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New orleaNs master plan aNd comprehensive zoning ordinance | March 21, 2009

executive summary

Yesterday, today, and tomorrow. Despite the oil bust’s lingering effects and Hurricane Katrina, New Orleans stands poised for a period of sustained growth. While the city’s population decline—from 630,000 in 1960 to 480,000 in 2000—claims attention, the real

story lies in the number of households, which is closely tied to demand for housing and economic conditions. A decades-long trend toward smaller families and more single-person households across the U.S. kept the number of New Orleans households roughly constant until the oil bust in the mid-1980s. From that point the number declined until the mid-1990s, when it began to rise. “Moderate” projections suggest the city’s population will grow from roughly 335,000 today to slightly more than 400,000 in 2030, but that the number of households will grow by 25% to 35%, meaning that demand for housing should reach or exceed 1980 levels by then. The number of jobs in the region should also rise by 25% to 35% over the same period, leading to stronger demand for workers than at any time since the oil bust.

This document summarizes the work of a broad cross section of New Orleanians who began last fall to frame a vision for their city in 2030 and to define the tools they would need to get there. Unlike past plans, this one

reinforces its vision with the force of law and has brought citizens together to shape a common agenda for each neighborhood and for the city as a whole. The plan builds on the city’s strengths to help it grow toward a bright and fully achievable future that leaves no resident behind. Moving into that future starts with a mix of old and new ways of thinking about New Orleans. This plan points the way by making clear how:•preservingthepastspursinnovation;• protectingthecityfromfloodingsetsthestageformoreinclusiverebuilding;

• growthcanteardownwallsofrace,income,andneighborhood;

• revitalizationcanbenefiteveryneighborhoodandincomelevel;and

•broadparticipationcansetthecityona course for more effective government and move the community forward together.

Key PrinciPles of the Planthree principles underpin this plan and reflect the city’s mission: > encourage economic

growth.> Use new growth to

bring new orleanians back from the diaspora to good jobs, good housing, and good quality of life.

> Draw new residents to the city, bringing new investment and jobs.

2 | execUtive sUmmary

Current trends present challenges and opportunities. After decades of lagging regional and national levels, the city’s median household income has jumped roughly 40% since Hurricane Katrina—two to three times faster than “comeback” cities like Memphis and Baltimore. This gain illustrates the ongoing challenges of addressing storm-related displacement and new opportunities facing amenity-rich cities: 10% of the city’s current population has arrived since 2005. Despite the post-Katrina losses, New Orleans maintains its rich diversity: the population stands at roughly 60% African American (a slight decrease from 2005), 30% white, and 10% other groups (largely Asian and Hispanic). Across the board, New Orleanians have demonstrated a profound commitment to returning to the city and working hard to build its future.

What is the master plan and comprehensive zon-ing ordinance? The plan documents the work under-taken by a broad cross section of the New Orleans com-munity to frame a vision for the city in 2030 and to spell out the policies and strategies needed to achieve that vi-sion. Zoning translates the plan into land-use regulations that capture the letter and the spirit of the plan.

Who benefits from this master plan? Everyone. This plan addresses the needs and aspirations of every resident in every corner of New Orleans and every former resident who wants to return. The plan should take this stance because it is being prepared for a humane and caring community; it can take this stance

Orleans’s competitiveness as a place to live, work, invest…and pay taxes. Once divided by competition over a “shrinking pie” as the city lost people and jobs, New Orleanians can now work together to nurture growth and share its benefits.

How is this master plan different from earlier plans? Last November’s charter amendment—which produced a tough, thoughtful debate—makes this the first opportunity New Orleanians have had to come to-gether as a community to chart the city’s future with a plan that has the force of law. Zoning, capital planning, and key city policies must align with the plan, remov-ing much of the uncertainty that dogged earlier plan-ning efforts.

How does this master plan relate to earlier plan-ning? The city completed portions of a master plan be-fore the storm, and that work has been integrated into this master plan. New Orleanians began recovery plan-ning in late 2005 with a series of “ground-up” initia-tives that drew citizen participation unprecedented in both numbers and diversity of participants, producing notable district and neighborhood plans, and a remark-able community-based agenda for recovery. The Office of Recovery and Development Administration drew on this agenda to forge its rebuilding strategies. The dis-trict and neighborhood plans form an important foun-dation for this citywide master plan.

