Part 2 RECOMMENDED RENEWAL ACTION

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. CENTRAL ~, E ~, SYRACUA GENERAL NEIGHBORHOOD RENEWAL PLAN ~ Ii

Part 2 RECOMMENDED RENEWAL ACTION

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WILLIAM F, WALSH, MAYOR

SYRACUSE URBAN RENEWAL AGENCY

CENTRAL SYRACUSE GNRP EXECUTIVE BOARD

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CITY OF SYRACUSE, N.Y. Hon. Willialll F. Walsh, Mayor THE COMMON COUNCIL Roy D. Simmons, President Albert Orenstein Mrs. Norma H. Coburn Mrs. Maria H. Farr Tarky Lombardi, Jr. H. Newcomb Steuart, Jr. Walter J. Ludovico Stanley J. Laskowski John J. Handlin William S. Andrews SYRACUSE URBAN RENEWAL AGENCY Mayor William F. Walsh, Chairman Roy D. Simmons, President of the Common Council H. Beaman Tremble, Commissioner of Finance CENTRAL SYRACUSE GNRP EXECUTIVE BOARD George B. Schuster, Commissioner of Urban Improvement (1964-) George A. McCulloch, Commissioner of Urban Improvement (1958-1964) Sanford Getreu, Commissioner of Planning Thomas E. Ward, Director of the City-County Office of Economic Development John R. Searles, Jr., Executive Vice President of the Metropolitan Development Association CENTRAL SYRACUSE GNRP SUPPORTING STAFF Department of Urban Improvement: Robert L. Hale, Jr., Deputy Commissioner Henry P. Wilhelmi, Principal Planner Judson O. Allen, Senior Planner William Wasserstrom, Senior Planner Department of Planning: R. Spencer Steele, Deputy Commissioner .,,\ Metropolitan Development Association: .John G. Stone, Assistant to Mr. Searles CONSULTANTS Barton-Ascnman Associates, Consultant Harry Weese & Associates and Planners Collaborative, Associated Consultants

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A GENERAL NEIGHBORHOOD RENEWAL PLAN :1 FOR CENTRAL SYRACUSE, NEW YORK I

,) , Part 2 RECOMMENDED RENEWAL ACTION " t

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JULY, 1965 CONTENTS The General Neighborhood Renewal Plan, 3 Policies for Planning, 4 I Policies for Action, 5 Prospects for Growth, 7 1 Summary of Redevelopment Activity,10 The Opportunity Areas, 15 Modernization of Salina Street,16 The New Clinton Square, 18 Onondaga Creek, 20 Other Unique Development Opportunities, 22 Land-use and Zoning, 23 I The Circulation and Parking Plan, 26 1

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THE GENERAL Central Syracuse is the center of NEIGHBORHOOD government, business, and cultural opportunity for over a million residents RENEWAL PLAN of Upstate New York. Government and civic leadership have together initiated a program of improvement and economic development that would, under "Our goal is nothing less than to make A General Neighborhood Renewal this plan, be extended and intensified. Central Syracuse the major center of Plan (GNRP) is called for when an business life and cultural opportunity urban renewal area is of such scope The program of improvement and in Upstate New York. We want to make that a series of renewal projects may development is needed to preserve the have to be initiated over a period of city's vital assets. One out of every the center of the city a strong symbol of years. The GNRP for Central Syracuse seven job opportunities in Onondaga ,I the quality, prosperity, and character is intended to serve as the guide for a County are found in Central Syracuse. of Syracuse and Onondaga County. program of action utilizing the full Forty cents out of every dollar in sales We are striving to attract new enter- range of constructive private and pub- tax revenues and more than a fourth II prises, to improve our position as a lic forces in community development. of all real estate taxes paid in the city are derived from "downtown" business meeting-place and a market-place, and The plan for Central Syracuse has activities and properties. Economic to make the heart of the city more emerged from a number of activities activity amounting to hundreds of mil- attractive for working and living." involving city agencies, their consult- lions of dollars each year contributes ants, and many citizens acting in both heavily to the prosperity of the whole WILLIAM F. WALSH, mayor formal and informal advisory capaci- metropolitan area, and it is in the heart October, 1964 ties. Preparation of the plan has re- of the city that many of the social, "" quired a series of technical studies, the cultural, and governmental centers that findings of which have been set forth serve the region are to be found. in memorandum reports. Part 1 of the plan, Development Policies and Objec- The urban renewal program is most tives, published in October, 1964, es- important because it represents a way tablished a number of vitally important to capitalize on the great potentials of development policies and objectives that Central Syracuse. It is the city's great- were adopted as guides for the recom- est single opportunity to create more mended renewal program and the basic jobs, attract more investment, replenish land-use, circulation, and other plans the tax base, and add new means of I on which the action program is based. cultural enjoyment. It is a unique op- This report, Part 2 of the plan, is a portunity to make the daily trips of summary of the action program and thousands of persons more convenient I basic plans, prefaced by a description and comfortable, make more business I . of the economic prospects that make services available, and create a new en- achievement of the recommendations a vironment for enterprise, leisure, liv- realistic possibility. ing, and worship. 3 U_J

II POLICIES The recommended plans and program for essential business services, distribu- ~ reflect four basic policies established tive facilities, centers of training and I 1 FOR PLANNING at the outset of planning activity. These education, and places of worship and I policies are necessary to the goal of inspiration. Housing of varied type and providing for a Central Syracuse that price is needed for those who want to will, in its form and its facilities, meet live close to the heart of the city. all the requirements of its role as the I. economic and cultural heart of the Third, Central Syracuse should be reglOn. accessible from every '(I,eighborhood and industrial area of the city and from all Fir'st, Central Syracuse should be parts of the state and nation. New planned as an intensely-developed and freeways and Syracuse's modern air- compact district, essentially for those port facilities will serve this purpose activities and enterprises that especially well for years to come, but additional need this "optimum" central location: improvements in highways and public headquarters of administration and transit must be planned, including dis- commerce, retail establishments, gov- tributor facilities projected for the ernmental administrative centers, news central area itself. Additional parking media, accommodations for conventions facilities will have to be planned for and visitors, cultural and entertainment the future as part of a well-designed activities, and tourist attractions. In- system. Internally, the need is for easy tensive development and compact ar- circulation within the compact center, rangement is needed to enable con- with primary emphasis on the comfort, venient, face-to-face contact in the ~ convenience, and safety of pedestrians. exchange of ideas, information, goods, and services. Fourth, Central Syracuse should be exciting by day and by night and be a Second, Central Syracuse should also place of beauty with pleasant surround- I be planned to accommodate the related ings,. it should preserve the best of past !I activdies necessary to support its re- traditions while building skillfully for gional functions. There must be space both today and tomorrow.

