behind the Canton waterfront and the recently acqu ired MPA Piers 1 and 2. I I T he MPA has al ready pu rchased some land from Penn Central and 23 acres are on short term lease to U. S. Steel for assembly of section for the Bay Bridge. Under these circumst ances, it is likely that the whole site will be redeveloped before the end of the design period. In Sect ion 6 a number of land use projections were made for this site. All con temp lated a mix of water o ri ented faci lities - possibl e storage and warehousing w ith manufacturing industry. T he maximum development plan illustrated here en visions 70% industry including a container str ipping and stuff ing faci lity to serve the who le Port . 7.030 '53 �fort holabird redevelopment and broening highway industry The 240 acres made avai lable by the release of Fort Holabird will have a profound effect on renewal of industrial activity along both sides of Broen ing Highway_ The present users, chiefly Lever Brothers, American Standard, General Motors and Western Electric have all developed their existing sites to the fullest extent, and General Motors has already ex pressed interest in expanding its operation into Holabird. T he release and subsequent development of Fort Hol ab ird could lead to significant shifts in land use patterns, for instance - assuming that General Motors expanded across Broening Highway, the open vehicle sto rage presently located to the east of l ever Brothers would no longer be needed and could be made avai lable for industrial development. The development of Fort Holabird into an industrial park shou ld have as its objectives: 1. Provision of attractive sites for a high proportion manufacturing industry (since it provides greater tax revenue and more jobs than storage.) 2_ Development of an internal circulation system and major access points compatible with the new uses. 3. Mass T ransit stop on Dundalk Avenue. 4. Prevention of further po ll ution of Colgate Creek. 154 7.031 Fort Holabird Development Potentia l �... r----., , - .. I I " ._ "' L ____ J ........ •0''''' ... .,,, ".ct.", ~r·-~--'-----~ I , , I I : I I I I L_J ... ,. .""- ",, "".·,o""u' .u.. • • .......,,, .. ,,.. ,,.. ." ... ~,. 7.032 The City Planning Department is preparing a number of alternative plans for the development of Fort Holabird. Preliminary layout for an industrial park is published here. I Although projected employment is somewhat higher than that developed by UDCA in Section 6, the plan reflects the objectives outlined above and preliminary studies seem to confirm the inherent suitability of the site for industrial development. • The Mass Transit line locetion shown here is nOI an adopted roule. 155 �sealand container facility The present Sealand container facility is split between a 17 acre land fill site at the base of Newkirk Street and a smaller site at the intersection of Newkirk and Holabird Avenue_Expansion is limited by lack of storage space for containers but the Canton Company, from whom the present site isleased, intends to complete an ambitious 113 acre land fitl project adjacent to the present Sealand berth . However, the high cost of su itab le fill material, and the relati vely low level of industrial land uses in the area has made fill operations uneconomic for the present and the project is proceeding at a slow rate . In Section 6 the projected growth of economic activity following construction of Segment 14 assumed the acceleration of this project. A further stimu lu s could come from the construction activities themselves. The excavation for the bridge crossing of the Harbor will yield a considerable amount of fill material which could be conveniently and cheaply moved down Newkirk, or by rail car on Penn Central tracks to the Canton landfill project area. In the land use projections for this site, containerization has been assumed to be the predominant use in the " minimum alternative." However, with unequ alled access to 1 -95 via the proposed new city streets (Vail, Keith and Newgate). and the Newkirk ramps, together with water frontage and rail service, this land fill project could become a major location for either new in dustry or the expansion of surrounding users. 156 �7.033 fort me henry: joint development proposals for a national monument �introduction Fort McHenry is a national monument owned and maintained by the National Park Service of the U.S. Department of Interior. It is located at Whetstone Point. the eastern extremity of Locust Point. On this 43 acre site there are three structures: the Fort itself, a visitors center, and a maintenance building complex, as well as parking facilities and walkways. historic significance In the early development of colonial America, Baltimore served as a major commerce center. The geographic location of Baltimore at the interface between shipping from domestic and foreign ports and major routes to the North, West and South made Baltimore a strategic military objective. Protection of the Baltimore Harbor from sea attack depended upon control of