Desire Area Neighborhood Planning District 7 Rebuilding Plan Desire Area Neighborhood, Planning District Seven

Table of Contents Introduction

A. Desire Area Neighborhood 3 Approximately 100 days after Hurricane Planning District 7, the subject of the Ackowledgements Location and History 3 Katrina struck, Motion M-05-592 was following report, includes 4 geographically With grateful appreciation the planning team Recovery Vision and Goals 4 unanimously passed by the City Council of specific neighborhoods: St. Claude, St. would like to thank all the residents of Planning Process and Neighborhood Participation 5 New Orleans. This motion ensured that Roch, Florida Area and Desire Area. community-based, neighborhood-by- District 7 who participated in this planning Planning Efforts Pre-Hurricane Katrina 6 neighborhood planning would be central to Basic assumptions also formed the basis for process and without whose participation this decisions associated with the recovery of the the Planning District 9 Recovery Plan: plan would not be possible. B. Pre-Hurricane Katrina Neighborhood most devastated areas of New Orleans. The Existing Conditions 9 City Council was adamant that the people 1) That a flood protection system will Land Use and Zoning 9 most impacted by the storm would play a be designed to withstand future catastrophic City of New Orleans Pre-Katrina Demographic Profile 9 central role in defining the future of their loss from a 1 in 100 year storm and that this C. Ray Nagin, Mayor Recreation and Open Space 11 communities. Overall, 47 of the 73 is a commitment by the Federal Roadway Hierarchy and Jurisdiction 11 neighborhoods delineated by the City’s Government; New Orleans City Council: Housing, Architecture and Historic Preservation 12 Planning Commission have had plans prepared as part of this process. 2) That stringent building codes will Oliver M. Thomas, President be implemented to further limit wind C. Hurricane Katrina Neighborhood Impacts 13 Arnie Fielkow, Vice-President The City Council charged a team of damage; Extent of Flooding 13 Shelley Midura, District A consultants overseen by Lambert Advisory & 3) That the basic urban structure of Damage Assessment Stacy S. Head, District B SHEDO with assisting neighborhoods flooded the city is sound and that rebuilding will Residential Properties Damage Assessment 13 James Carter, District C by Hurricane Katrina in developing respect this structure; Cynthia Hedge-Morrell, District D Commercial Properties Damage Assessment 13 revitalization plans that are thoughtful and 4)That there is an organized, Cynthia Willard-Lewis, District E Infrastructure Damage Assessment 14 can be implemented, for incorporation into a coherent and operable Hurricane Evacuation Parks and Open Space Damage Assessment 15 citywide recovery and improvement plan to Program. Community Facilities 15 be submitted to the State of Louisiana and Project Management: Schools and universities 15 federal funding agencies. This document is one of forty-two (42) neighborhood plans Lambert Advisory, LLC Paul Lambert D. Neighborhood Rebuilding Scenarios 17 that meet that mandate. Neighborhood Re-population 18 SHEDO, LLC City Planning Commission: Shelia Danzey 2 E. Neighborhood Recovery Plan 19 Planning District Strategic Initiatives 19 Designations Overall Planning Consultant: Plan Elements Bermello-Ajamil & Partners, Inc. Key Recovery and Development Projects 22 Alfredo C. Sanchez, AIA, AICP Land Use and Zoning 23 Parks, Open Space and Landscape Architecture 23 Hewitt-Washington, Inc. Transportation and Public Transit 23 Lonnie Hewitt, AIA Housing, Architecture and Historic Preservation 23 Utilities and Municipal Services 23 Neighborhood Planner: Human Services and Community facilities 24 St. Martin - Brown & Associates, LLC F. Implementation and Funding Strategies 25 Joseph St. Martin Deron Brown City of New Orleans Neighborhoods Rebuilding Plan