4 POLICIES Just as the preparation of plans re- by the city in order to stimulate eco- quired conscious aims and policies, so nomic growth, to replace the old and FOR ACTION has the action program been based on worn-out with the new and productive, predetermined agreement in principle and to provide a new environment for as to the nature and extent of the a prosperous city center. public-private effort that could be relied upon in the future. Third, the city must make full use of its regulatory powers to the extent First, a number of major public im- necessary to protect and enhance Cen- provements will be necessary. These in- tral Syracuse. The zoning ordinance, clude important new highway develop- especially, must help to reserve this ment and significant rearrangement of area for the kind of uses that are most traffic and parking patterns; new valuable in a Central Syracuse loca- pedestrian and transit facilities; pro- tion and that are most efficient when vision of open space; and modernization grouped together. of utility systems. Policy on this type of action is to regard such projects as Fourth, business leadership must high priority measures for which public make the major contribution to the expenditure is made to create an en- ultimate full development of Central vironment conducive to the major pri- Syracuse. This calls for investment, vate investment that will produce city- large and sm?,ll, based on confidence in wide economic benefits. the future of the area. It calls for promotion of new development through the Second, the Central Syracuse pro- attraction of enterprises not now lo- gram will require continuing emphasis cated there. It calls for cooperation in on urban renewal, in which the city's the joint public-private elements of the powers and funds, induding the credits program, as has already been evidenced accruing from public improvements, are in the attraction of new enterprise combined with federal and state aid to and improvement of the environment provide sites for new development. This, through smaller-scale, but significant, too, must be regarded as an investment modernization and beautification.

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5 <.D PROSPECTS gested location for production, distribution, and administration of region- FOR GROWTH al and national activities. The "personality" of the city- characterized by its great educational, The plan for Central Syracuse is de- cultural, and professional centers and signed to accommodate more than its civic enterprise-is attractive to economic activities that increasingly $200,000,000 worth of private construction through a combination of urban are finding their way to communities renewal and public improvements over having these attributes. the next 10 to 15 years. Syracuse was the fastest-growing To be realistic, the component plans of N ew York State's metropolitan areas between 1950 and 1960; and potential if a supply of land and an and programs are based on competent estimates of the market for land to be was first in rate of manufacturing environment can be provided to meet used for various private purposes, on growth, first in rate of wholesale the needs of its vital role in the region. growth, and second and third in rate projections of likely needs to accom- There is the function of serving as the 'I modate public activities, and on require- of growth in services and retail ac- symbol of the city and the region: a ments for land to be used for traffic and tivity, respectively, from 1954-1958. center of government, a place of his- parking, open space, and other ameni- I Within the growing metropolitan " ties. toric character, a -reputation for culture area, Central Syracuse functions in and learning, and a "skyline" that rep- ~ p Several highly significant facts point crucial ways and, therefore, has great resents the visual image of the city. to a strong, even dramatic, growth ~ potential for Central Syracuse: PAST TRENDS AND PROJECTIONS OF EMPLOYMENT Syracuse SMSA (Madison, Onondaga, and Oswego Counties) I Syracuse is today "the city at the 1940 1960 1980 crossroads" in Upstate New York No. of Percent No. of Percent No. of Percent just as it was in earlier days, even Employment Field Employees of Total Employees of Total Employees of Total though freeways, rail lines, and air- Agricultural 14,208 9.9 6,740 3.2 4,200 1.5 Manufacturing 45,047 31.4 71,445 34.0 78,000 27.8 lines have replaced the Erie Canal Construction and Extractive 5,725 4.0 11,469 5.5 15,400 5.5 and the turnpikes at whose cross- Communication, Transpor- tation, and Public roads Syracuse had its beginning. Utilities 10,811 7.5 14,097 6.7 15,600 5.6 Wholesale Trade 4,044 2.8 7,299 3.5 13,300 4.8 The city is located at the northern Retail Trade 22,122 15.4 29,713 14.1 33,500 12.0 Finance, Insurance, and edge of the nation's great manufac- Real Estate 4,807 3.4 9,055 4.3 18,200 6.5 turing belt extending from Boston to Services, Government, and Misc. 33,763 23.5 51,557 24.5 90,000 32.1 New York, Detroit, and Chicago and Industry not Reported 3,033 2.1 8,796 4.2 11,800 4.2 is in a highly-favorable position to Total: 143,560 100.0 210,171 100.0 280,000 100.0 attract enterprise seeking an uncon- Source: U. S. Census (1940 and 1960); 1980 Estimates by Real Estate Research Corporation. 7 )1

There is the function of a regional PROJECTED NEW GROWTH IN CEI'-ITRAL SYRACUSE, 1962-1980 center of communications: a place for "face-to-face" interchange of ideas, news, knowledge, goods, and services . . . and the focal point for communications systems interconnecting the various parts of the region with the entire world.

There is the function of being the optimum location for those activities in the region that require a central location or close proximity to other central activities. . . ranging from few-of-a- kind enterprises, such as specialty shops, to the headquarters of commerce, administration, and finance and a variety of supporting facilities.

Taking into account the significant factors and key functions in Central Syracuse, market analysis and proj ec- tion of future needs produce the critical BASIC:: I prescriptions for planning. As previous- .. ~ - - .~ ~ ly stated, in Central Syracuse these estimates reveal unprecedented prospects, provided action can be taken to assure adequate land for private development PEAK PARKING DEMAND-- WITHIN INNER-- LOOP-- BY TRIP- PURPOSE, 1963-1980_m- - -- in an attractive environment, and pro- IN THOUSANDS vided there is vigorous private and gov- 12 14 16 20 22 ernmental cooperation in the promotion ::1 of community growth.

