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Greenways for Pittsburgh 2.0 – Policy Guide

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Greenways for Pittsburgh 2.0 – Policy Guide GREENWAYS FOR PITTSBURGH POLICY GUIDE August 2017 GREENWAYS FOR PITTSBURGH POLICY GUIDE August 2017 PROJECT MANAGEMENT CONSULTANT TEAM DEPARTMENT OF CITY PLANNING Josh Lippert, ASLA, APA evolve environment::architecture Andrew Dash, AICP, Assistant Director 6020 Broad Street, Pittsburgh, PA 15206 Christine Mondor AIA LEED AP | Elijah Hughes Anna Rosenblum MSSD LEED AP ADVISORY COMMITTEE Codametrics CITIPARKS 1129 Cleveland Street, Evanston, IL 60202 Jim Griffin, Director Leslie Oberholtzer AICP RLA LEED AP Jamie Beechey, Deputy Director Studio Bryan Hanes th DEPARTMENT OF FINANCE - REAL ESTATE DIVISION 340 North 12 Street, Philadelphia, PA 19107 Aaron Pickett, Real Estate Manager Bryan Hanes RLA LEED AP | Rebekah Armstrong Amanda Lopata Fourth Economy Consulting nd DEPARTMENT OF INNOVATION AND PERFORMANCE 1501 Preble Avenue, 2 Floor, Pittsburgh, PA 15233 Rebecca Kiernan, Senior Resilience Coordinator Chelsea Burket | Chris Ellis | Jamie Reese DEPARTMENT OF PUBLIC WORKS Landforce th Therese Marcelle Newman, Assistant Director 2 South 6 Street, Pittsburgh, PA 15203 Megan Yarish, Administrator 2 Ilyssa Manspeizer PhD LAW DEPARTMENT Western Pennsylvania Conservancy Daniel Friedson, Assistant City Solicitor 800 Waterfront Drive, Pittsburgh, PA 15222 Rachel O’Neill, Assistant City Solicitor Michael Knoop OFFICE OF THE MAYOR Alex Pazuchanics, Policy Advisor AUDIENCE PENNSYLVANIA DEPARTMENT OF CONSERVATION AND NATURAL RESOURCES Alex MacDonald, Chief - Trails, Greenways and Statewide This Policy Guide was created for City of Pittsburgh Planning Section employees, and the material provided can be used by the City to inform policymaking in regards to PITTSBURGH WATER AND SEWER AUTHORITY greenways. Megan Zeigler, GI Technical Coordinator In addition to this Policy Guide, the Consultant Team URBAN REDEVELOPMENT AUTHORITY also produced an accompanying Resource Guide, Bethany Davidson, Manager of Land Recycling Kyra Straussman, Director of Real Estate Community Engagement Toolkit, and Online Resources (all to be referenced by Greenway Stewardship Groups in the designation and stewardship of greenways.). In Memoriam of William “Bill” Waddell, for his 47 years of service at the City of Pittsburgh and all his contributions to the Greenways for Pittsburgh Program. This project was funded by the City of Pittsburgh with Cover Photo: Hazelwood Greenway matching funds from the Pennsylvania Department of Conservation and Natural Resources (DCNR). CONTENTS GREENWAY PROGRAM OVERVIEW 03 1.1 greenways program background 1.2 recommendation for greenway definition and goals 1.3 recommendation for greenway typologies PITTSBURGH’S GREENWAY PORTFOLIO 15 2.1 pittsburgh’s greenways vision 2.2 managing a greenways portfolio 2.3 network analysis 2.4 parcel analysis - GIS 2.5 parcel analysis - scorecard GREENWAY LIFECYCLE 27 greenways lifecycle overview 3.1 initiation 3.2 designation 3.3 implementation plan 3.4 projects 3.5 stewardship SUPPORTING POLICY RECOMMENDATIONS 53 4.1 summary of policy recommendations 4.2 use and typologies 4.3 administrative structure 4.4 projects and ongoing stewardship 4.5 greenway process APPENDICES 138 A.1 example documents GREENWAYS FOR PITTSBURGH 2.0 POLICY GUIDE | 1 GREENWAY PROGRAM OVERVIEW Greenways connect our communities physically by enhancing movement of people and wildlife. They also connect us to our landscape by serving as places where neighbors come together to improve their communities. Urbanist Jane Jacobs said, “Cities have the capability of providing something for everybody, only because, and only when, they are created by everybody.” Greenways provide a very tangible opportunity to create, steward, and enjoy a shared urban asset. 1 1.1 Greenways Program Background 1.2 Greenway Definition and Goals 1.3 Greenway Typologies 1.1 GREENWAYS PROGRAM BACKGROUND The original 1980 Greenways for Pittsburgh program was ahead of its time in promoting management of the City’s neglected open spaces. In this Policy Guide, we look at solutions to the program’s challenges while building on the program’s successes. This document is intended to guide the City’s Greenways Program Manager, City Planners, and other key administrators as they work with communities to secure the future of Pittsburgh’s Greenways. In 1980 Pittsburgh was confronted masterplanning a nearly impossible with a series of daunting challenges. task. Development of new wards and The City’s population was in a chronic neighborhoods was opportunistic state of decline and the City’s vacant and closely tailored to topographical land portfolio was rapidly expanding. limitations. The result is a city comprised With limited resources, the City of a mosaic of distinct communities needed a strategy