A. Desire Area Neighborhood

Location and History New Orleans and Northeastern Railroad, and the Public Beltway. The Desire Neighborhood is actually classified as two areas by the New Orleans In the early 1930’s, the Desire Area City Planning Commission: Desire Area and neighborhood was home to many low Desire Development. The Desire area is income whites that settled in housing units located in the northernmost part of along Almonaster, Chef Menteur, Peoples, Planning District 7. The Desire Area is and St. Ferdinand. This area is now known bordered by the Industrial Canal to its as Indian Village. As the area began to east, Florida Avenue to the south, Chef grow and the rail system boomed,the area Menteur Highway to the north, and the began to become more urbanized. The Peoples Avenue Canal and Almonaster Desire neighborhood was one of the first to 3 Boulevard to the west. The Desire promote African American homeownership. Development is bounded by Higgins Like in Gentilly, lots were approximately 60 Boulevard to the north, Florida Avenue to feet by 80 feet and ranged in price from the south, Piety Street and Desire Street to $3,000 to $4,000. The Colored Industrial the west and Alvar Road to the east. Home and School Association was one of the first major property owners in Desire. The history of development in the neighborhood is similar to the other The Desire Development, like the Florida neighborhoods in District 7 and dates back Development, was a direct result of the to 1899 when Orleans Parish passed 1937 Housing Act also known as the legislation to drain various back swamp Wagner Act. The Desire Development was areas of the city. Between 1900 and 1920, one of the last developmentsthat was various canals along Franklin, Alvar, and constructed under the Title III program of Desire served as a drainage system for the the 1949 US Housing Program. As part of area. From 1919 to 1935 the canals were the Title II program two elementary replaced with subsurface drainage and schools were constructed: Moton and covered. This made the area more Lockett. desirable for development and increased the level of railroad development. As the The Desire Development was one of the Image top left to right: area developed and the Industrial Canal more poorly constructed developments. In reached completion, light industrial order to cut costs, the structures were built A: Desire Street Ministries development became increasingly of wood with a brick veneer. The cost B: Sampson Playground attractive. By 1946, the area was savings on initial construction caused major C: Desire Housing Pre-Katrina supported by the Gulf Mobile, Ohio long-term damage. Insurance costs were Railroad, Louisville and Nashville Railroad, extremely high since the structures were Neighborhood Boundaries in District 7 (Above) Source: City of New Orleans - 1999 Land Use Plan Desire Area Neighborhood, Planning District Seven

not fire-resistant. Additionally, Edwards Elementary, Carver Middle and maintenance and upkeep were very Senior High School, St. Phillip School, expensive. Sampson Playground and Magrauer Memorial Playground. The site of the Desire Development was isolated from the rest of the neighborhood. Both the Desire Area and the Desire Being surrounded by the Industrial Canal, Development were devastated by Hurricane Florida Avenue Canal and railroad tracks Betsy in 1965. Saturated with over 6 feet made it almost impossible for residents of of floodwater, the homes have never been the development to interact with their able to fully recover. adjacent neighbors. Over the years the 4 development experienced major problems, Many of the neighborhood’s assets were including physical deterioration, poor greatly devastated by the flood waters and maintenance, impoverished conditions, catastrophic winds of Hurricane Katrina. drug-related crime, and documented However, neighborhood residents realize problems of police brutality and corruption. that the winds and waters of Katrina also created an opportunity to uncover some of In 1995, the Desire Development was the neighborhood’s forgotten assets. awarded a HOPE VI grant structured to improve the living conditions and environment of the development. The site has been since redeveloped as three separate phases known as Abundance Square, Treasure Village, and Savoy Place.

The Desire neighborhood has several neighborhood parks, churches, schools, and commercial developments. The neighborhood is rich in community and civic history. Some of the most notable fixtures Images from left to right: include the Barbara M. Andrews, Barbara Hooker, Willie Polk Jr. Multi Service Center, A: Aerial map of Desire Area Sampson Playground, St. Phillip Community B: Desire Housing Pre-Katrina Center, the Sidney Collier Campus of the C: Desire Housing - Abundance Square Louisiana Technical College, and the recently added Desire Street Ministries. Neighborhood schools and parks include City of New Orleans Neighborhoods Rebuilding Plan