Why is it important to create a master plan now? A majority of residents have returned; the city’s finances have stabilized; and New Orleanians express a greater sense of shared destiny that is bringing people together across racial, economic, and other long-standing lines of

because every city neighborhood will be safer after completion of the Army Corps of Engineers’ work in late 2011 and because the plan focuses on New

new orleans master Plan and comPrehensive zoning orDinance | 3

difference to collaborate in planning. New Orleans also has a potential for growth not seen in at least 50 years. The city’s “turn” has come—and here’s why:

• Enhancedresilienceinthefaceoffuturestorms.When the Army Corps’ improvements are finished late in 2011, New Or-leans will be far better protected against flooding. It will no longer be a city of “wet” and “dry” neighbor-hoods, but one in which every neighborhood can look forward to a brighter future.

• DemographictrendsnowworkinNewOrleans’sfavor.America has entered an era of urban renaissance. The share of Americans who want to live in walkable urban neighborhoods will grow for the next 15 to 20 years. Jobs will follow the people who have the skills to do these jobs, and these people are increasingly choosing amenity-rich mixed-use communities like the New Orleans outlined in this plan. The group CEOs for Cities identifies 25- to 34-year-old Americans, so-called “Millennials,” as the barometer its members track when they look for cities in which to invest, and creative young people are increasingly seeking urban neighborhoods rich in culture and diversity—like those in New Orleans.

• Aneconomicbasethatleavesthecitywellposi-tionedasAmerica’seconomyrecovers.New Or-leans’s constellation of emerging and new indus-tries, its stake in energy and trade, and its high de-gree of amenity should enable the city to compete for the skilled entrepreneurs that will drive prosperity after the recession.

What the community said. The planning team reached out to neighborhoods through tours, meetings, and district gatherings; organized citywide working committees focused on concerns such as housing, sustainability, and economic opportunity; and held citywide forums in different parts of the city. Advisory committees brought together people to examine zoning, community participation, and a vision in the light of both neighborhood needs and broader issues.

Neighborhood leaders asked the team to help them make sure that citywide plan would speak to the goals of individual neighborhoods. A process that began with repeated protests of “planning fatigue” ended with a level of participation that would be remarkable in any city and a firm declaration that people wanted to be involved—and to stay involved.

Can the master plan make a difference? A 20-year horizon may seem far off, but the plan identifies tools that New Orleans can start using today to build real partnership between neighborhoods and the city; to undertake forward-looking planning supported by district planners; to assemble land innovatively; to coordinate capital planning; to forge a direct working relationship with the federal government—in short, to begin enhancing opportunity, quality of life and sustainability across the city:


• Unlocktheabilityofmarket-ratehousingdemand (10,000 to 25,000 units over five to seven years) to reclaim blighted and vacant sites left behind by stagnation and storms in neighborhoods wet and dry.

• ReplacetheI-10ClaiborneExpressway with a tree-lined urban boulevard that brings adjacent neighborhoods together.

• Buildaneconomyofcutting-edge“industriesofthemind” like life sciences, creative entrepreneurs, and green businesses that complement the port and tourism and provide opportunity across the economic spectrum.

• Launchmorethan$1billioninredevelopmentto remake the Earhart Boulevard corridor; build shopping centers in New Orleans East; build on the Convention Center expansion site; and turn other “opportunity sites” into lively “urban villages.”

• Takeadvantageofrenewedeconomicopportunityto meet the community’s needs for affordable and workforce housing, parks, schools and libraries, job training, cultural venues, and similar elements of livability.

• Introduceasignaturepublic-spacesystemof“blueways”—landscaped open canals, rain gardens, and urban wetlands that celebrate water, reduce flooding in neighborhoods, and add to New Orleans’s beauty.

• MakeNewOrleansthemasterofitsownfateand an international leader in developing techniques for adjusting to global climate change.