The major "attainable goals" that have been established by market analysis include the development through 1980 of the following: 2,645,400 square feet of new net usable office space 1,235,000 square feet of new net usable retail space 8

~~~~ ~ ~ ,', ,- 1,050 new hotel rooms poses, and sites for off-street parking. modated by the hundreds of millions of 1,200 new residential units (in ad- A major allocation of land must be dollars of new development would pro- dition to units to be developed in the made to accommodate between 18,000 duce, in Central Syracuse, a major Near East Side Project). and 22,000 parking spaces (compared portion-some 20 percent-of the em- with less than 12,000 today) to support ployment opportunities to be created in In addition, under optimum condi- the growth of other activities. Future Onondaga County in the foreseeable tions of renewal and promotion, signifi- parking space requirements are depend- future. cant growth can be expected in the ent in major part upon transit usage creation of sales outlets and display in coming years. If transit can attract The county is expected to add more facilities of manufacturers representa- more users, parking demand would be than 50,000 jobs between 1960 and tives; in the expanding areas of institu- reduced commensurately, but if, in the 1980. These gains will come mainly tional development and government; extreme, transit were to be discontin- from growth not in manufacturing, but and in the various types of communica- ued, parking needs would increase by in business and professional services, tions enterprises. at least 8,000 spaces, for a total require- finance, government, education, and ment of 26,000 to 30,000 spaces. other activities that to a major extent Other major needs include land for are strongly attracted to central loca- scenic open space, recreational pur- The activities that would be accom- tions.

CLINTON SQUARE --- m____-

SUMMARY OF In the plan for Central Syracuse, the tials for cleared land, anticipated re- realization of the area's optimum pros- location requirements and resources, REDEVELOPMENT pects is considered to be dependent on and the administrative and financial re- a series of five urban renewal projects, sources expected to be available to the ACTIVITY initiated in staged sequence through local public agency. The projects have 1973 and completed by 1978. logical boundaries and are of a reason- able size, so that they can be planned The end result of the five projects and carried out expeditiously. would be the accomplishment of an overall plan for land-use, circulation, "Downtown One" will include major Projects and Priorities and the community facilities and other new offices, retail facilities, and parking plans set forth in the several technical space which focus on MaNY Center; reports published earlier. The five proj- the first section of the Salina Street ects thus represent, first, a utilization improvement ; and the announced Sib- of urban renewal techniques established ley, Lindsay and Curl' Department by state and federal laws, including' Store. This project was initiated in 1964 rules determining "eligibility" for clear- and is currently in the execution stage. ance and redevelopment; second, the closely-coordinated and carefully-sched- The second priority project, "Down- uled execution of a related public works town Two", should complete redevelop- and improvement program; and, third, ment of the retail core, including the adherence to the policies and technical completion of Salina Street improve- decisions of the overall general plans ments and the revitalization of Clinton established as basic guides. Square.

The clearance and redevelopment The suggested third priority project, areas have been determined according "Downtown Three", would be located to criteria that identify structurally- west of Clinton Street and consist substandard conditions warranting re- mainly of street (Franklin Street) and moval of buildings, conditions that sug- parking improvements related to the gest rehabilitation, and conditions that "Downtown Two" and "Downtown justify the elimination of blighting in- Four" projects. fluences. Limited clearance in order to achieve critical planning objectives also "Downtown Four" should be residen- is indicated. tial in character and carried out in the southwest sector. By the time this proj- The tentative boundaries of the re- ect is considered, new residential de- newal projects and their sequence and velopment in the Near East Side will timing are based on the development have been completed and occupied, and objectives of the General Neighborhood a further demand for central area liv- Renewal Plan, apparent market poten- ing accommodation will arise. 10

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The fifth priority project, "Down- "Downtown One", already underway, town Five," is suggested for the north- creates an "anchor" at the southern end east area. It would include institutional of Salina and Warren Streets, charac- redevelopment and the creation of sub- terized by MONY Center and prospec- stantial amounts of new office space. tive redevelopment that would inject new life into the southern sector and The table below sets forth the cur- bring about significant street improve- rently proposed starting dates of the ments. "Downtown Two" would create projects identified. Future conditions a northern "anchor" through the dra- may justify modification of priorities matic redevelopment of Clinton Square. and dates. The two projects together would mod- ernize Salina Street, through both the Strategy of Renewal The nature and timing of the pro- provision of new building sites and posed series of five Central Syracuse beautification and redesign of the street renewal projects reflects a strategy de- itself. vised to accomplish specific objectives in overall development while meeting The result of these two high-priority I the intricate requirements of market- projects would be the creation of a III ,i ing, scheduling of public improvements, permanent core of prime activities, link- . relocation, and financing. ing two revitalized "focal points" in Clinton Square and in the "southern A prime objective of the plan is to gateway" area. MONY Center and new Ii, stabilize, as well as improve, the Salina- pedestrian facilities would provide a

Warren retail-office "core", encourag- strong connection between this core and I; ing the continuous regeneration and Presidential Plaza. IlLI modernization of this major shopping

and employment center. This would be "Downtown Three" would then be III accomplished in major part through the undertaken to stabilize the western sec- highest priority projects, "Downtown tions of Central Syracuse by providing One" and "Downtown Two". essential supporting facilities, such as II!I SCHEDULE OF REDEVELOPMENT PROJECTS

Start of Acquisition, Survey Loan Relocation, Project and and and Land Project Number Planning Grant Demolition Disposition Completion 1 Spring, Summer, Summer, Fall, Summer, 1964 1965 1965 1965 1969 2 Summer, Spring, Summer, Fall, Fall, 1965 1966 1966 1966 1970 3 1967 1968 1968 1969 1972 4 1971 1972 1972 1974 1978 5 1973 1974 1975 1975 1978

