Master Plan for Redevelopment of the Eastern Waterfront
Waterfront Development and Master Planning Committee
Portland City Council|
Karen A. Geraghty, Mayor James F. Cloutier Philip J. Dawson Jill Duson Jay M. Hibbard |
Cheryl A. Leeman Nicholas M. Mavodones, Jr. Peter O'Donnell Nathan H. Smith |
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Joseph E. Gray, City Manager |
Portland Department of Planning and Development
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Lee Urban, Director Alex Jaegerman, Planning Division Director |
Alan Holt, Urban Designer William Needelman, Senior Planner |
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Appointed by Cheryl Leeman, Mayor Karen Geraghty, Co-Chair Peter O'Donnell, Co-Chair James Cloutier, Councilor Jack Dawson, Councilor Frank Akers Will Gorham Jack Humeniuk P.D. Merrill Ted Ney Paul Peck Erno R. Bonebakker Nan Cumming Cyrus Hagge Luke MacFadyen Donald W. Perkins, Jr. John Carroll Kris Clark David Fink |
Jim Gilbert Mark Malone Joe Payne Michael Pizzo Tom Ranello Paul Sherr Barbara Vestal Steve Williams Charlie Poole G. Steven Rowe Phineas Sprague, Jr. Ron Ward Michael Quint Elizabeth Sheehan Ken Swanberg Barbara M. Whitten Lincoln Good |
With Technical Support
From: ICON Architecture, Boston Mass. Wilbur Smith Engineers Norris and Norris, Architects Portscape FMX Associates Gorrill Palmer Engineers Annie Wadleigh, Greater Portland Council of Governments Woodard & Curran Engineers |
Table of Contents
| I. | Preamble | p. 3 |
| II. | Committee Objectives | p. 3 |
| III. | Existing Conditions | p. 4 |
| IV. | Principles for Redevelopment, Adopted 6-11-01 | p. 12 |
| V. | Design Guidelines, Background and Policies | p. 14 |
| VI. |
Build-out Scenarios Plan 1, Initial Street Layout Plan 2, Initial Development Plan 3, Possible Public/Private Build-out Scheme Plan 4, City Property Only Build-out Scheme |
p. 16 |
| VII. | Challenges | p. 18 |
| VIII. | Next Steps and Implementation Measures | p. 20 |
| IX. |
Appendices A. Definitions, adopted with Statement of Principles, June 11, 2001 B. Public Process, to be written C. Market Fiscal Impact Analysis, FMX Associates D. Traffic Analysis, Gorrill Palmer Associates, provided with final Report of the CDC. E. Draft ICON Master Plans, previously submitted F. Scotia Prince Siting Analysis Report, ICON Architecture, accepted by City Council, August 6, 2001. Previously submitted. G. Design Guidelines for the Eastern Waterfront, attached. I. Ocean Gateway Project previously submitted reports - Master Plan Report, August 2001 - Supplemental Report, November 2001 |
p. 22 |
"The water's edge is the most
precious resource we have"
Waterfront Development and Master Planning Committee, 6-11-01
Portland's Eastern Waterfront provides a unique location to combine the opportunities provided by deepwater berthing resources with the economic development potential of an historic and vital downtown commercial center. The challenge is to develop the marine passenger industry and to re-develop the underutilized uplands without negatively impacting the existing and future residential neighbors. The Master Plan envisions new development in the area to be an amenity and an asset to neighborhood residents, the greater City, and visiting tourists.
Through strict design guidelines, traffic management, pedestrian amenities, open space enhancement, landscaping, and encouraging a mix of residential, commercial, and transportation uses, the Ocean Gateway Passenger Facility and the surrounding areas will transform into a walkable and connected part of the City. Development in the Eastern Waterfront provides opportunity to expand public access to water and shore: along both private and public properties and for both active and passive uses. An integrated Master Plan allows the City to support the working waterfront, promote economic development, and enhance and protect our residential neighborhoods.
II. Waterfront Development and Master Planning Committee Objectives
The City recognizes that the development of the Ocean Gateway Marine Passenger Terminal Project will serve as a catalyst for change and further development within the immediate area (the Waterfront Land Use Study Area), and have significant impacts on the surrounding community (the five Impact Areas). The Eastern Waterfront Development and Master Planning Committee has worked to create a consensual, unified vision for private and public development in the study area. The Plan is integrated with the Ocean Gateway Marine Passenger Terminal project to insure that the new facility achieves the highest quality urban design that respects and enhances the character of Portland while reflecting the image of a great seaport. The Master Planning process has sought involvement from all stakeholders in an open, participatory process and has considered both impacts and opportunities presented for the Eastern Waterfront.