Getting started begins with a mix of new and old ways of thinking about the city.• Preservationspursinnovation. New Orleans’s rich

history, cultural traditions, and walkable neighborhoods will become increasingly valuable assets. With effective economic development, planning and strategic public investments, these assets will attract investment and jobs in emerging creative industries and technology.

• Environmentalsafetymeansinclusiveness. New Orleans will be safer from flooding after 2011. The city can turn now to using innovative land assembly and other tools to bring every neighborhood back.

• Growthandequitygohandinhand. A city with a stagnant economy has seen its poverty rate drop from more than 20% in 2000 to 15% today. Instead of fighting over a “shrinking pie” as the city lost jobs and households, New Orleanians now can share the benefits of growth—and forge a common will across lines of race, income, neighborhood, and other dividers in order to make the tough decisions that unleash growth.

• Growthunlocksrevitalization. After decades of losing households, New Orleans has begun to grow, with potential demand for 10,000 to 25,000 new market-rate housing units over the next five to seven years. Planning, strategic land acquisition and quality public services can translate this demand into reclaimed neighborhoods.

• NewOrleansisreadyforaneraofeffectivenessandachievement. Some question how, after decades of stagnation and an unparalleled natural disaster, New Orleans can succeed. The city can take advantage of a new era of opportunity to build on the courage people have shown in returning and rebuilding to forge the kind of shared political will that empowers effective government and moves a community forward together.


master plan and zoning recommendationsThese four elements are essential to capturing New Orleans full potential—but only when implemented together. Like pieces of a puzzle that interlock to form a complete picture, none of these works without all of the others.

Enhance New Orleans competitiveness for the jobs and investment essential to a city committed to exceeding national median income levels, building a strong tax base, and extending economic opportunity to all.

How

we

pros

per

• Support the New Orleans Economic Development Council (EDC) with the resources it needs to address the opportunities and challenges that specific industries face:> Established industries. Assist the tourism

industry in maintaining marketing funds during a slow economy, accelerating destination projects (e.g., the Canal Street performing arts district), and supporting cultural organizations and workers to build higher-value cultural tourism. Assist the port in obtaining funding to enlarge container-handling and other facilities to capture the benefit of the Panama Canal’s widening and to expand value-added processing and distribution, which can create more jobs. Assist aerospace and shipbuilding industries in leveraging research capacity and industrial know-how to attract employers and train skilled workers. Assist the energy industry in keeping high-paying, skilled jobs in New Orleans, in part by promoting quality of life.

> Emerging industries that have already begun to grow. Assist the biomedical industry through planningleadershipfortheMedicalDistrict;support spin-off development by working with public and private investors to promote risk-capital formation and provide entrepreneurial support and incubator facilities. Assist film/video, digital media, and other creative industries in attracting talent, in part by supporting creation of cutting-edge facilities and by making start-up capital available.

> New industries for which New Orleans can compete. Assist renewable energy, sustainable building, coastal protection and restoration, and similar companies by advocating for university-based research, marketing the city, providing entrepreneurial support, and attracting start-up capital.

• Create and annually update a comprehensive economic development strategy to insure that all levels of government understand the needs of businesses.

Follow a comprehensive

approach that avoids “silver

bullets”

Core goal How to start reaCHing tHis goal over tHe next five years


How

we

pros

per

• Launchanew generation of workforce training and readiness programs for people of all ages as a partnership among government, nonprofits, and local universities.

• Target small-business assistance to qualified people of all incomes.

• Foster partnerships between industries and schools to help young people prepare for productive careers before leaving school.

Reduce economic disparities


• Adoptarehabilitationbuildingcodeandaggressivelypromotehistorictaxcredits and other incentives to promote higher-value reuse of historic and older buildings.

• AssemblelandalongLoyola/SouthRampartStreet and elsewhere to promote more active and productive use of parking lots and other underutilized parcels.

• WorkwiththeCanalStreetDevelopmentCorporation and the Downtown Development District to accelerate revival of the theatre district.

Support downtown as

the city’s economic

engine

• Remove unnecessary obstacles that hinder job creation.• Set clear standards, including design guidelines, that insure that new

industrial and other uses will respect nearby neighborhoods and other businesses…and reduce the need for conditional zoning that hampers the city’s ability to compete for new employers.