Whetstone Point, and thus entry to the Inner Harbor. The War of 1812 placed Baltimore and more specifically. Fort McHenry in the annals of American History. After the occupation of Washington the next objective for the British was the control of the Chesapeake Bay and capture of the commercial center of Baltimore. The realization of this objective required both a land and sea attack. For the British to occupy Baltimore. their land forces needed naval support, which cou ld only be supplied if access to the Inner Harbor was gained. Thus. contro l of the Fort determined the final outcome of the campaign of 1812. Fort McHenry did not capitulate under the British bombardment. and a day later the British broke off the engagement. This battle marked the last time the British were 158 ever to attack American shores and the end of the War of 1812. At the Battle of Fort McHenry, Francis Scon Key , having waited out the bombardment in a truceship in the harbor, dedicated a poem to the victory. This poem in 1931 became the National Anthem. �description ··"".......m ... y .. , . .... y. •• , 00'" " .., - .. ~'HOtil. I 7.034 To the north and west of Fort McH~nry are large scale industrial buildings which dominate the Fort site. Bethlehem Steel, the Mary land Port Authority, a Coast Guard Station and a fire boat station lie to the north white the western boundary consists of the Southern States Corporation comp lex and vacant land which serves as an open storage area. These industrial sites with their open storage and structures make a harsh setting for the Fort. The issue of compatibi lity witt be compounded when the stated expansion programs of various industries are realized. Beth lehem Steel needs additional space to expand their dry dock faci liti es. An offer has been made to the Naval Reserve to acquire their site east of the present drydock facility. The Mary land Port Authority intends to expand thei r faci lities on both sides of the peninsula. In addi tion, the vacant site south of Southern States is planned as a storage area for imported steel. The remainder of the Fort McHenry boundary is defined by the Patapsco River and North West Branch of Baltimore Harbor. Both channels provide access for large ocean going vessels moving into the harbor. Pollution debris and liquid effluents disfigure the shore line. I 7.035 159 �Entry to the Fort presents a major prob lem in terms of its clarity, experience and competition with other users , since Fort Avenue functions as both the entry to the Fort and services the adjacent industri al operations_ For a visitor, the approach is arduous, using many different loca l streets, resulting in confusion and disorientation_ It is further devalued by the heavy truck traffic and congestion along the route. It is clear that a comprehensive approach to Fort McHenry's development is needed. To treat the Fort as an isolated project compounds and dupli cates the genesis of its present prob lems. Rehabilitation of South Baltimore, development of indu st rial uses, and construction of the expressway and Fort Mc Henry bridge become as im portant as the internal improvements of the Fort. national park service master plan-fort mchenry Recently , the National Park Service completed a master plan for the future use of, and improvements to, the Fo rt McHenry site. Their objectives and recommendations concerned internal improvements encompassing the restoration of historicall y significant features. Following is a brief summary of these objectives and recommendations. - the control of views, by screen planting vistas of industrial and harb or uses th at comp rom ise the integrity of the Fort. - the restoration of Whetstone Point to its 1814 setting as open farm land. - the acquisition and clearing of land north of the present Fort site. - the development of a landscaped scenic entry. 160 7.036 Present Fort Avenue Service �While the sp irit and inten tion of the Fort McHenry Master Plan is clear. the stated obj ectives appea r to be narrowly conceived and in the case of " - restoring Whetstone Point to its 1814 setting • • I I as open farm land" - hardly realistic. Moreover, the Master Plan is not clear as to the source of fu nd s needed t o imp lement the proposals. It is clear that the proxim ity of the proposed 1-95 freeway and the bridge crossing of the Harbor will change the background aga inst which the National Monument will be viewed. However , there exists legislative and adm inistrative powers to secure, through the use of highway funds and joint development concepts, add it ional design and landscaping provisions together w ith other compensato ry add itions to the Fort's presen t environment. Thus the effects of the bridge crossing can be minimized and the objectives of the Fort McHenry Master Pl an can be realized simultaneously. I I I 161 �design goals T he following goals can also be regarded as a series of design rules. Appl ication of these ru les is not intended to dictate one design solution but to provide a definitive framework for the achievement of the Master Plan 's objectives. 