111 J parking and major street improvement, nated on a smaller scale to help in and by strengthening and expanding achieving a series of arcades and inti- commercial land-uses. mate malls and planting areas. "Downtown Four" would further Water and sewage systems and other pursue the objective of strengthening utilities would be modernized and ex- the prime retail-office core by correcting panded to serve the existing area and serious blighting influences in the south- new growth as the projects proceed. west area and by creating a new, active environment, including a major park New public buildings, such as govern- and a horticultural "conservatory." mental officesand fire stations, would be included, as would library improvement Finally, "Downtown Five" would be and preservation of the City Hall undertaken in the northeast sector, so Tower. Important historic structures that on its completion the whole of would be maintained, so that Central Central Syracuse would have been dra- Syracuse may retain a pride in its past matically-redesigned to consist of an as it builds for the future. intense and exciting center of prime activities encompassed within a ring of The total "gross" public cost for the well-organized supporting facilities five projects is estimated to amount to Costs and Financing ranging from parkin.g to a variety of $103,405,980, of which $29,595,600 housing and refreshing open space. would be invested in public facilities and improvements of lasting value to At the same time, the strategy pro- the people and the productive enter- vides for staging of a major public im- prises in Central Syracuse. provement program closely related to the work of acquiring and redeveloping The estimated "net" costs, after re- land and rehabilitating, modernizing, sale of land to developers, would amount and maintaining the area's good struc- to $82,586,870. Of this sum, the federal tures. government would, through the Hous- ing and Home Finance Agency, bear Rights-of-way would be acquired to two-thirds and the State of New York help improve traffic flow and provide would bear one-sixth. The City of new thoroughfare connections while Syracuse would meet the remaining one- also creating better building sites and sixth of the net cost through contribu- land patterns. Site design and street tion of public improvements rather than improvements would be closely coordi- in cash.

12 ESTIMATED FEDERAL GRANT AND LOCAL GRANT-IN-AID REQUIREMENTS

Project 1 Project 2 Project 3 Project 4 Project 5 Planning Costs $ 448,040 $ 350,000 $ 200,000 $ 250,000 $ 250,000 Administrative Costs 979,240 1,441,440 456,190 361,930 734,110 Interest and Other Costs 970,180 1,566,270 449,250 423,330 713,500 Interest $549,430 $871,090 $254,170 $203,430 $412,850 Land Acquisition Expense 241,480 497,250 159,530 210,590 227,400 Property Management 0 0 0 0 0 Conservation Expense 75,000 75,000 0 0 0 Disposition Expense 104,270 122,930 35,550 9,310 73,250 Acquisition Costs 12,598,700 27,100,000 6,735,000 5,089,350 10,815,000 Site Clearance 400,100 503,550 352,100 243,100 280,000 Project Improvements 3,210,800 4,510,000 1,755,000 2,980,000 1,210,000 Subtotal: $18,607,060 $35,471,260 $10,047,540 $9,347,710 $14,002,610 Project Improvements and Supporting Facilities (Local Non-Cash Grant- in-Aid Credits) 6,853,250 2,106,250 1,813,500 62,500 5,094,300 Gross Cost: $25,460,310 $37,577,510 $11,861,040 $9,410,210 $19,096,910 Disposition Proceeds 6,256,260 7,475,800 2,133,150 558,950 4,395,150 Net Cost: $19,204,050 $30,101,710 $ 9,727,890 $8,851,260 $14,701,760 Local and State Share 6,401,350 10,033,903 3,242,630 2,950,420 4,900,590 Local Share 3,200,675 5,016,952 1,621,315 1,475,210 2,450,290 Federal Capital Grant 12,802,700 20,067,807 6,485,260 5,900,840 9,801,170 Relocation Grant 1,250,000 2,210,000 637,000 712.,000 1,268,000 Note: Planning costs for Project 1 include GNRP planning funds ($232,220).

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Relocation of People As the rebuilding of Central Syracuse supply by enabling the development of proceeds, an important activity will be a new neighborhood which would con- and Enterprises the relocation of those businesses, tain 500 to 700 moderately-priced homes families, and individuals who nowoc- and apartments. cupy substandard structures and will be displaced by necessary public works Some 840 business concerns would be and other improvement activity. affected by the program and require new quarters. The major types of relo- As a major objective of renewal is cation for these businesses would be to improve the conditions under which movement into new space provided by the city's people will live and enterprise Central Syracuse renewal, into other will be conducted, the "relocation pro- available space in Central Syracuse, gram" is carefully planned on a city- and, for those not necessarily requiring wide basis. a central site, into other space in the community. A few marginal businesses Based on current conditions, the esti- and some that might normally be dis- mated number of families to be re- continued in any event might be ex- located will be approximately 466, and pected not to seek another location. the number of individuals displaced approximately 737. Housing market Relocation of businesses would also estimates and projections of public pro- be conducted as part of the city's or- grams indicate adequate resourCes to ganized relocation program, in which view this relocation as a positive meas- enterprises benefit from various types ure for improving living conditions. of assistance, including utilization of "Downtown Four" will, of course, con- the program of the Small Business tribute to the city's standard housing Administration. NEW SOUTHWEST RESIDENTIAL NEIGHBORHOOD

ESTIMATED RELOCATION REQUIREMENTS I i I Project ! I 1 2 3 4 5 Total I I Number of Families in Area 36 17 45 277 138 513 Number of Families to be Displaced 32 17 45 277 95 466 Number of Individuals in Area 106 84 217 250 325 982 II Number of Individuals to be Displaced 100 20 217 250 150 737 Business Concerns to be Displaced 185 327 78 70 180 840

14 ESTIMATED FEDERAL GRANT AND LOCAL GRANT-IN-AID REQUIREMENTS

Project 1 Project 2 Project 3 Project 4 Project 5 Planning Costs $ 448,040 $ 350,000 $ 200,000 $ 250,000 $ 250,000 Administrative Costs 979,240 1,441,440 456,190 361,930 734,110 Interest and Other Costs 970,180 1,566,270 449,250 423,330 713,500 Interest $549,430 $871,090 $254,170 $203,430 $412,850 Land Acquisition Expense 241,480 497,250 159,530 210,590 227,400 Property Management 0 0 0 0 0 Conservation Expense 75,000 75,000 0 0 0 Disposition Expense 104,270 122,930 35,550 9,310 73,250 Acquisition Costs 12,598,700 27,100,000 6,735,000 5,089,350 10,815,000 Site Clearance 400,100 503,550 352,100 243,100 280,000 Project Improvements 3,210,800 4,510,000 1,755,000 2,980,000 1,210,000 Subtotal: $18,607,060 $35,471,260 $10,047,540 $9,347,710 $14,002,610 Project Improvements and Supporting Facilities (Local Non-Cash Grant- in-Aid Credits) 6,853,250 2,106,250 1,813,500 62,500 5,094,300 - Gross Cost: $25,460,310 $37,577,510 $11,861,040 $9,410,210 $19,096,910 Disposition Proceeds 6,256,260 7,475,800 2,133,150 558,950 4,395,150 Net Cost: $19,204,050 $30,101,710 $ 9,727,890 $8,851,260 $14,701,760 Local and State Share 6,401,350 10,033,903 3,242,630 2,950,420 4,900,590 Local Share 3,200,675 5,016,952 1,621,315 1,475,210 2,450,290 Federal Capital Grant 12,802,700 20,067,807 6,485,260 5,900,840 9,801,170 Relocation Grant 1,250,000 2,210,000 637,000 712;000 1,268,000 Note: Planning costs for Project 1 include GNRP planning funds ($232,220).