• Create incentives where appropriate to promote public interests.• Tailor zoning to support the opportunities and reinforce the character

and quality of centers of economic opportunity, including downtown, the Medical District, and emerging areas of investment such as New Orleans East and the Earhart Corridor.

Use zoning to promote jobs

and development—

in part by insuring they will be good

neighbors

• Build a strong collaborative relationship between the EDC and organizations that support neighborhood commercial districts and small businesses.

• Establish programs to nurture neighborhood-based entrepreneurship, including innovative retail, arts, services and other businesses.

Support programs that

nurture opportunity in

neighborhoods


Enhance quality of life in ways that improve the lives of people of every livelihood and from every neighborhood and that honor the city’s rich heritage as a foundation for a still richer future.

How

we

live

Enhance neighborhood

livability and character


• Focusonrehabilitation and redevelopment of blighted and vacant sites. • Accelerate resettlement of neighborhoods with innovative land assembly andbypursuingoptionstoclosethegapbetweenRoadHomereimburse-ments and the actual cost of rebuilding owner-occupied and rental housing.

• Achieve densities that provide the critical mass needed to support local commercial dis-tricts, parks, schools, and services, creating new transit-ready centers and focusing development at transit hubs—all built with design that rein-forces neighborhood quality and character.

• Create a NOLA Housing Trust Fund and an advisory committee and take similar steps that put the city in control of how and where it provides affordable/workforce housing, so that it can meet the needs of lower-paid workers, people in crisis, and others.

• Address “nuisance businesses” and properties that put neighborhoods at risk.

• Fostercreationofa network of high-capacity neighborhood CDCs.

• Remove the I-10 Claiborne Expressway.

Approach preservation as

a valued resource for a

living city

• Movefroma“curatorial”approachtoonethatviews historic character as a valuable contributor to contemporary life and that recognizes preservation’s central role in cultivating the unique identity of individual neighborhoods, building economic opportunity, and revitalizing lower-income neighborhoods.

• Create an innovative historic preservation plan for a living multicultural city.

• Createacombined city Parks and Recreation agency with dedicated funding to help the city> achieve no net loss of park land and provide

a park within walking distance of every resident;

> enhance the character and environmental qualityofparksandneutralgrounds;and

> program parks to attract people of diverse ages and backgrounds.• Restore and enhance the city’s urban forest—for beauty and for

environmental benefits.• Create greenways connecting neighborhoods to community destinations.

Create a green framework of sustainability

and community


Create new centers for

community life


• Integrateservices into places that are central to neighborhood life:> Strengthen partnerships between the city and socialserviceproviders;and

> Co-locate libraries, health/wellness centers, cultural centers, and similar facilities.

• Insuretheavailabilityoffreshfood,encouragewalkability, and take other steps to promote healthy living.

How

we

live

Use zoning to reinforce

character and quality

• Insure that infill development is compatible with established neighborhoods and preserves unique qualities that enrich each neighborhood.

• Foster walkable, mixed-use redevelopment of opportunity sites and corridors at densities that support vitality, with a variety of housing choices and guided by design standards that insure compatibility with nearby neighborhoods.

• Tailor zoning to support the unique character of neighborhood commercial districts.

Make New Orleans the master of its own fate: build resilience in the face of global climate change, the ability to chart the city’s transportation future, the capacity to fix and harden old infrastructure, and other elements of a more sustainable future.

Sus

tain

able

sys

tem

s

Enhance New Orleans’

resilience in the face of changing

global weather patterns


• Expand the Department of Environmental Affairs into a nationally recognized center of knowledge and advocate for the region and other low-lyingriversidecities.Initialstepscouldinclude:> adopting a comprehensive approach that

acknowledges the role that preserving and restoring wetlands, armoring the city, and hardening infrastructure can play in protecting the city and the region

> identifying how individuals, neighborhoods, and every level of government can contribute to increased resilience

• Preserve wetlands inside and outside the leveestoreduceneighborhoodflooding.

• Elevate houses above projected 500-year flood levels—generally three to six feet—following the 2011 completion of levee reconstruction and related protection efforts.