7.037 TO CLARIFY, ORAMATIZE AND ENHANCE THE EXPERIENCE OF APPROACHING THE FORT The essentia l objective is to provide a sequence of experience that prepares the visitor for the Fort and its setting. The route of the visitor to the Fort must be direct, reducing to a minimum the confusion and disorientation. His energies shou ld be channeled to anticipation of the Fort and not to his tour guide and the next turn in the road. The sequence of approach should control the visitor's views from Fort Avenue and develop a harmonious series of scales relating to his movement along the street. With sensitive landscaping, unattractive views can be screened while others can be reinforced and developed to enhance the approach to the National Monument site. 162 1 .038 View A - At Latrobe Park and Church �7.039 View B - Existing The integrated design of landscaping and street furniture /lighting, seats, curb details, sidewalk paving, etc.) along Fort Avenue should be used to create a scale more compatible with that found at the Fort McHenry site. The comprehensive plan for land scaping and street furniture along Fort Avenue should be developed in conjunction with proposals for the Fort McHenry site to provide continuity of design and to reinforce the sequential development of the approach to the National Monument. By building on the existing elements of Fort Avenue - Locust Point neighborhood, existing trees, Latrobe Park and small but significant changes in elevation - a dramatic approach could be designed . The crossing of Fort Avenue by the 1-95 viaduct marks the symbolic entry to Fort McHenry. 7.040 View B - At Soccer Field and Proposed Shopping Area To reduce the dominance of this large scale element, a simple, uncluttered engineering design has been suggested for the viaduct structure. 163 �Combined with this simp li ci ty , the 1-95 crossing occurs at a transition of views and experiences. The visitor w ill be aware of leaving the Locust Poin t neighborhood and entering a new setting whi le crossing the Fort Avenue Bridge. To the right and left are long views to waterside activities. but the main focus of attention w ill be down a slight gradient to the entry to the Fort. marked by a proposed ex tension o f the grounds and a land scaped entry. (Objec tive 2) Th e treatment of Fort Avenue should emphasize this two stage entry experience. Landscaping should frame the viaduct crossing through Locust Point while screening the app roacnes that parallel the street. At the apex of Fort Avenue bridge, the landscaping would disappear to the sides while the 1-95 viaduct wou id pass overhead, revealing an unobstructed view of the Fort and its entry, which will form the second stage o f the approach sequence. 164 7.041 View C - At Point of 1-95 Crossing �TO EMPHASIZE THE POINT OF ENTRY TO THE HISTORIC MONUMENT AREA Extension and redesign of the entry to the Fort site is an important element in providing a continuity of experience for visitors to the Monument. The present entrance is inappropriate for "the development of a monument area appropriate to the historical significance of Fort McHenry." The view from the Fort Avenue Bridge is composed of a large parking lot and open storage to the north, and to the south industrial storage tanks belonging to the Southern State Corporation. The actual gateway is dwarfed by surrounding industrial buildings and heavy trucks turning into the M.P.A. and Bethlehem Steel facilities. The Fort entrance should be extended to the eastern foot of Fort Avenue Bridge and brought under control of the Department of the I nterior as an extension of the present Monument grounds. There should be appropriate landscape treatment on both sides of the road to screen surrounding industry and control the sequence of views into the Fort site. 165 �It has already been proposed that the Fort Avenue access to Southern States Corporation, the M.P .A. and Bethlehem Steel Corporation be replaced by a special industrial loop road passing underneath the Fort Avenue bridge. Furthermore, part of the parking area immediately north of Fort Avenue will be required for the anchor pier of the Harbor crossing bridge. If access to the industrial uses were provided via the proposed new industrial road, land acquisition for construction of the bridge cou ld be extended from the present Fort gateway to the abutment of · Fort Avenue Bridge. After construction of the bridge , this R.D.W. land could be declared excess and transferred to the Department of the Interior under the provisions of P.P.M. 50·1 relating to the Federa l Highway Act: 1968. LAND ACQUIRED FOR HIGHWAY II.O.W. 7 .043 III' 166 7.044 '" " �TO OEVELOP A SEQUENCE OF ENTRY THAT CONTROLS, FRAMES AND ENHANCES THE EX PERIENCE OF THE FORT The extension of the park property greatly increases the degree of control that can be exercised over the visitor's initial view of the Fort and its immediate setting. It provides an opportunity to continue the development of the sequence of views that