to protect sensitive interlaced with green hillsides so steep as hillsides from low-quality opportunistic to be all but inhabitable. development, illegal dumping, and While these hillsides are an essential part environmental degradation. With support of Pittsburgh’s charm and identity, they from Mayor Caligiuri and City Council, the are not the only contributor to the City’s Department of City Planning established greenway portfolio. The City’s historic the Greenways for Pittsburgh program. growth during the first half of the 20th Greenways for Pittsburgh created a new century took an economically devastating designation of public open space. It turn during the second half of the allowed for groups of contiguous vacant 20th century. Technological advances, parcels, typically along a hillside, to be increased globalization, and federal aggregated together and permanently incentives for industrial decentralization conserved as passive open space. made it impossible for the Steel City’s GREENWAYS IN PITTSBURGH mills to be competitive. Greenways in Pittsburgh are artifacts The collapse of the steel mills and of the City’s development history. In the economies they supported lead many cases, greenways exist in places to a drop in the City’s population by where dramatic hillsides and other over half. Some densely populated environmental conditions prevented neighborhoods became largely vacant development from occurring. in just a few decades, leaving behind blighted buildings and vacant parcels. Centuries ago, Pittsburgh’s location in Many properties that were abandoned proximity to rich natural resources and and tax delinquent eventually came under well connected to national markets, the ownership of the City or the Urban Pittsburgh rapidly evolved from a frontier Redevelopment Authority. town to an industrial mecca. Farmers and land owners became developers With a geology that often restricts in support of the industrial boom that development and an economic transition reshaped the City’s riverfronts. The that left thousands of parcels without region’s dramatic topography made an owner, the City of Pittsburgh now has a Greenway portfolio of over 600 acres 4 | GREENWAYS FOR PITTSBURGH 2.0 POLICY GUIDE in area, contributing to the City’s 3,390 brushland that is unable to support a acres of public open space. healthy forest ecosystem. Without the LAND WITHOUT CARE ability of tall trees to grow, hillsides with invasive species do not provide canopy The health and wellness of Pittsburgh’s or understory habitats for native fauna hillsides serve as visual indicators of the and their shallow root structures lack the City’s health and wellness. Residents capacity for robust slope stabilization. and visitors alike see these hillsides on their daily commutes and as they PITTSBURGH’S GREENWAY SOLUTION move around the City. When cared for, With hundreds of acres of uncared for these spaces are lush forest ecosystems and undevelopable land entering the that support ecological vitality in the City’s portfolio through the 1970’s, surrounding neighborhoods. When they Pittsburgh needed to craft a policy to lack care or monitoring, these spaces can prevent this land from further promoting quickly become degraded through the and compounding blight. In 1980 the active destruction, illegal dumping, and Department of City Planning crafted the ecological decay of invasive species a land-conservation designation that proliferation. allowed members of the community to For decades many of Pittsburgh’s demarcate and maintain portions of the unmonitored green spaces were the City’s uncared for public open space. victims of aggressive illegal dumping, The program focused most intently on causing both environmental and economic developing the policies and procedures damage. Unscrupulous contractors and needed to transition parcels from tax waste haulers saw the abandoned land as delinquency or private ownership to an easy place to dump their construction permanent greenway designation. waste and hazardous materials while For the first several years, the process avoiding the fees associated with proper for finding and designating a greenway disposal. The already deflated value of was informal. The City identified surrounding properties became further areas with contiguous city-owned and impacted by adjacency to dump-sites. tax-delinquent vacant parcels that Illegal dumping continues today and is a coincided with steep slopes. The City, major concern for the region’s economic along with neighborhood planners, and ecologic health. approached neighborhood groups to In addition to being used as an illegal gauge their interest and capacity to landfill, vacant parcels and hillsides maintain permanent conservation land became overgrown with invasive in their community. With interest from plant species. After being clearcut
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