13 THE OPPORTUNITY AREAS

Although each of the projects in the MONY Center, along with its related Equally challenging opportunities for proposed series is characterized by improvements, is essential to the over- dramatic development exist in key spots comprehensive treatment of a major all strategy of the Central Syracuse in Central Syracuse. Like the overall I segment of Central Syracuse, several. plan, as it provides a developmental Illustrative Plan, the studies in the 'i "opportunity areas" within projects link between the main retail center on following pages are themselves illus- I have been given special study for one Salina Street and the grouping of civic trative and conceptual. Detailed plan- or more of the following reasons: buildings in Presidential Plaza. Per- ning and decision-making will be under- haps of greater importance, this suc- taken subsequently for each project in An area may offer especially dra- cessful .utilization of an opportunity which opportunity areas are to be matic development potentials; or has imparted new vigor and confidence found. The design studies are nonethe- A particular type of development to Central Syracuse a~ at the same time less important to the future renewal may be needed as a key element in it has added new values and strength in effort for the ideas they convey and the the overall Central Syracuse strat- economic terms. unique challenges they offer. egy; or Such a particular kind of treatment may be especially influential in es- MONY CENTER tablishing the character of its sur- roundings; or I It might be needed to give impetus to private development in the rest of II the project; or I! The development potential of a particular area may be dependent upon unusual promotional effort or civic cooperation.

Perhaps the best example of an "opportunity area" is that represented by the ongoing development of MONY a Center on a site and under circum- stances meeting virtually all of these

~ criteria. In this instance, the site was recognized as representing unusual op- , portunity; then preliminary studies were made available for promotion and a concerted effort by private entre- preneurial interests, civic leadership, and the city government was success- ful in making reality out of opportunity. 15

1'- MODERNIZATION OF SALINA STREET

STREET In the light of forecasts of population rison Street be redesigned for the ex- growth throughout the Syracuse region clusive use, at least at peak hours, of News Stand and the increase in "daytime popula- pedestrians and transit vehicles. A tion" in Central Syracuse, itself, the gently-curving "serpentine" design of Bus Shelter Salina Street shopping dis~rict is en- roadways would permit generous land- visaged in the Central Syracuse Plan scaping and relieve monotony. Transit as one of the strongest centers of its movement would be speeded up and Department Store Benches kind in Upstate New York. buses in Central Syracuse could be so Entrance rerouted as to increase the number of Sites for rebuilding and for new transit riders arriving in the heart of stores, such as the Sibley, Lindsay and the retail area by 25 percent. Massed Trees to Curr Department Store, would be Accentuate Curve gained in the "Downtown One" and Because turning movements would be "Downtown Two" projects. One of the eliminated, signals more effectively most important elements in these proj- timed, and midblock crossings made Pedestrian Crosswalk ects would be the treatment of the possible, the new design would make Salina Street right-of-way as a new Salina Street infinitely more attractive "transitway", which would be charac- and greatly reduce pedestrian hazards terized by beauty and convenience for and inconveniences. Bus Passing Lane pedestrian shoppers and by improved mass transit service. This treatment is proposed for ac- Bus Stop Lane complishment in the course of the two Today, all types of vehicles (half of highest-priority projects. As the result them only moving through Central of a study of various means of im- Syracuse and some parking at the curb) provement, the transitway offers lowest compete for the use of the 99-foot right- comparable cost, least disturbance of of-way with pedestrians, such as the existing vaults and utilities, greatest 70,000 people on foot who cross the in- advantage to emergency movement, and 0 100 tersection of Salina and Fayette Streets a high degree of flexibility in its use I , I Scale in Feet each day. The congestion and incon- during different hours of the day. But venience is a blighting influence on what most of all, this treatment would com- could be the finest of shopping areas. bine transit improvement and new Fla~ Poles pedestrian convenience with the beauty The Illustrative Plan proposes that and identity today found only in the STREET Salina Street between Water and Har- most modern of shopping centers. 16 ,l

Ground level view (top photo) of Salina Transitway showing bus shelters and pedestrian crosswalk. The south "gateway" entrance at Harrison Street is shown in bottom photo.

17 EXISTING BUILDINGS THE NEW CLINTON SQUARE 1. U. S. Post Office 2. Third Onondaga County Court House Perhaps the most exciting element of gain new building sites and a center of 3. Syracuse Savings Bank the future Central Syracuse can be a public activity. At the same time, the 4. Gridley Building / 5. Robert Gere Building revitalized Clinton Square. Here lingers Illustrative Plan preserves and en- 6. Primex Building hances the sites of historic buildings. (under construction) the historic quality of Syracuse's early 7. Kinney-Primex Parking Garage beginnings, but today this once-vital 8. State Tower Building center is blighted by heavy traffic on The new "square" would be an active 9. Onondaga County Savings Bank, Retail, Office, and Parking Complex streets and by obsolete land-uses. pedestrian area constructed at a lower level, connecting with broad walkways PROPOSED BUILDINGS The illustrative design calls for re- under a new trafficway to the Salina 10. Office Tower vival of beauty and historic reminis- Street retail center and other new de- 11. Parking Garage cence in a modern functional setting. velopment in "Downtown Two." Around 12. Office Building 13. Retail, Office, and Hotel Parking Trafficways would be redeveloped to the new "square" would be grouped the 14, Hotel meet the requirements of important older buildings to remain, a proposed 15. Parking Garage 16. Office Building traffic movement, but this would be hotel bridging Salina Street (as a visual 17. Office Building accomplished in concert with a rework- terminus to the shopping center), and 18. Retail and Office Building 19. Bank and Office Building ing of land and open space patterns to new office structures, including a 20- 20. Parking and Office Building story tower built on land reclaimed 21. Other Commercial Buildings mainly from street rights-of-way and overlooking the new square. All new development would be carefully guided