define the F art in a series of perspectives. Through the u se of planting and/ or earth berms, views can be contro lled by screening and framing. Pl an ting requires the least amount of site work but suff ers from varying degrees of transparency depending on the season. Earth berms requi re additional site work for fe· grading but considerable amounts of excavated fill and large scale ea rth moving machinery will be on hand during the construction operations. Large sca le earth forms will provide permanent con· trol of views and could be designed to more nearly sim ul ate the original pastoral setting of the Fort. 7.045 7.046 167 �TO OEVELOP BACKGROUNOS TO SET OFF THE FORT AND SCREEN UNDESIRABLE VIEWS Within the Fort there are two sets of environmental problems to be addressed. The first is to minimize the negative effects of surrounding industrial and shipbuilding activities. The second Is to accommodate parking and service needs of growing numbers of visitors within the confines of the Fort grounds, growth - and more parking wil l be required . This expansion could be accommodated on the U.S. Coastguard site which wi ll be under the bridge approach. The site wi ll be acquired for-R.O.W. and cou ld be declared excess, similar to the portion at th e entrance, and then transferred to the Department of the I nterior under the same legislative provisions. Since there is no visual protection to the east and south along the shore line, the major effort should be to screen the immediately adjacent operation on the north and west and to provide elements of an intermediate scale to ease the visual conflict between the Fort buildings and the surroundings. (See Goal 5) Tree planting and earth berms should be used to screen the immediate eye sores: The Naval Reserve Buildings, Bethlehem storage areas, Southern States and the proposed M.P .A. development of the old Southern States Co-operat ive pier. A continuous earth form from the entrance, extending out along the present shore line to the south west of the Fort could be created with fill material from the bridge construction process. (see diagram) The southern extension of th e earth berm would take the fo rm of a quai, planted and designed to screen a proposed steel storage yard. T he quai would also have a footpath, seats and landing facilities for boats to provide a new and dramatic view of the Fort and the outer Harbor. Within the site similar earth mouldings and planting tech niques could be used to conceal access roads, the ca r park and visitor service facilities from the Fort. It is clear that the number of visitors coming to the Fort is increasing. Completion of the expressway and improvements in the quality and directness of the access will probab ly accelerate 168 QUAI DEVELOPMENT 7.047 ��TO OEVELOP A HIERARCHY OF SCALES TO RE INFORCE THE VISUAL EXPER IENCE OF FO RT McHENRY Presently. the horizontal configuration of the Fort and its earth embankments compose a fragile scale to the viewer. The scale of the Fort is I Itt '\ contrasted by the massive industrial facilities surrounding the site and the long horizontal forms of the passing freighters. The result is a pano- rama of views that compete for the viewers atten· tion. Clearly, the organization of these dissimilar elements has compromised the Fort and its setting for the viewer. The 1·95 bridge, its size determined by the span to cross the Harbor and the need to allow big ships into Bethlehem Steel Corporation's ship repair yards, creates a scale complementary to passing ships and the huge industrial buildings on both sides of the channel. 7.049 In order to reinforce the visual experience of the Fort and to minimize the contrast between the Fort buildings and the surrounding structures, views from the site should be controlled so that only parts of the larger scale objects can be seen at one time, thus break ing up the outline and reducing the overwhelming, massive presence. Careful placement of intermediate scale buildings, earth forms and large trees close to the viewer will also help to achieve a visual order and com position more in character with the Fort. 7.050 170 �TO DEVELOP ADDITIONA L ACTIVITIES TO COMPLEMENT THE FORT WHILE PROVIDING FOR YEAR ·ROUND USAGE Access to the platform wou ld be by an elevator either inside the tower pier or running up the outside to provide a dramatica ll y changing sequence of views of th e Fort and the Outer Harbor. Presently, the historic site functions as a museum fo r the events of 1812 and because of its isola- In conjunction with the platform, restau rant facilities might be planned to take advantage of the vantage point. tion has only a secondary role in providing the on ly public open space with harbor heritage in the City of Baltimore. T here is great potential in this unique relationship of open space to harbor which could be developed without compromising the historic significance of the Fort. Such a development wou ld contribute to the present rena issance in pub lic interest for Baltimore's ha rbo r heritage . The recent acceptance of Federal Hill onto the National Register of Historic Places, the successful Fell's Point Festival and the proposals fo r the development of the I nner Harbor with pub- lic access to the water are all indications of a renewed interest in development of the Harbor as a major recreatio n resource. Construction of the main tower pier for the bridge at approximately the present location of the Coast Guard building will provide the opportunity fo r a boat landing which could be the terminus for a water taxi con necting Fo rt McHenry with Fells Point, Federal Hill and the Inner Harbor Redevel opment Project. Such a devel opmen t could be linked to the expanded car park and visitor facilities proposed in the goal. Construction of the bridge itself affords an opportun ity to provide an observation platform 400' above the harbor on top of the tower pier. From this platform, the viewer wou ld have a unique view of the Fort , emphasizing its star form layout, a panorama of the Outer Harbor from which the British bombarded Fort McHenry . and extensive views of the City, I nner Harbor and Charles Center. 171 �TO LOCATE AND DESIGN THE FORT McHENRY BRIDGE OPTIMIZING ITS RELATIONSHIP TO THE FORT SITE The location and concept of the bridge structure were chosen to optimize its relationship to the Fort, consistent with engineering constraints and the needs of other adjacent landowners. The alignment does not cross any part of the Fort property and is located as far north of the Fort buildings as possible without encroaching on the operation of Bethlehem Steel Corporation's Dry Dock. As mentioned before, the tower piers are located behind the bulkhead line so as not to impede navigation. No shadow from the bridge will fall on the historic site and the nearest po int to the Fort buildings will be approximately 1000' or three city blocks away. The recommended concept for the bridge employs a double decked structure. By placing the east bound lanes over the west bound the total width of the roadway is halved, producing a thin sil houette against the skyline. By placing the main stiffening truss between the roadways rather than underneath , the slim profile has been further emphasized. The anchor piers for the main suspension cables have been moved away from the Fort property and could be wholly or partly buried. The design goals have been to produce a safe, economic and graceful structure w ith the emphasis on a slim silhouette and simplicity of detailing. 172 ��alternative development plans Two Development Plans have been put together using the 'design rules' described above. They can be regarded as minimum and maximum al ternatives with Scheme A requiring considerably more investment than Scheme B. The land acquired for developrnent of the Fort McHenry site as Alternative A is approximately 8 acres, with both the Naval Reserve and Coast Guard properties reverting to the Fort after con struction of the bridge. Extension of the entry to the base of the Fort Avenue bridge would require pu rchasing the ex isting parking lot and a right-ot-way strip along the northern edge ot Southern States, totaling 1- 1/2 acres. Th e joint development site for the observation platform and parking lot south of the Fort covers approximately 6- 1/2 acres. I I ALTERNATIVE DEVELOPMENT PLAN A Alternative A uses earth berms for screen ing industrial sites from visitors and framing views of the Fort. On crossing Fort Avenue Bridge, a major berm develops from the southern abutment and continues to the eastern end of the Southern States property. This berm termi nates in an open plaza which frames a view to the Fort, provides a termination to the historic trace, and may be used as a ceremonial area. By extending the trace to the open plaza, a new element is added to the experience of the Fo rt. NAVAL RESERVE PROPERTY TO FT. McHENRY A second berm develops from the plaza and parallels the relocated road to the parking lot. This berm screens views from the Fort of autos entering the historic site. BETHLEHEM ----------_._-/) BRIDGE 70' TO 100' ELEVATION The approach road terminates in a new parking facility located out of the historial site area -95 and under the 1 bridge. In conjunction with the relocated parking facility, the proposed observation tower lobby would be located at the foot of the main pier and a new bulkhead developed for the ferry boat terminal. The northern side of Fort Avenue is heavily land scaped to provide the visitor with a framed view of the Fort and to screen out the industrial facilities. 