The Master Planning Process has conducted the following analyses:
The Study recommends strategies and actions to achieve the following:
III. EXISTING CONDITIONS
STUDY AREA LIMITS
The Eastern Waterfront Land Use Study Area includes parcels to the east of and north of, and most directly associated with, the Marine Passenger Terminal Project site - the former Bath Iron Works Ship Repair Facility. These parcels include adjacent properties extending to a border formed by Franklin Arterial, Middle Street, Hancock Street, Federal Street, Mountfort Street, and Fore Street, and to the properties occupied by Shipyard Brewery, and Portland Company Complex.
Five Impact Areas are identified surrounding the Marine Passenger Terminal Project site and the Waterfront Land Use Study Area. The Waterfront Development and Master Planning Committee has worked to mitigate negative impacts to the surrounding areas and to encourage development that compliments and enhances the character of the eastern peninsula.
The Impact Areas include the Munjoy Hill Impact Area (bordered by the Eastern Prom, Fore Street, Mountfort Street, and Congress Street), the India Street Impact Area (bordered by Mountfort Street, Federal Street, Hancock Street, Middle Street, Franklin Arterial, and Congress Street), the Old Port Impact Area (bordered by the Franklin Arterial, Fore Street, Pearl Street, and Congress Street), the Commercial Street Impact Area (bordered by Fore Street, Pearl Street, thirty-five feet harbor side of Commercial Street, and Union Street), and Portland's Casco Bay Island Impact Area (island residents utilize the State Pier, Casco Bay Island Transit District Ferry Terminal as their major point of entry and departure from the City.)
Current Zoning and Landuse
The Eastern Waterfront is the earliest developed part of the City and has a predictably diverse mix of land uses and corresponding zoning coverages. Currently within the Master Plan Study Area, zoning can be separated into marine zones and mixed-use commercial zones.
Marine Zoning: marine use zones dominate the portions of the study area south of Fore Street.
The former Bath Iron Works facility, City controlled surface parking lots, and the State Pier are designated Waterfront Port Development Zone, a zone dedicated to the retention and enhancement of deep water berthing uses. The Portland Company, at 148 Fore Street, and the Farley and Marino properties at 144 Fore Street, are designated Waterfront Special Use Zone, which allows and encourages active water-dependent uses and discourages uses that are incompatible with the surrounding marine, residential, and park uses. The Waterfront Special Use Zone allows certain non-marine related activities within existing buildings, including exhibition space, museums, office and restaurant use.
Commercial Zoning: The portions of the study area north of Fore Street and included in the India Street and Old Port commercial districts are zoned one of three business zones.
The India Street corridor is dominated by the B-2b, Community Business Zone. The B-2b encourages commercial uses and services serving both the adjoining neighborhoods and the larger community. The Old Port district is a portion of the B-3, Downtown Business Zone. The purpose of the B3 zone is to promote Portland's downtown as the business and commercial center for the region by satisfying the retail, commercial and service needs of City and regional residents and visitors. Finally, the Shipyard Brewery site located between Fore, Middle, Hancock, Newbury and Mountfort Streets is dominated by the B-5, Urban Commercial Mixed Use Zone . The B-5 encourages under-utilized land on the peninsula to be developed into an efficient mix of uses utilizing an urban form. Light industrial, marine, commercial, and residential uses are all allowed and encouraged.
Outline of Zones Found in the
Waterfront Land Use Study Area and Impact Areas
(Refer to the attached Study Area and Zoning Maps)
Marine Passenger Terminal Project Area
A. Waterfront Port Development Zone (WPDZ)
B. Additional Overlay Zones
1. Shoreland Zone
2. Flood Plane (as delineated on the Federal FIRM maps)
Waterfront Land Use Study Area
A.
WPDZ
B.
Waterfront Special Use Zone (WSUZ)
C.
Busines-2 and 2b (Community Business Zones, B-2 and B-2b)
D.
Busines-3 (Downtown Business Zone, B-3)
E.
Business-5 (Urban Commercial Mixed Use Zone, B-5)
F.
Additional Overlay Zones
1. Shoreland Zone
2. Flood Plane
3. Waterfront Historic District
4. Downtown Height Overlay
Munjoy Hill Impact Area
A.
Residential-6 (High Density Residential, R-6)
B.
Business-1 (Neighborhood Business Zone, B-1)
India Street Impact Area
A.
B-2b
B.
Recreation and Open Space (ROS, Eastern Cemetery)
C.
Additional Overlay Zones
1. This area is currently being surveyed for possible designation as a Historic
District.