0 100 and regulated in design and landscap- l.J J ing to gain singular identity and con- Scale in Feet tinuity of treatment.

This cbncept would be made possible by the closure of James Place and Erie Boulevard, the creation of a two-way roadway on Water Street between War- ren and Clinton Streets, and by the connection of West Genesee to James Street via an improved Willow Street ] bypass. A slight realignment of Clinton Street would add to land available for Z ~ ::J ! 19 : new treatment not only in this area, but ~ in renewal blocks to the south as well. Z <{ In addition, Warren and Clinton Streets 0:: aciD LL 0 would be connected with North Salina ~ Street, diverting heavy traffic and limit- I ) , I ing movement to local circulation. 18

.. '-0r-' --I

ONONDAGA CREEK'

I /

A key to effective renewal of the western sectors of Central Syracuse is likely to be the re-utilization of the Erie-Lackawanna Railroad yards. and the clearance and rebuilding of the blighted area abutting the yards to the southwest.

The opportunity here is to create a new neighborhood along with a new public park in which might be located a new center of attraction complement- ing other Central Syracuse development as well as the new homes in its vicinity.

Sha It is proposed that 500 to 700 new Con ChU~~~w dwellings, moderate in price or rental, Concessio Promenade be developed in the new neighborhood, Proposed .Rat. meeting demands for Central Syracuse I?edestrian A~ homes, as indicated by housing market 'and CommunI" 8, Shoppers Arcade' analysis, and contributing to the city's 9. Proposed De tQtal housing supply. 10. Parki or C Ono' a Cr R,~. The Illustrative Plan also sets forth park development characterized by con- version of Onondaga Creek to safe, shallow lagoons along with landscape 20 \ I

I' I I I

:)" I

CONSERVATORY treatment that would extend on a slope to shield the railroad embankment from view. Franklin Street would be extended southward, bounding the park and neighborhood and forming a pleasant parkway-type drive.

The major attraction of the park is illustrated as a horticultural conservatory featuring year-round flower displays and seasonal shows. A highly- popular facility in many cities, the conservatory could be placed so that access to the main entrance would be from Clinton Street by means of a broad pas- sageway through the railroad embankment, relating the attraction to the retail and office center.

The park and its central attraction are especially important to key elements of overall renewal strategy. This improvement would complement, in an essential way, the rebuilding of the southern "gateway" and is considered to be a critical factor on which residential development is dependent. 21

~ J~ iT

Other important development oppor- downtown services nearby. Ware- OTHER UNIQUE tunities of a somewhat smaller scale housing would not be included in DEVELOPMENT include: this Center. The proposed location is the block bounded by Franklin, Fay- OPPORTUNITIES Creation of new building sites and ette, Clinton and Jefferson Streets. a series of plazas and pedestrian ways in the 400 block of South Salina A Graphic Arts Center for cen- Street so as to aid in developing a trally-oriented printing, publishing, DISTRIBUTION CENTER strong southern anchor and an at- news, advertising, design, and photo- tractive "entrance" to the main re- graphic services; many of which are tail district and connect Community currently located downtown and will Plaza and the Onondaga Creek de- be displaced through renewal. The velopment with a continuous pedes- proposed location is the blocks trian axis. bounded by F.A.I. 690, Clinton, Wil- low, and Franklin Streets. Such a A Distribution Center serving the center supports Syracuse's role as a needs of Upstate New York by virtue communications center. of its unexcelled location in Central Syracuse-the "crossroads" of two Creation of an attractive, compact interstate highways-and the fact downtown campus for higher educa- that the wholesale industry is cur- tion and special adult studies, utiliz- rently growing faster in Syracuse ing the existing facilities of Syracuse than in any other city in the state. University College. The proposed Basically, it would be a showplace. campus is bounded by F.A.I. 81, Instead of retailers traveling through- Genesee, Townsend, and Fayette out the region to see, compare, and Streets, with its main entrance purchase goods, a Distribution Cen- oriented toward Community Plaza, ter would enable them to do a large facing Genesee Street. Off-street volume of business with wholesalers parking would be provided immedi- under one roof, with other supporting ately adjacent to the campus.

22 t I I, I

LAND-USE 1,800 feet, a size comparable to major and Upstate New York, and it should regional shopping centers, and (2) in- supplement N ew York City and Boston AND ZONING tensifying major new retail activities as a headquarters location for national between Salina and Clinton Streets to office and service activities. create a well-balanced area centered on Salina Street and extending from Special objectives include (i) high Clinton Street to Warren Street. density, compact development to ex- pedite face-to-face contact and efficient Permitted uses would include those communication, and (2) coordinated retail activities which serve the metro- site development to achieve economical politan and regional market (by virtue use of land, appropriate mixes of com- of the variety, quality, or specialization plementary activities, integrated park- of merchandise) and those activities ing and loading, and pedestrian which serve the daily convenience needs amenities. As a base for the program of renewal of employees and shoppers; offices and and improvement, the Land-Use and hotels should be permitted above the Permitted land-use would include ad- Circulation Plans are recommended for ground level only, except for entrance ministrative, financial, business, pro- adoption as parts of the Syracuse Com- foyers. fessional, and governmental offices; prehensive Plan. Unlike the Illustrative wholesale and manufacturers' offices Plan, which deals with the area concep- A high concentration of floor space, (not including warehousing and stor- tually, the patterns dealing with land- employees, and buildings is recom- age); display and exhibition centers, use and circulation, though not highly mended, second only to the main office hotels, entertainment, and other serv- detailed, are thought of as more firm and service district. A floor area ratio ices of an "office" character; and retail and less flexible, subject to change only (F.A.R.) * of up to 8.0 and a ground stores of not more than 20,000 square through specific action. coverage of 100 percent would be per- feet