Recovery Vision and Goals When Hurricane Betsy hit in 1965, the site Neighborhood Recovery Goals • Recover, expand, and design beautiful was reopened for collection of storm open spaces and parks; The Neighborhoods Rebuilding Plan provides related debris. It was officially re-closed in The recovery plan is to be used as a tool for a vision and framework for physical 1966 but many say the dumping continued the community to ensure that the character • New pocket parks to satisfy the needs of improvements, economic sustainability and beyond that point. In 1976 the dump site of Desire is preserved. The plan provides a Desire residents; community enhancements for the Desire was covered with sand and soil and list of projects to be implemented in the early, Neighborhood. redeveloped as several residential mid-, and long-term recovery phases. The • Street tree canopy replacement; neighborhoods known as Press Park, projects identified shall serve as catalysts for Vision Gordon Plaza, and Liberty Terrace. the rebuilding of the community. The goal for • Enhancements to all neighborhood parks the Recovery Plan is to carefully identify and playgrounds; The vision of the Neighborhood Recovery The redevelopment of the site included the projects that can be leveraged to benefit the Plan is to restore the quality of life in addition of housing, small businesses and community as a whole, such as: • Recover, expand, and design schools, 5 Desire to the level that existed prior to Moton Elementary School. For years after churches and libraries; and Hurricane Katrina and to make key completion of the development, residents • Compensation and equitable buyout improvements to the quality of life in the complained of health problems. This options for owners of those properties • State-of-the-art educational facilities with neighborhood by addressing high crime, prompted the Environmental Protection directly affected by the Agricultural Street community centers. large concentrations of blighted and Agency (EPA) to begin an investigation in Landfill; adjudicated properties, poor street 1986. Unsatisfied with EPA’s results, conditions, and unsafe health conditions. residents petitioned for retesting in 1993. • Remediation and proper redevelopment The site was eventually placed on the of the Agricultural Street Landfill site; The neighborhood was greatly affected by National Properties List as a cleanup site. Hurricane Betsy in September of 1965. Like Further investigation indicated that an • Improvements and enhancements to the Katrina, Betsy left much flooding and insufficient amount of soil had been placed streets, sidewalks, and infrastructure system disaster in its wake. It has been the cry of on the site. serving Desire; the neighborhood to ensure that they are not excluded in the rebuilding process as The EPA-supervised cleanup of the site • Attractive residential options; they were during the recovery period included the closure of Moton Elementary, following Hurricane Betsy. removal of the top two feet of soil, • Enhancements to the architectural placement of an orange plastic barrier, and character of the Desire neighborhood, with Images from right to left: The Desire Area is also home to the two feet of new soil. This was not and is opportunities for the restoration of historic Agricultural Landfill site, the only not satisfactory to the residents. They properties; A: Desire Area in Planning District 7 Superfund site in the country that has been have continued to petition to be relocated B: Desire Development under built on. The landfill site was utilized by from the toxic site into a safer • Elderly living centers; construction at time of storm the City of New Orleans as a city dump for environment. C: Carver Middle School both residential and industrial waste from • Commercial redevelopment; D: Helen S. Edwards Elementary School 1909 until its closure in 1952. Until 1960, the site remained as a sanitary landfill site. • Homeownership programs; Desire Area Neighborhood, Planning District Seven