Old Port Impact Area
A. B-3
B. Additional Overlay Zones
1. Old Port Historic District
2. Downtown Height Overlay
3. Pedestrian Activities District (PAD)
Commercial Street Impact
Area
A. Waterfront Central Zone (WCZ)
B. B-3
C. Additional Overlay Zones
1. Waterfront Historic District
2. PAD
3. Downtown Height Overlay
Note: The Casco Bay Island Transit District Ferry Terminal on State Pier is designated Waterfront Port Development Zone.
VACANT, UNDERUTILIZED LAND
The development history of the Study Area has resulted in a largely underutilized portion of urban waterfront currently dominated by empty pavement and surface parking. The area is blessed with water views, proximity to urban amenities, reasonable vehicular access, excellent port access, and integration with the City trail system. Given its location and proximate attractions, significant potential for redevelopment exists within the Eastern Waterfront. Surface parking uses could be aggregated into parking structures, providing surplus parking for new structures, more intensive reuse of historic buildings, replacement of non-historic structures, and open space enhancement.
The Eastern Waterfront district can be generally separated into six areas: (1) Central Redevelopment Area, (2) India Street Corridor, (3) Portland Company Complex, (4) Ship Yard Brewery Complex, (5) PDOT Large Vessel Support Areas, including the Maine State Pier and Marine Passenger Terminal Pier, and (6) Small Vessel Marine Support/Public Access Area. Refer to the Key Map of the Eastern Waterfront included in the Design Guidelines
1. Central Redevelopment Area
The core of the of the Eastern Waterfront centers around the lands extending north of the water between the Maine State Pier (Pier 1) and the Marine Passenger Terminal Pier (Pier 2) to the southerly side of Fore Street.
The site historically was home to early railroad and port related industry including the terminus of the Grand Trunk Railroad, the 1922 State Pier cargo facility, and large grain piers and storage structures formerly located near the head of Pier 2. From 1982 to 2001, the site was used by Bath Iron Works for military ship repair. With the demise of the rail and port cargo operations, and the exodus of Bath Iron Works, gravel and paved surface parking and lay down areas currently dominate the upland core of the Eastern Waterfront. The City of Portland is the current owner of this property.
Additionally, the adjacent property south of Fore Street contains two substantial private properties that have significant potential for redevelopment and integration with the under-utilized City property. The Farley and Marino properties, located between Fore Street and the City parking lots, each contain large one-story block structures originally built for warehouse uses associated with the railroad history of the area. Both structures have been adapted to a variety of commercial uses and are fully occupied. The Farley and Marino properties could either remain as separate private enterprises that redevelop independently; or potentially, the properties could combine with City properties to the south to provide an integrated development scheme. Both build out scenarios are described below in Section VII.
Development Considerations
2. India Street Corridor
Moving west to India Street, the Eastern Waterfront transitions to a more consistently developed urban fabric, with an established business corridor flanking both sides of the India Street right of way. Historic brick structures, surface parking lots, and light industrial uses occupy the properties between India Street and Franklin Arterial.
The Waterfront Historic District begins in this area, extending from the former Grand Trunk administrative building at the terminus of India Street, running west along Commercial Street and up Franklin to Middle Street. The India Street area has long been considered for a potential historic district expansion, and the area is currently the subject of a building-by-building historic resources survey.
The Jordan Meats manufacturing plant dominates the block on the westerly side of India Street and the southerly side of the Middle Street. The interior of the blocks between Middle, India, Commercial, and Franklin contains large amounts of surface parking leased to resident and off-site commercial uses and island residents. Aggregating the parking into structures would provide opportunity for infill development and replacement of non-historic buildings in this portion of the study area.
Development Considerations
3. Portland Company Complex
The Portland Company complex, a mid-nineteenth century manufacturing facility, occupies the easterly end of the Eastern Waterfront. As an early manufacturing center, the site is home to several large brick and granite industrial buildings of architectural significance with potential for adaptive reuse. The Portland Company property is currently designated as eligible for inclusion in the National Register of Historic Places.
The property is highly developed, but in need of significant structural and cosmetic repair. Importantly, the complex is the only private property in the study area with direct water access. Currently, the Portland Company houses a variety of commercial uses, including a marina, boatyard, boat repair, general office, exhibition space, and the Narrow Gauge Railroad Museum.
Future parking enhancements and better vehicular and pedestrian access to the central redevelopment area will better integrate the Portland Company complex with the Eastern Waterfront and the Commercial Street business district, spurring the adaptive reuse and restoration of the historic structures.