Use transit to promote quality

of life and economic

opportunity

• Add a transportation planner to the CPC staff toframeopportunities;undertakeconceptualplanning;prepareapplicationsforstateandfederalfunds for feasibility, alternatives, andotherstudies;coordinatewithotheragencies;briefcityofficials,and take on similar tasks that unlock progress toward:> usingtransittosupporta“smartgrowth”agendabycoordinatingtransit, development, and other planning;and

> launching significant initiatives, such as expanded and upgraded street car linesandbicyclenetworks;improvedserviceforunderservedpartsofthecitylikeNewOrleansEastandtheWestBank;introductionofregionalhigh-speedrailtoBatonRougeandtheairport;andreplacementoftheI-10 Claiborne Expressway with an urban boulevard.

• Pursue a “fix-it-first” policy for roads and bridges.

Core goal How to start reaCHing tHis goal over tHe next five yearsS

usta

inab

le s

yste

ms

Transform New Orleans into a

model for sustainable

development practices

• Startwithzoning,planning,andcitypracticestomake “green options” standard practice: > ImplementtheGreeNOLAplantomakecitygovernmentamodelofenergy

efficient and environmentally sound practices.> Attract and support green businesses.> Promote smart growth—focus regional growth toward the city, reduce the

need for auto trips, promote efficient use of urban land.• Create a “climate plan” that addresses how the city should adapt to global

warming.

Use zoning to help make New

Orleans America’s

greenest city

• Encourage environmental responsibility through incentives and requirements for cutting-edge stormwater management, lighting standards, and green building construction and operation.

• Promote smart growth by focusing development toward places with the infrastructure, transportation, and other elements that support quality of life.

• Supportdensitiesandbuildingpatternsthatreinforce neighborhood commercial districts, downtown, and other centers of community life.


Make the community a

partner


• Inaugurate a community participation process that provides opportunities for meaningful citizen input on issues that affect their interests at a neighborhood and citywide level.

• Support community participation with education and capacity building that contribute to informed discussion and comment.

• Provide open and equal access to information among all levels of government and to the larger community.

From

pla

n to

act

ion Put the master plan to work—use it every year in creating the

budget, the capital plan, agency work plans—and take the lead in strengthening communication and partnerships with neighborhoods, the business community, and the region.

Put the city in the lead for all planning and development

initiatives that affect the city’s

welfare

• Prepare the planning commission for its new role:> Create a system of district planners, and include in this staff the range of

skills essential to representing the city’s interests, such as development, infrastructure, sustainability, transportation, urban design, community engagement, and zoning.

> Buildastrongerconnectionamongplanning,NORA,andotherlevelsofgovernment that implement plans.

> Establish a strong CPC working relationship with the mayor, council, city agencies.• Support proactive leadership in planning for the city’s future by:

> Preparing a strategy for reducing government fragmentation and restoring the city’s ability to coordinate policies and resources used by different lev-elsofgovernment.Beginbyincreasingcollaborationandcommunication.

> Inauguratinga“citystat”modelofperformancemeasurement,information-sharing, and other steps to insure that the letter and spirit of all city policies and plans are implemented and enforced.

> Nurturing a culture of planning in which stakeholders work with each other and with district planners to resolve differences and create worthy and achievable proposals.

• Walk the talk…Critical early tests include:> Taking a leadership role in planning for the Medical District.> Planning and undertaking innovative land assembly and accelerating

resettlement of wet neighborhoods and redevelopment of blighted and vacant infill sites.

> Establishing a process for collaborative capital budgeting among different levels of government.


Invest in the steps that will

build strong partnerships, draw private

and public investment, and

enhance the city’s tax base


• Improve the city’s fiscal health. Make limited strategic use of city subsidies (e.g., tax incentives) and focus them toward projects that have citywide importance and that build economic value.

• Promote higher-value redevelopment of opportunity sites, including retail and other commercial uses, to increase the city’s tax base.

• Build new state and federal partnerships. > Engagethestate/LRAandthefederaldelegationsincoordinatedstrategies

for implementing appropriate master plan recommendations.> Establish new, direct working relationships with Louisiana’s Congressional

delegation on projects and programs that are unique to New Orleans and do not lend themselves to statewide approaches.