PlanningPlanning ProcessProcess Data & Analysis Community Design team

Phase I Presentation Phase II

DistrictDistrict 99 Phase V VisionVision PlanPlan

Phase III Planning Process and The purpose of the design team was to Fellowship Hall (Atlanta), and Texas analyze data, provide neighborhood Southern University (Houston), allowing Design Neighborhood Participation Phase IV history, identify neighborhood patterns, individual community members to identify Charrette and define the characteristics of the issues, opportunities, liabilities, and assets In early May, several residents met at the Vision neighborhoods. in their neighborhoods. In addition, district Our Lady Star of the Sea Church to voice Plan their ideas as to how they wanted to see planning meetings were used to inform S B A their neighborhood recover. The initial By focusing on the facts generated from residents of the recovery process and to T.MARTIN ROWN & SSOCIATES meeting participation drew a crowd of the data collected, community members provide information from local, state, and LLP. approximately 50 residents. Subsequent were able to refocus their personal federal agencies involved in the recovery of meetings attracted larger and more excited opinions on how the neighborhood as a New Orleans. Forums were conducted to crowds, leading to an all-day planning whole would heal. The design teams allow individual community members the 6 discussion involving over 450 residents of evaluated the data and presented opportunity to get answers to questions the district. recommendations in a series of open pertinent to their return home. Surveys district planning meetings. were used to gauge the return intentions of The community began with a planning residents and business owners displaced process that allowed the residents, The first individual neighborhood meeting throughout the country. The planning business owners, and other stakeholders for the Desire Area and Desire process allowed the community to develop to determine how their community should Development was sponsored by Reverend projects and target areas. The data return. Design teams were created to help Ben Edwards in conjunction with the collected and community plans made pre- the association leaders understand the Neighborhoods Rebuilding Plans. The Katrina were used to help set priorities. basic planning principles in developing meeting was held on a Saturday morning in recovery plans for their neighborhoods. the heart of the neighborhood. Because Many groups and residents saw the Individuals took the information gathered there was no electricity, the residents recovery effort as an opportunity for the at the meetings into individual bi-weekly gathered in white open-air tents. They community to come together and formed or monthly association meetings. The viewed the purpose and goals of the more organized committees and neighborhood and district meetings recovery plans in a PowerPoint neighborhood organizations. One such became a conduit for sharing information presentation run on a generator and group was the merger of Churches United pertinent for the community’s return. projected onto a FEMA trailer. The meeting for Revitalization and Evangelism Community members began to work had more than 60 attendees and illustrated (C.U.R.E.) and the Upper Ninth Ward together to organize clean-up efforts, the commitment of a community that has Community Association. debris removal, and to have services traditionally been forgotten. Images from left to right: restored. On July 29, August 17, August 20, and A-C: Community Meetings The Community Design Team was made up August 27, 2006, larger community of residents, business owners, property meetings, or charrettes, were held at Holy Image at top: owners, community-based organizations, Angels Church (New Orleans), the Holiday Diagram of the Planning Process city support service providers, and elected Inn Select (Baton Rouge), St. Paul AME officials. City of New Orleans Neighborhoods Rebuilding Plan

Planning Efforts Pre-Katrina •buffers,Increased and recreational green opportunities space, landscaped In 1994, the City Planning Commission Parks• and green space buffering adopted the Local Renaissance District residential uses in the Desire and Florida sousing Administration Policy, enabling residents to take a more active role in the city planning areas process with regard to revitalizing their neighborhoods. This paved the way for Landscaped• transportation corridors – neighborhood groups to work with planners Press Street Corridor, Elysian Fields, St. Roch and for the Planning Commission staff to (above Florida), Franklin Ave., Almonaster, draft a Strategic Neighborhood Florida Avenue, and Florida Renaissance Plan. By involving residents as 7 major stakeholders, such plans would be New• recreation areas and public space more practical and relevant in dealing with neighborhood problems. The City Council's Neighborhood• mixed-use along the role became limited to the adoption of the Riverfront plan, the enforcement of any regulatory adjustments to the plan, and in assisting Neighborhood• mixed-use on Other the residents in monitoring the plan. Corridors

On July 9 and October 8, 1998, more than Neighborhood• and regional commercial 45 residents met for public workshops at corridors St. Paul’s Lutheran Church. The workshops were held to identify pivotal development Consolidation• of industrial development parcels and land use conflicts in order to help the City Planning Commission in Reduction• of spot zoning, live developing a land use map for the district entertainment, Alcoholic Beverage Outlets to be incorporated into the 1999 New Orleans Land Use Plan. (ABOs) and commercial encroachment In 2002, the Upper Ninth Ward Community Image top right: Throughout the workshop several key and Plan was formulated. The plan was pivotal parcels were identified and drafted sponsored by St. Mary of the Angels A: Proposed Land Use Plan into a schematic plan. Features of key Catholic Church, Mt. Moriah Missionary Source: City of New Orleans 1999 Land plan recommendations included the Baptist Church and All Congregations Use Plan following: Together (ACT) and authored by the University of New Orleans College of Urban and Public Affairs, with support from more than 15 churches within the neighborhood. Desire Area Neighborhood, Planning District Seven

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Similar to the process for the 1999 New Orleans Land Use Plan, residents identified issues and provided recommendations in the following topics.