Development Considerations
4. Ship Yard Brewery Complex
The Ship Yard Brewery occupies an early twentieth century industrial building along Hancock and Newbury Streets. Extending south to Fore Street, the site is heavily developed at the Newbury Street and Hancock Street portion of the property, but is largely vacant or abandoned adjacent to Fore Street. While a small cluster of historic residential structures occupy the Newbury and Mountfort Street corner, underutilized industrial buildings and commercial parking occupy the lands adjacent to the Fore Street right of way.
Development Considerations
5. PDOT Large Vessel Support Areas
The Portland Department of Transportation will retain control of the majority
of the former BIW ship repair facility as the Marine Passenger Terminal
Facility.
Two working deep-water piers are included within the large vessel support area.
Maine State Pier (Pier 1) is a City owned structure and contains a 100,000
square foot cargo shed along its easterly perimeter adjacent to a 1000-foot
deepwater berth. The shed is currently in need of considerable repair, but
provides potential for continued use as deepwater berthing support and other
uses.
The Casco Bay Island Ferry Terminal is located on the westerly side of the Maine State Pier, and is under the control of the Casco Bay Island Transit District. The CBITD facility currently handles 900,000 passengers per year and is the primary point of entry and departure for the Casco Bay island community.
The Atlantic Pier (Pier 2) is a 600-foot finger pier that was developed to serve the BIW dry dock. Pier 2 is in excellent condition, is constructed with full utilities in place, and is proposed to be expanded to house the marine passenger terminal and provide the Scotia Prince berth and the primary cruise ship berth.
The land between the Maine State Pier and Pier 2 is entirely paved and has historically provided parking and circulation support for the berthing and warehousing function of the piers.
There is an area of filled land east of Pier 2 extending into the harbor that poses potential environmental risks. The "containment area" is composed of contaminated dredge spoils retained within a wooden piling structure. The containment area has been capped under the "VRAP," voluntary remediation action plan, program and is currently limited to pedestrian use. Any long-term development plan for the Pier 2 area will need to address the maintenance and safety of the containment area and work within the regulatory restrictions of the VRAP program.
Development Considerations
6. Small Vessel Marine Support/Public Access Area
The land east of Pier 2 and adjacent to the water currently serves as back lot parking and exterior storage areas remaining from the BIW use of the site. The area is adjacent to the remains of the historic grain piers that dominated the Eastern Waterfront until their destruction by fire in the late 1960's. A granite crib work bulkhead and the remnant pile fields of the former grain docks characterize the shoreline east of Pier 2. The water in this area is shallow and the southerly exposure receives extreme weather during the winter months. The lands adjacent to the water east of Pier 2, provide opportunity for seasonal small vessel berthing and marina development, public access to the water, open space and trail enhancements, and the possibility for a tug boat pier. The character and scale of development in the lands east of Pier 2 should, to the extent possible, be designed to add value and retain views for the Central Redevelopment Area
Development Considerations
TRAIL, TRAIN
Consistent with the transportation related history of the area, two current uses provide amenities and challenges to redevelopment: the Easter Promenade Trail and the Narrow Gauge Railroad.
The Eastern Promenade Trail is a multi-use pedestrian and bicycle corridor connecting Commercial Street to the East End Beach with further links to the Back Cove loop trail. The Trail consists of a stone dust jogging/walking path paralleled by a paved travel way for roller-blading, biking, or pedestrian use. The Eastern Prom Trail is extremely popular providing year-round activity and vitality to the eastern waterfront and is a pivotal link in Portland's recreational trail and alternative transportation system.
The Narrow Gauge Railroad occupies a 26-foot wide State of Maine rail right of way and extends from the southerly edge of Commercial Street at India Street, along side the Eastern Prom Trail, to a point beyond Cutter Street at the East End Beach. The Narrow Gauge Rail is a heritage museum and tourist attraction with exhibition space housed in the Portland Company complex. While the two-foot wide rail spacing was never a part of Portland's historic rail system, some of the rolling stock displayed and used at the Narrow Gauge Museum was manufactured at the historic Portland Company site.
The Eastern Promenade Trail and the Narrow Gauge Railroad, with their linear orientation parallel to the shore, have a tendency to divide the uplands from the water's edge. Some relocation and redesign of both of these corridors will be needed in order for the Master Plan to take advantage of the amenities provided by these features while retaining connectivity with the uplands and the functional utility of marine uses.