174 , CO,," GUARD PROPERTY STEEL PIER 7.052 Property Disposition Map I �o 7 .053 175 �ALTERNATIVE DEVELOPMENT PLAN B A lternative B uses landscaping for screening and f raming views. Upon crossing the Fort Avenue bridge, the approach w ill be planted on either side to screen views of industrial facilities. The existing road will be maintained to the base of the existing historic tract where a circle will provide the termination to the main entry road. A new parking access road will connect the cir'cle to the enlarged and relocated parking facility. As the viewer approaches the ci rcle, along Fort Avenue, the plantings w il l frame a continuously expand ing view of the Fort. Both 'the observation deck at the base ot the main bridge piers and ferry boat mooring would be developed in conjunction with the parking lot. These facilities would be screened by the tree line northeast of the Fort. The tree line also serves as background for viewers upon entry to the Fo rt. A lternative B requires acquisition of approximately 3- 1/2 acres of land for development. In this al· ternative the land acquired fo r construction of the bridge is split up and the area presently occupied by the Naval Reserve building could be turned over to Bethlehem Steel Corporation in partial compensation for inconvenience caused by taking the air rights over their steel storage yard. NAVAL IIESERVE PlOPElltTY TO BETHLEHEM STUl BETHLEHEM STEEL EX ISTlNG '''=::::---::::::C;:; ; ENTRY 7 .054 176 Property Disposition Map �o 7 .055 177 �I I g NEXT STEPS �introduction I Although the Concept Team's contractual planning responsibility for Segment 14 ends with the publi· cation of this report, the initial joint development and roadway design concepts presented here will be developed further by the Interstate Division for Baltimore City and its future highway planning consultants. This additional planning effort would be consistent with the basic thrust of the comprehensive highway corridor planning and development policies of both the Federal Department of Transportation and the City of Baltimore. The preparation of a detailed corridor development plan would also allow Segment 14 to be treated to the same degree as Segments 1 to 12 of Baltimore's Interstate System, and would serve as a guide for future public and private investment in the area. 179 �corridor development phasing demonstration projects Certa in elemen ts of t he projected develo pment with in the Segment 14 co rrid or can proceed independentl y o f highway co nstructio n, fo r example , Locust Poin t resident ial areas and Fo rt Mc Henry Since there is often a time de lay between the time a highway corridor is identified and planned and th e time highway construction actually begins, an o pportunity ex ists to undertake certa in jo int development projects in advance of highway constru ction . The prima ry advantages of th is early phasing of joint devel o pm ent would include: approachway. Other developmen t is, to a greater o r lesser degree, deper1den t upon firm d ecisions regarding highway location and design, either because investment decisions are d irect ly t ied to increased 1. h ighway accessibil ity. o r because of its possible location within or contiguous t o th e h ighway r ight -at -way. 2. In order to eva luate the impo rtance of the time element in the phasing of corrido r development, the chart lists the actions which normall y f oll ow the Point 3 review process. Associated with each future actio n is a b rief desc ri ption of the types of development w hich m ight fo llow. Thus, each of the actions listed is a necessary pre requ isite for the developmen t o f the projects identified in Section 7 of th is repo rt. It can be seen t hat t he t ypes o f deve lopment which can proceed immediatel y tend to be "costs" to the City. T he benefits are real , but in te rms of increased tax yie ld o r expanded jo b o ppo rtun ities, returns are min imal. Conversely, the type of projects w hich can occur only aft er roadway fi x, o r the com mencemen t of h ighway construct ion, tend to provide the greatest benefit to the City in term s of an ex panded industrial base, growth of tax revenues, and crea ti o n of new employment o pportunities. I n sho rt, the greater part of the economic " payoff " o utli ned in Sectio n 6 of th is report is dependent upon a t imely completion of the Segment 14 plann ing and construction activit ies. 180 all ay ing the fe ars of loca l residents that the highway will be sol ely a destructive force on the community and providing repl acement fac ilities-such as housing, shops, schoo ls, pa rk s, etc. -befo re existing faci lities are d isp laced . Th e Locust Point Community and the Fo rt Mc Henry Natio nal Monument are two areas where early phasing of jo int deve lopment wou ld be appropriate, since the greater part of the preliminary jo int development concepts out lined in this report for these locatio ns could be implemented independently of highway construction. Completion of these projects at an early date would permit a fulle r realization of the benefits of eventual highway construction. In o rder to facil itate t he implementation process, it wou ld be helpfu l for the Federa l Highway Adm inistrat ion to give advance approva l to such projects as cou ld be funded in part as part of the eventual highway construc tion/ joint deve lopment cost . �,_ 0'" ... _--,,,"--, _ ",~A8,,"A'1OOI _'"'_"'t..,,_ ,~ ' ... eo..