From

pla

n to

act

ion

Above all, this plan and its zoning are intended to support residents in achieving the vision for their city that emerged from

the planning process: New Orleans in 2030 as a city of unique neighborhoods and diverse communities with rich legacies, all of whose citizens benefit as they join together to build a city of greater opportunity and equity, livability, sustainability—and a commitment to translating plans into action.

This is yoUr plan, in draft form. As we move toward the final version in the months ahead, here’s how yoU can help make it great: > Go to www.nolamasterplan.com to:

• Readthefulldraftdocument.• Findthedateandlocationofadistrictmeetingnearyou(April15–22).• CheckouttheFrequentlyAskedQuestions.• Signupfore-mailupdates.• Sendyourcommentstotheplanningteam.

> Talk about it with your family, friends, and co-workers.> Discuss it at your next civic association or community-group meeting. > Come to a district meeting. > Stay involved as the Master Plan goes to public hearings this summer.> Keep involved as the Zoning Ordinance goes to public hearings in the fall. the fifth citywiDe forUm will take place in June. once the date and location are set, we’ll post the information at www.nolamasterplan.com.

Pictured above: the New Orleans City Planning Commission. For more information on the Master Plan and zoning process, please contact City Planning at (504) 658-7033 or visit the master plan website, www.nolamasterplan.org.

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Planning DistrictsBASE MAP

CITY OF NEW ORLEANS OVERVIEW

Legend

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rOuNd 2 distriCt MeetiNg dates

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st. paul episcopal school 6249 canal Boulevard

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CITY OF NEW ORLEANS OVERVIEW

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0 7.5 15 22.5 303.75Miles

Monday april 20

southern University at new orleans (sUno)

6400 press drive

wednesday, april 22

Jesuit high school4133 Banks street

wednesday, april 15

Jewish community center5342 st. charles avenue

wednesday, april 22

dryades Ymca2220 oretha c.

haley BoulevardtHursday, april 16

contemporary arts ctr.900 camp street

tHursday, april 16

Behrman gym2529 general meyer(districts 12 and 13)

Monday, april 20

st. mary’s academy 6905 chef menteur highway

(districts 9,10 and 11)

tuesday, april 21

mount Kingdom missionary

Baptist church3756 louisa street

tuesday, april 21

martin luther King charter school

1617 caffin avenue

CitY OF NeW OrLeaNsMayorC.RayNagin

NeW OrLeaNs CitY PLaNNiNg COMMissiONEdwardRobinson,Commission Chair | Dr.GeorgeAmedee, Commissioner | KellyBrown,Commissioner | Lois Carlos-Lawrence, Commissioner | Sandra Duckworth, Commissioner | Tim Jackson, Commissioner | Lester Johnson, Vice-Chair, Commissioner | Lynes Sloss, Commissioner | Louis J. Volz, Commissioner |YolandaRodriguez,Executive Director | Leslie Alley, Deputy Director

NeW OrLeaNs OFFiCe OF reCOVerY aNd deVeLOPMeNt adMiNistratiONDr.EdBlakely,Director

Funding for this project provided by the Louisiana Recovery Authority (federal Community Development Block Grant funds).

NeW OrLeaNs Master PLaN aNd COMPreHeNsiVe ZONiNg OrdiNaNCe CONsuLtaNt teaM

Core TeamGoodY ClanCY,BOStONCamiros, lTd,CHICAGO GCr, inC., NEWORLEANSmanninG arCHiTeCTs,NEWORLEANS

advisorsBrightMoments—New Orleans | Concordia—New Orleans |CreativeIndustry—New Orleans | EJP Consulting—Boston |EtCInstitute—Olathe, Kansas |FernandezPlans—New Orleans |JaneBrooks—University of New Orleans | Julien Engineering—New Orleans | Kittleson Associates—Baltimore | Laurie Johnson—San Francisco | Maddox, Nix, Bowman&Zoekler—Atlanta | Mark Davis—Tulane University | Mt. Auburn Associates—Boston |Perez,Inc.—New Orleans |Villavaso&Associates—New Orleans | W-ZHA—Annapolis, Maryland |Zimmerman/Volk Associates—Clifton, New Jersey

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