ISLAND PARKING
Retention and expansion of parking opportunities for Island residents is a consistent theme and an identified need for the Eastern Waterfront. For the last several years, the City has provided approximately 130 full time parking spaces for island residents. Located south of Fore Street and north of the Eastern Prom Trail, the island parking lot was a poorly organized gravel lot with marginal access to the Casco Bay Island Ferry Terminal. The City typically issued over 700 permits for the 130 spaces, resulting in a predictable shortage of spaces and "over packing" during the peak summer months. For the current 2002 season, 150 spaces are available to Islanders for monthly rental. Additionally, the 130-space lot will be available to the general public, including Islanders, for short or long-term rental. Islanders, who choose not to utilize the City lots, negotiate parking from one of the many commercial lots in the vicinity or park on the street.
The Casco Bay Island Transit District ferry terminal includes a five-story, 420 space parking garage. The garage is a municipally owned structure under private management with half of the spaces assigned to long-term leases and half designated for transient hourly rental. As future parking structures are developed in the Study Area, the opportunity will develop to allow a significant portion of this existing garage to be set aside for designated island parking, with transient and/or commercial tenants shifted to new facilities. The development of additional structured parking and additional on-street parking will expand private and public parking opportunities for Islanders.
IV. Statement of
Principles for Redevelopment of the Eastern
Waterfront
Adopted 6-11-01
The Waterfront Development and Master Planning Committee established the following set of principles to guide land use policy in the Eastern Waterfront.
The principles and objectives reported here are of equal value and should be applied uniformly during the evaluation of proposed land use policies and development for the Eastern Waterfront.
CHARACTER AND IMPACT OF DEVELOPMENT
Development within the eastern waterfront will be compatible with the surrounding areas, neighborhoods, natural environment and maritime uses.
Objectives:MIXED USE
Development within the eastern waterfront will create a vital and active mixed use urban area that generates life and use every day of the year and all hours of the day.
Objectives:* Note: Mixed use includes but is not limited to residential, commercial,
public, institutional, marine, park, trail and industrial uses (all as generally
defined in the B-5 Zone of the Portland Land Use Code.)
MARITIME RESOURCES
Development in the eastern waterfront on piers, bulkheads, and on land within 75' of mean high water line, will give priority to compatible water-dependent and maritime uses.
Development in the eastern waterfront will provide a significant benefit to the City and regional economy.
V. Design Guidelines, Background and Policies
Through out December 2001 and January of 2002, the Design Guideline Subcommittee of the Waterfront Development and Master Planning Committee worked to produce a draft set of Urban Design Guidelines for the Eastern Waterfront. Design guidelines were established as one of the primary goals of the Eastern Waterfront process and will be key to encouraging development that provides lasting value to the Portland community. The final draft, Design Guidelines for Portland's Eastern Waterfront, were approved by the full Committee on January 23, 2002. The guidelines are integral to this report and are an important implementation tool for the Master Plan. Please refer to Appendix G attached to this document.
The Design Guidelines have three intended applications: (1) As an evaluative framework for City sponsored projects or projects located on City controlled land, (2) As a handbook for private developers to comply with the City's vision for the Eastern Waterfront, and (3) As a policy basis for future zoning and land use ordinance changes for the Eastern Waterfront.
The guidelines promote compatible design of streets, buildings, open space, parking, and changes to the water's edge that will contribute to the value of public and private property and the quality of life for Portland residents.
In drafting the guidelines, the Subcommittee used the principles outlined in Section IV above, the policies outlined below, reference documents, City of Portland Planning Office documents, City Land Use Code language, and design guidelines from other municipalities as starting point for drafting design guidelines for the Eastern Waterfront. Importantly, the subcommittee used input gathered during the extensive public process along with their personal insights and knowledge of Portland's Waterfront to produce a document specifically targeted to the Eastern Waterfront area. The Subcommittee worked to provide a framework for development that will integrate the working waterfront, commercial business areas and the Munjoy Hill neighborhood into a thriving and functional urban neighborhood.
Policies for Development Design Guidelines
A. Initial development of phase-one, Marine Passenger Terminal should set the stage for a long-term vision for the east end of the waterfront.
Recommendations:
Establish a foundation of public infrastructure in conjunction with Phase One of the Ocean Gateway Facility that contributes to the broader public realm and lays the groundwork for future development.
Every increment of development, especially public development, should incorporate public amenities that contribute to creating a special sense of place.
B. Develop a holistic view that recognizes development opportunities in the east end of the waterfront will evolve incrementally.
Recommendations:
Develop in phases that both stand alone and work together.
Integrate public and private development in a positive, secure, and elegant manner.