-._ .. _"' ...... _ I", ~" ___ __ .. "OO"...:>oo R'~""'''' AttO/< .. _"" "'-" 07" .... , " , -•• t " _ _ . _.... ---"--- ... T "~ - " , .. _ " , _ 0 0 - """.'..... _0. . 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".", .... . . ,tI....-tf-.............................................,I-..................................................-tf-......................................................................-If.......................--I i'~~' "~""-' ~ II .......... . ".. . _ . .. ___, ._ " - , ...... ,.".,.......... _ _ .. "' ............... _!tII_~ . __________ _ ________ _ ____________________________________ ~~................................................- ---................................4_........___I_................................................~................----I ~- --~ "~' .....-, . "--, . . . . __ ........ _.1_.. . . __. . . .-......-.,. ............ .,."._ , ,.... ~ ~ ~"' r ....... _ _ ........... _ _ d . . . ' _ . ' . . . . ...... " ' . _ _ _ • • "' , I �condemnation corridor The early determination of a road fix and subsequent community review would: 1. 2. Provide a basis for publ ic and private investment decisions in t he corridor; Acquire potential joint development sites for early development in line with the recommen - dations noted above. In order to acquire these sites, a condemnation ordinance, approved by the Mayor and City Council, will be required. Such an ordinance should differ from previous highway condemnation practices in that it should cover, in addition to land required for the highway rightof-way, land required for the execution of joint development projects associated with the freeway. In effect, it should be a "corridor development condemnation ordinance"_ The rationale underlying this recommendation has been articulated in several recent Congressional studies of the Federal -aid Highway Program: "Additionally, use of Federal -aid funds by the States should be authorized for aCljuisition of property beyond the highway right-of-way lines where necessary for the undertaking of a joint development project; such funds to be recouped from the ultimate land user at a later date. """ Recent proposed amendments to the Federal-aid highway legislation incorporate this extended joint development concept, and it is anticipated that some form of comprehensive federal joint development assistance will be made available to State and local governments in the near future_ Baltimore will be in an excellent position to utilize such assistance if the basic corridor development planning is completed, since it appears that the City of Baltimore is empowered by the State Assent Act (Secticn 76 of Article 89B of the Annotated C(Mje of Maryland) "to do any and all acts and things necessary or desirable to comply with the terms, conditions and provision and to obtain the benefit of the provisions of the Federal (H ighway) acts." It is recommended that the applicability of this act should be further examined by the City Solicitor and the Counsel's office of the newly established Maryland Department of T ransportation. "The improvement of our cities is a national goal of high priority, the achievement of which requires, among many things, the planned integration of transportation facilities with all other elements of the urban environment. "In this joint development concept, nonhigh way activities such as housing, business, park ing, recreations, and a variety of others are located in airspace above or below the highway or on land adjacent to it. The designs, both spatial and structural, for both the highway and the nonhighway elements are developed in close coordination, with a view toward achieving functional compatibility and environmental and esthetic harmony, and overall economy as we l l.~ 182 '1968 High wav Needs Report • "\968 High way Need s Report, Supplement • • �industrial development corporation As outlined in Section 6 of this report, construction of Segment 14 can lead to a massive increase in the amount of public and private investment in the corridor. Certain investments - particularly investment in public service operations, such as port facilities, local street improvements and utility lines - will have a cumulative effect , leading to the development or expansion of economically linked manufacturing or distribution firms. I In order to achieve maximum investment, and a corresponding increase in employment opportunities and tax yield, the establishment of an industrial Development Corporation is recommended in Section 6 of this report. The formation of this corporation should proceed without delay, so that it can become integrally involved in subsequent planning, design, and review efforts, and eventually in the implemen tation of I ndustrial Joint Development Projects. I I 183 � Dublin Core The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/. Title A name given to the resource Movement Against Destruction Description An account of the resource This exhibit examines community opposition to expressway construction in Baltimore during the 1970s through the organizational records of the