in floor area. mitted. Off-street parking would not The Land-Use and Circulation Plans be required and could be provided only This district should achieve higher in- are subject to implementation both as a "special use," subject to specific tensity than other districts; a F .A.R. through zoning and through renewal scrutiny. All structures should have of up to 10.0 and a ground coverage of project design. The land-use districts, access from off-street loading areas. recommended for implementation in the 85 percent could be permitted. Off- zoning ordinance, are described below. Main Office and Service District street parking should be provided only as a "special use." Access to off-street Main Retail District This district should serve as the ad- loading facilities should be required for The main retail district should serve ministrative, financial, business, con- all structures. vention, and entertainment headquar- as the most concentrated and widely ters of the Syracuse Metropolitan Area Office and Service District diversified shopping center in Upstate I (Restricted) I New York, designed to provide a high I, quality of pedestrian amenities. Spe- *F.A.R. is the ratio of gross floor space of The function of this district is the all buildings in square feet divided by the same as the Main Office and Service cific objectives include (1) limiting the ground area in square feet of the entire size of the area to approximately 700x parcel. District, except that the building dens- 23

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! i ! ,I

LAND-USE AND ZONING PLAN

PREDOMINANT LAND-USES

-Retail

-Service -Other Commercial Government & Institutional

Parks & Plazas

" " Residential Other: @ Packi og G.,.go P Pack"g Lot

...n.. Zoni ng District Sou ndary

GN RP Boundary

\ \

\ -~

\ \ ~I d

ity should be restricted to protect the Local Business District and service establishments serving this development may be provided only as capacity of major access streets, accom- This district is intended primarily for "special uses." modate off-street parking facilities, and the convenience shopping needs of maintain a more "open" environment. adjacent residential neighborhoods. Per- Permitted land-use would be the same; A maximum F.A.R. of 1.0 and ground mitted land-use would include retail coverage of 40 percent is recommended however, individual retail establish- shops, business, and professional and ments should be limited in size to 8,000 for the entire area, including a mini- personal services; however, no estab- square feet and residential apartments mum site of 1,000 square feet per hous- I lishment should exceed 8,000 square feet ing unit. should be permitted above the first floor, of floor area. I which should be restricted to office or Other Recommendations retail use. A maximum F.A.R. of 1.0 and ground Signs: Within all districts specific A maximum F.A.R. of 4.0 and a coverage of 70 percent may be permitted. Off-street parking and loading regulations as to the character, size, ground coverage of 70 percent may be would be required for each use in ac- projection, and height of signs are rec- permitted. Off-street parking and load- cordance with the existing zoning ommended, as is a sign amortization , ing should be required for each use in schedule designed to gradually eliminate ordinance. I accordance with the existing zoning non-conforming signs. ordinance. I Medium Density Residential District Parking: It is also recommended that General Service District I This district would provide mod- the site plan for any proposed or ex- I This district is designed to accommo- erately-priced housing for persons panded use which provides 20 or more r 'j date those centrally-oriented commercial working in, or desiring proximity to, new additional parking spaces shall be services that are not compatible with the the downtown area, supplementing forwarded by the City Building Inspec- business uses permitted in other dis- high-income housing in Presidential tor to the Commissioner of City Plan- tricts. Permitted land-use would include Plaza and lower-income housing in the ning and the City Traffic Engineer, who offices; printing, publishing, and graphic Pioneer Homes. Specific objectives for shall review the plan and determine the arts activities; warehousing and stor- this district include (1) a complete new adequacy of design features, including I age; and utility companies and motor residential neighborhood of approxi- means of ingress and egress and the II vehicle sales, etc. Retail establishments mately 700 housing units, (2) develop- effect on adjacent streets. should be limited in size to 8,000 square ment of a maj or new park and lagoon feet of floor area. Off-street parking and following the alignment of Onondaga Planned Development: The "planned automobile service stations and garages Creek to provide a completely new en- development" concept is recommended should be permitted only as "special vironment compatible with residential as a means of permitting flexibility uses." redevelopment, and (3) a portion of the within specified limits for the design area devoted to the provision of housing of large and unique developments under A maximum F.A.R. of 4.0 and a for the elderly. single ownership or unified control. ground coverage of 70 percent may be Such developments would be subject to permitted. Off-street parking and load- Permitted land-use would include special review by the Commissioner of ing would be required for each use in apartments and townhouses, parks and Planning to assure its compatibility accordance with the existing zoning playgrounds, recreational buildings, with the objectives of the central area ordinance. churches, and schools. Limited retail plan. 25 rr

THE central area. It is estimated that be- the central area would be induced by tween 50 and 60 percent of the traffic the design efficiency of the distributor CIRCULATION entering the central area in 1963 did ring to travel as near as possible to not have destinations in the area. their downtown destinations via the AND distributor ring rather than traveling The overall objective of the proposed on lower order internal streets. PARKING PLAN circulation plan is to provide an orderly and clearly-defined system of streets General design criteria for the dis- that will furnish safe and efficient cir- tributor ring route should include: culation for passenger cars, trucks, 1. Efficient connections (preferably at transit vehicles, and pedestrians. It is the four corners of the distributor ring) important that each component of the to major arterial routes and expressway future circulation plan be designed to ramps serving the central area. serve specific functions and that the I overall circulation plan be integrated ~I 2. An efficiently designed roadway with i with existing and proposed arterial and i high capacity and with adequate pro- expressway plans. It is also essential visions to accommodate heavy turning that the circulation plan complement movements. the proposed land-use plan. 3. Selection of route locations around The major components of the pro- the peripher:y of the central area in a posed circulation plan for Central manner that will enclose major devel- Syracuse consist of a distributor ring opment areas within the confines of the route, penetrator routes, and interior distributor ring. service streets. 4. Controlled points of access from the The radial routes currently focusing Distr'ibutor Ring Route distributor ring route, in order to preserve the necessary operating efficiency hi on Central Syracuse, coupled with pro- The distributor ring route is intended posed extensions to the existing arterial to serve two very important circula- of the route.