Consistent with Marine Passenger Terminal Facility Phase One, Concept 7, as recommended in the Ocean Gateway Project - Supplemental Report, November 2001
The Master Plan vision portrayed in the attached plans results in a phased development of a new urban neighborhood. Development within the Eastern Waterfront will integrate with the Marine Passenger Terminal Project in a manner that compliments the intermodal transportation use of the facility and enhances the development opportunities of adjacent property.
The following drawings show how the Eastern Waterfront could potentially develop over the next ten to twenty years. One should understand that these schematic plans provide the general direction for development and are not a prescription for specific buildings. The key elements diagramed are the location of an extended Commercial Street, the establishment of a public street grid as an extension of existing city blocks, and the retention of sufficient upland to support the deep-water marine use of the Maine State and Atlantic Piers.
It will be contingent on each phase of development to closely account for negative traffic and aesthetic impacts of new building, uses and streets. Please refer to Section VIII, Challenges, for a discussion of traffic and traffic improvements needed to proceed with the phased development of the Eastern Waterfront. Adequate and stringent traffic management will be a necessary component of every new building and street extension to ensure the protection of Munjoy Hill, the Casco Bay Island Ferry users, visiting pedestrians, and of our existing traffic circulation system.
Redevelopment Phasing
The following drawings portray a phased redevelopment of the Eastern Waterfront.
Marine Passenger Terminal, Phase One (based on Concept 7)
The Phase One of the Ocean Gateway facility begins development in the Eastern Waterfront with the expansion of the Atlantic Pier and the construction of the Marine Passenger Terminal. The recommended phase one facility plan is described in detail in the Ocean Gateway Project Supplemental Report dated November 2001. Existing pavement situated between the Maine State Pier and the Atlantic Pier is reserved for vehicle circulation and Scotia Prince queuing, and a new entry to the facility is established from India Street. The Eastern Promenade Trail east of the Atlantic Pier is relocated along the water. The balance of City owned land remains in its current condition as surface parking. It is anticipated that the activity and infrastructure provided by the marine passenger industry will act as a catalyst for both private and public investment on adjacent lands.
Plan 1, Initial Street Layout
The Initial Street Layout shown on Plan 1 represents the potential infrastructure established by the Ocean Gateway construction plus the re-alignment and extension of Commercial Street from India Street to Pier #2 and adjustments to the Narrow Gauge Railroad and the Eastern Prom Trail, The balance of City controlled property would be improved for surface parking and open space development. Removal of the parking south of the re-aligned railroad is recommended as a means to (1) satisfy the public's number one "nightmare" for the area (surface parking on the water,) and (2) provide the optimal environment for high-value uplands development.
Plan 1 begins to integrate the transportation facility with an expanded city street system and sets the stage for high value investment in the adjacent uplands.
Plan 2, Initial Development
Plan 2, Initial Development, demonstrates that the City can begin to build upon the Ocean Gateway framework in the short term. Building 1, as shown, envisions a parking structure wrapped with mixed-use development. While this structure could occupy largely City owned land (and a portion of private property,) Building 2 represents a similar structure developed on private land in a portion of the Shipyard Brewery Complex. This early phase of development would help to provide needed parking for the marine passenger industry, island residents, and commercial tenants. Noted in gray on the graphic, Hancock Street extends along its historic right of way from Middle Street to Fore Street, and further south to the Commercial Street Extension. Plan 2 begins to establish a new urban street grid within the Eastern Waterfront. As stated above, new streets will need to provide both pedestrian friendly amenities as well as adequate traffic management so as to be an asset and not a burden to the Munjoy Hill neighborhood.
Plan 3, Possible Public/Private Build-out Scheme
Plan 3, Possible Public/Private Build-out Scheme, shows how the private Farley and Marino properties could be combined with the City controlled properties to allow for a unified building and street network. Commercial Street would continue easterly toward and interface with the Portland Company complex. North /south streets extend from Fore Street creating an interconnected street network and defining development blocks. Mountfort Street, which is both a direct connection to Rte 295 (via Washington Avenue) and an identified high accident location (at Fore Street,) needs close and careful scrutiny. Future traffic design and management will need to address whether restricting access from Fore Street or creating one-way flow will be needed to protect the residential nature of Mountfort Street and southerly Munjoy Hill. Please refer to the Challenges Section of this report and the Gorrill Palmer Traffic Report, Appendix D.
The Waterfront Development and Master Planning Committee recognizes the advantages of public/private partnerships to make available the larger resources needed to implement the vision of the Master Plan. Combining the land resources of the City with land and private capital of the private sector is one means of augmenting the resources available for redevelopment.