Movement Against Destruction (MAD). Founded in 1968 as a coalition of 25 neighborhood and community groups, MAD's leaders included George and Carolyn Tyson, Barbara Mikulski, Walter Orlinsky, Norman Reeves, and Parren Mitchell. The complete MAD collection at the University of Baltimore consists of 9 linear feet of records, which are described in an online collection database. The complete collection has also been digitized at the folder level and is available in this guide. For this exhibit, 32 documents have been selected from the complete collection. Creator An entity primarily responsible for making the resource <a href="http://langsdale.ubalt.edu/special-collections/" target="_blank" rel="noreferrer noopener">Special Collections &amp; Archives, University of Baltimore</a> Source A related resource from which the described resource is derived <a href="https://archivesspace.ubalt.edu/repositories/2/resources/80" target="_blank" rel="noreferrer noopener">Movement Against Destruction Records</a> Publisher An entity responsible for making the resource available <a href="http://langsdale.ubalt.edu/special-collections/" target="_blank" rel="noreferrer noopener">University of Baltimore Special Collections &amp; Archives</a> Date A point or period of time associated with an event in the lifecycle of the resource 1968-1983 Rights Information about rights held in and over the resource Use of these images is governed by U.S. copyright law. The University of Baltimore Special Collections and Archives makes digital surrogates of collections accessible if they are in the public domain, the rights are owned by the University of Baltimore, the Special Collections and Archives has permission to make them accessible, or there are no known restrictions on use. Due to the nature of archival collections, rights information is not always discernible. The Special Collections and Archives is eager to hear from any rights owners wishing to provide accurate information. Upon request, material will be removed from view while a rights issue is addressed. Contact the Special Collections and Archives for more information regarding this image. Format The file format, physical medium, or dimensions of the resource text/pdf Language A language of the resource English Type The nature or genre of the resource Text Identifier An unambiguous reference to the resource within a given context R0062-MAD Date Created Date of creation of the resource. 2019-09 Extent The size or duration of the resource. 32 documents Subject The topic of the resource Express highways Maryland--Baltimore Urban renewal Highway planning Community activists Text A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text. Original Format The type of object, such as painting, sculpture, paper, photo, and additional data Paper Dublin Core The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/. Title A name given to the resource I-95 Harbor Crossing Corridor Study Description An account of the resource Point III report for segment 14 of the interstate highway system in the City of Baltimore, prepared by Urban Design Concept Associates; Skidmore, Owings & Merrill; J.E. Greiner Company, Inc.; Parsons, Brinckerhoff, Quade & Douglas; and Wilbur Smith & Associates Date A point or period of time associated with an event in the lifecycle of the resource 1970-09 Subject The topic of the resource Express highways Highway planning City planning Transportation consultants Inner Harbor (Baltimore, Md.) Creator An entity primarily responsible for making the resource Urban Design Concept Associates, et. al. Publisher An entity responsible for making the resource available University of Baltimore Special Collections & Archives Type The nature or genre of the resource Text Format The file format, physical medium, or dimensions of the resource application/pdf Identifier An unambiguous reference to the resource within a given context mad05.02.02 Source A related resource from which the described resource is derived Movement Against Destruction Records, series 5, box 2, folder 2, Special Collections & Archives, University of Baltimore Rights Information about rights held in and over the resource Use of this digital material is governed by U.S. copyright law. The University of Baltimore Special Collections and Archives makes digital surrogates of collections accessible if they are in the public domain, the rights are owned by the University of Baltimore, the Special Collections and Archives has permission to make them accessible, or there are no known restrictions on use. Due to the nature of archival collections, rights information is not always discernible. The Special Collections and Archives is eager to hear from any rights owners wishing to provide accurate information. Upon request, material will be removed from view while a rights issue is addressed. Contact the Special Collections and Archives for more information regarding this image. City planning Express highways Highway planning Inner Harbor (Baltimore Md.) Transportation consultants