Iii! street system and future access from tion functions in Central Syracuse. 5. Timing and phasing of traffic signals ',I both an east-west and a north-south in- First, this component of the circulation terstate route, will place Central Syra- plan would form a natural bypass route to insure progressive traffic flow on the ii! ,'il cuse in a highly accessible location with- around the intensely developed portions distributor ring. in its immediate trade area and within of the central business district for Ii, PenetTator Routes !II Upstate New York. These same radial traffic not destined to that area. Second, routes that serve motorists destined to this route would serve as a convenient The principal function of a penetrator Ii the central area are presently responsi- distributor route for traffic destined to route is to carry traffic from the dis- ble for funneling a considerable quan- the central business district which ap- tributor ring route to interior service tity of traffic, not destined to the cen- Ii proaches via major arterials and ex- streets and parking terminals withip tral business district thTOUgh the pressways; i.e., motorists approaching the central area. 26

H" , ,\.

CIRCULATION AND PARKING PLAN

- Distributor Ring Route & Willow Street By-Pass

Penetrator Routes ..-.. Interior Service Streets

0000< Restricted Access Streets

+..... Access Ramps .--... Transit Priority Streets ; - Existing Municipal Ii Iii Parki ng Structu re Ii Ii:[]JJ L Proposed Municipal Parki ng Structure rr~--ll --- ~\ r t 800 ~ ".;

l" I: I I Design criteria for the penetrator Interior service streets may be de- THE PARKING PLAN routes should include: signed to serve one particular function or a combination of the above functions. The proposed parking plan provides 1. A sufficient number of penetrator Although interior service streets 'are an off-street facilities to serve three types routes should be provided to serve the essential component of the overall' cir~ of daily users: internal access needs of the central culation plan, special design techniques area, but the number of penetrators and and traffic control devices should char- 1. Long-term and all-day employee their locations must be controlled in acterize the lower order function of parkers-Iocated within 1,500 to 1,800 order to preserve the operating effi- these streets. feet of major employment and in prox- ciency of the distributor ring route. imity to the distributor ring. It is recommended that certain in- 2. The penetrator routes, because of terior service streets, such as East 2. Short-term shopper, business, and their limited number, must be designed Onondaga Street, remain open to patron parkers-Iocated in medium- il and operated as efficient traffic carriers. vehicles, but have their function re- sized structures within 400 to 600 feet I of major destinations. 3. When existing roadway alignments stricted to local access only. Access may ~:I be restricted either by physical controls I and land development make it imprac- such as movement barriers and posted 3. Executive parkers and others re- tical to connect major and secondary quiring midday use of autos-located regulatory controls, or by design tech- external access routes to the corners in short-term facilities or in private niques that would discourage motorists of the distributor ring route, natural facilities within buildings which gen- extensions of these approach routes into from traveling these streets unless they erate their use. the central area should be developed as had a specific destination along such a street. penetrator routes. For the most part, curb parking has been eliminated within the retail and 4. Penetrator routes may be discontin- Bypass Routes service core and on major streets re- uous or follow irregular alignments The operating efficiency on the dis- quiring full pavement usage to accom- within the central area in order to distributor ring route is dependent upon modate future traffic volumes. courage their use as through-traffic the development of outlying bypass I~ carriers. This feature may not be nec- ~ routes to remove future increases in Considering the existing parking sup- essary, especially if an efficient distribu- crosstown, through traffic from the dis- ply, anticipated parking losses due to ':~ tor ring route makes it more attractive tributor ring route. new construction, and recent parking r for through traffic to bypass the CBD. gains, it is estimated that between 'I" An example of a potential bypass Inte1'ior Service Streets 11,100 and 14,100 new parking spaces Ii' route in the immediate GNRP area is i,il: will need to be developed. II Interior service streets perform many the proposed connection between W. essential functions, including direct ac- Genesee Street and James Street via It is proposed that the City of Syra- cess for autos, taxis, and service vehi- Willow Street. This connection would cuse provide a major portion of these cles to buildings requiring such access, reduce traffic conflicts and traffic con- new spaces (approximately 4,000) in access to parking facilities, bus circula- centrations currently prevailing along seven new public parking structures, tion, emergency vehicle access, and Erie Boulevard and West Genesee most of which could be coordinated with necessary circulation for internal and Street between Clinton and Salina new private construction so that land is local vehicular movements. Streets. not removed from the tax rolls. 28 J 1

TECHNICAL PUBLICATIONS Central Syracuse General Neighborhood Renewal Plan 1. BACKGROUND STUDIES 1 A Growth Influences and Historic Features 1 B Physical Features and Utilities 1 C Land-Use and Building Condition 1 D Ownership and Property Values 1 E Current Projects 1 F Analysis of Permanence and Change 1 G Traffic and Transportation

2. PLANNING PRINCIPLES AND OBJECTIVES 2 A Principles of Function 2 B Principles of Physical Arrangement .. 2 C Principles of Transportation and Parking 2 D Principles of Design

3. PLANNING PROJECTIONS 3 A Projection and Determination of Needs

4. THE GENERAL NEIGHBORHOOD RENEWAL PLAN 4 A Preliminary Recommendations for the GNRP 4 B Preliminary Recommendations for Implementing Measures 4 C Preliminary Recommendations for Major Public Improvements

PARTICIPATING STAFF B~RTON-AsCHMAN ASSOCIATES:Robert B. Teska, project director; Fred- erick M. Schweiger, engineering associate; Frederick T. Aschman, administrative supervisor. HARRY WEESE AND ASSOCIATES: John H. Vander- Meulen, architect. PLANNERS COLLABORATIVE:Alan G. Winslow.