Plan 4, City Property Only Build-out Scheme
Plan 4, City Property Only Build-out Scheme, shows that if private/public partnerships prove to be impractical or unworkable, the City retains adequate land to allow significant high quality development opportunities. While significantly less ambitious than Plan 3, the City-only option shows a large wrapped parking structure and an 80,000 square foot mixed-use building.
Both Plan 3 and 4 show a combination of open space and low-level active marine use on the waterside of the Commercial Street Extension. The siting and selection of structures and uses along the water's edge need to respect and compliment open space design and upland development potential. Uses that have been considered include a tugboat pier, public landing and short-term berthing, public boathouses, and other "low impact" active and passive water dependent uses.
The following section has been added at the request of the Community Development Committee of the City Council. This section has been written by City Staff and summarizes the foreseeable challenges in implementing the Master Plan.
A. Traffic
Traffic has been an ongoing and serious concern throughout the Master Planning process. The Marine Passenger Terminal and the incremental build out of the surrounding properties will generate significant amounts of new traffic in the Eastern Waterfront. The challenge will be to promote transportation and mixed-use development without causing unreasonable traffic congestion and preserving the quality and character of neighborhood life on Portland's eastern peninsula.
Through the ongoing work of the Community Development Committee of the City Council, the traffic impacts of the proposed build out of the Eastern Waterfront combined with the Marine Passenger Terminal project have been evaluated. Please refer to the Traffic Assessment for Ocean Gateway and the Waterfront Master Plan by Gorrill-Palmer Associates, attached as Appendix D of this report. The purpose of the analysis was to understand the current state of traffic service as compared to future traffic service resulting from the proposed development in conjunction with expected background growth. The results of the study show that development in the Eastern Waterfront will require mitigating improvements to the existing street system, but the largest traffic impacts result from background growth of existing traffic.
The Gorrill-Palmer report outlines a list of street improvements that will keep the street system functioning at reasonable levels and encourage traffic to stay out of the residential neighborhoods. Key to mitigating traffic impacts to Munjoy Hill and other residential streets will be to provide good service along Franklin Arterial. Currently, Franklin Arterial is operating at a poor level of service at the Rt. 295 exchange and vehicles tend to choose alternative routes to cross the peninsula. Major improvements will need to be undertaken along the length of the Franklin Arterial corridor so that traffic to and from the Eastern Waterfront will not be encouraged to seek alternate routes through Munjoy Hill. As stated above, improvements to Franklin Arterial and other roadways on Portland's peninsula will be necessary regardless of the activities generated by development on the Eastern Waterfront.
As development progresses in the Eastern Waterfront, careful scrutiny of existing levels of traffic service, intersection function, pedestrian safety, and the character of neighborhood life will need to be undertaken. Traffic improvement items listed on the Gorrill Palmer report should be tied to specific development proposals so that development-generated traffic is mitigated on an ongoing and systematic basis. Additional traffic mitigation measures can and should be undertaken if localized congestion or safety problems arise during the incremental build out of the area.
B. Neighborhood Integrity
A key to success for the Eastern Waterfront Redevelopment Plan will be to promote high quality development and expand the transportation utility of the deep-water port while preserving the integrity and character of our residential neighborhoods. Along with the concerns over traffic mentioned above, the public has been concerned that the character, scale and design of new development be compatible with the surrounding historic neighborhoods. The principles, policies and design guidelines presented in this report encourage buildings and public amenities that address concerns over neighborhood character and quality of life. The challenge will be to administer the plan in a way that protects neighborhoods, but does not stifle investment and innovation by the development community.
The City will need to adopt the necessary zoning to achieve the vision of the plan and promote the highest quality projects to occupy valuable public land. Likewise, the development community will need to look to the Master Plan and the Design Guidelines as tools for planning private investment. Development in the Eastern Waterfront will provide the greatest public benefit and create the least amount of negative impacts if each project builds toward a unified whole.
C. Protection of Working Waterfront and Transportation Efficiency
The master planning process for the Eastern Waterfront has reemphasized the importance of the working waterfront to Portland's citizens. Full utilization of the deep-water berthing resources reinforces the entire waterfront though increased economic activity and market opportunity for marine support services. Additionally, by keeping the working decks of deep-water piers dedicated to transportation related activities, the piers remain pieces of flexible infrastructure that can respond to future trends and changes in the marine passenger industry. The challenge will be to maximize the benefits of mixed-use non-marine development, while retaining the function and future flexibility of the Eastern Waterfront as a pivotal intermodal hub in Maine's transportation system.
The Master Plan for the Eastern Waterfront strikes a balance between the competing groups and individuals who work, live, recreate, and own property in the Eastern Waterfront. As the City and private developers implement the vision of the plan, the citizens of Portland will need to carefully monitor the negative and positive results and impacts of all development in the area. The marine passenger industry will provide the catalyst for investment in the area, and the transportation utility of the Eastern Waterfront will require constant and vigilant protection.
D. Open Space Development and Access to the Water
The public process for the Waterfront Development and Master Planning Committee demonstrated a strong desire on the part of Portland residents to expand their connection with the waterfront. The Master Plan for the Eastern Waterfront responds to the need for increased public access to the water through increased park development, relocation of the Eastern promenade trail to the water's edge east of Pier 2, and design guidelines that promote direct access and use of the water by the general public wherever safe and reasonable. The challenge will be to allow maximum access to the water while providing security and functional autonomy for commercial marine uses.
Promoting and investing in public boat landings, harbor-front parks (as shown east of Pier 2 on the Build-out plans,) and commercial berthing are key components of the Master Plan. The implementation of these elements is critical to creating waterfront that serves the entire community. Residents will have opportunities to use and enjoy the water and private development will have quality amenities in an environment that promotes high value investment on adjacent uplands. Increased public access and use of the water will strengthen Portlander's connection to the harbor and enforce our heritage as a city of mariners.
VIII. Next Steps and Implementation Measures
Next Steps to Complete the Master Planning Process for the Eastern Waterfront
Review of the Master Plan by the Planning Board and Adoption by the City Council as part of the Comprehensive Plan
Following an initial review and acceptance of the draft master plan report by the City Council, the final draft report will go to the Planning Board for a recommendation for adoption as part of the Comprehensive Plan. The City Council will, in turn, review the master plan for adoption as an element of the Comprehensive Plan.
In addition to completion of the policy work described above, the Eastern Waterfront planning process requires the following implementation measures to realize the vision of the plan.
Implementation Measures
A. Establish an Implementation Work Group
The implementation of the Master Plan needs the attention and management of City Staff to realize the vision of the Master Plan and to coordinate the permitting and construction of the Marine Passenger Terminal. The Community Development Committee should over see a staff work group comprised from members of the Departments of Planning and Development, Transportation, Public Works, Parking, Public Safety, and Parks and Recreation. The charge of the work group will be to coordinate the measures necessary to implement the Master Plan as integrated with the Marine Passenger Terminal project.
B. Establish a Time Line for Implementation
The first task for the Eastern Waterfront work group should be to establish a time line for implementation. While many aspects of the Master Plan depend on market conditions in the private sector, the timeline will scope the phasing of zoning amendments, State and Federal permitting, City RFP distribution and construction of publicly financed elements of the Master Plan and the Marine Passenger Terminal.
C. Zoning Recommendations
The Waterfront Development and Master Planning Committee recommends adjusting the current zoning to realize the vision established by the Master Plan. Adjustments to the waterside, marine zoning could be approached first to allow the construction of parking garages in what is now the Waterfront Port Development Zone.
D. Final Design and Permitting for the Marine Passenger Terminal
The final design and permitting for the Marine Passenger Terminal Project should be undertaken immediately.
E. Future of the Maine State Pier and Casco Bay Lines Terminal
Establish a process to plan for the future of the Maine State Pier and the Casco Bay Lines Terminal Facility.
F. RFP for City Controlled Parcels
Utilizing design guidelines and development principles established in the Master Plan, the City should stimulate development in the Eastern Waterfront through an RFP process. RFPs for City parcels should be targeted and structured specifically to implement the vision of the Master Plan and serve the needs of the Marine Passenger Terminal.
G. Public/Private Partnerships
Either through the RFP process, or through direct partnership with abutting landowners, the City will work to realize the vision of the Master Plan. The Committee recognizes the advantages of the private sector to bring resources and vision to the redevelopment effort. Where mutually advantageous relationships can be forged, the City should engage with private property owners to simultaneously provide public amenities, private development, and tax revenue to the City of Portland.
IX. Appendices
A. Definitions, adopted with Statement of Principles, June 11, 2001.
B. Public Process, to be written.
C. Market Fiscal Impact Analysis, FMX Associates.
D. Traffic Analysis, Gorrill Palmer Associates, to be provided with final draft,
included with CDC report.
E. Draft ICON Master Plans, to be provided with final draft.
F. Scotia Prince Siting Analysis Report, ICON Architecture, accepted by City
Council, August 6, 2001. previously submitted.
G. Design Guidelines for the Eastern Waterfront, attached.
I. Ocean Gateway Project previously submitted reports
- Master Plan Report, August 2001
- Supplemental Report, November 2001