• Coordination and Revitalization efforts • Housing • Vacant lots • Crime and public safety • Schools • Economic development • The old Kohn School site • Recreation • Industrial Canal lock replacement • Public facilities and infrastructure • Community cohesion Images left to right: • Transportation and street signage A: Proposed General Land Use for District This information was used as the basis for 7 Source: City of New Orleans 1999 Land initial interaction with residents and Use Plan business leaders of the community. B: HOPE VI Desire Plan - October 2000 City of New Orleans Neighborhoods Rebuilding Plan

B. Pre-Hurricane Katrina Neighborhood Existing Conditions

As indicated in the 1999 New Orleans Land Higgins is home to the Orleans Parish Public Use Plan and validated by the Katrina School Board’s central maintenance yard Recovery Planning process there were and a bus barn for the Regional Transit several key issues that were consistent Authority. The Desire Development is throughout all of the neighborhoods in the designated as RM-2, which allows a variety District, including: of dwelling types with population density maintained in the high-to-medium range. • Blighted and vacant property The Desire Area is comprised of almost • Deterioration along major corridors 48% home ownership while the Desire • Agricultural Street landfill Desire Neighborhood Present Land-Use Map (Above) Development is strictly low-income public • Conflict between industry and adjacent Desire Neighborhood Present Zoning Map (Below) housing. residential (Source: City of New Orleans 1999 Land Use Plan) 9 • Intrusion of alcohol beverage and Pre-Katrina Demographic tobacco sales in residential areas Profile • Noise, littering and loitering • Truck traffic and parking Age • Stolen and abandoned vehicle dumping Based on 2000 Census information, • Blighted and vacant property individuals between the ages of 18 and 34 • “Shade tree” mechanics years represented the largest percentage • Lack of city facilities and services, such of the Desire Area at 24.5%. The Desire as streets, drainage, sewer and park Development is similar as it relates to the space. 18-34 age group. This percentage is slightly lower than the percentage citywide for the same age categories. The Land Use and Zoning percentage of residents over the age of 65 is higher in the Desire Area (6.3%) than in A number of different zoning classifications the City, and lower in the Desire are identified. The Desire Area Development (4.4%). neighborhood is comprised primarily of single- and two-family residential Household Income Distribution structures. The area is zoned as RD-2 and The average household income for the RD-3. There are several pockets of Desire Area ($27,077) is 38% lower than institutional and public uses throughout the the City,s average. Average household neighborhood. There is also a large area income for the Desire Development is designated as LI (Light Industrial). Also ($14,392), almost 66% lower than that of known as the Gentilly Industrial District, the the city as a whole. area between Alvar, Louisa, Almonaster, and Desire Area Neighborhood, Planning District Seven

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Mobility and Transportation

The street patterns for the Desire neighborhood are often short and choppy. Major difficulties residents deal with include the series of one-way streets and severe potholes. Most streets in the neighborhood are continuous for north/south Upper left: and east/west travel. The Median Age Map - Desire Area Neighborhood A modest percentage of people in the 2000 neighborhood utilize individual vehicles to travel to work (65.9% in Desire Area and Upper right: 44.7% in Desire Development). However, The Median Family this is much lower than the average for the Income Map - city, which is why public transportation is Desire Area Neighborhood used nearly three to four times as much as it is in the city as a whole. Source: U.S. Census 2000; the Greater New Orleans Community Data Center at http://gnocdc.org/orleans/ 2000 City of New Orleans Neighborhoods Rebuilding Plan

Recreation and Open Space Roadway Hierarchy and Jurisdiction There are several neighborhood parks and open spaces within the Desire neighborhood: the The roadway hierarchy for the Desire Alvar Center/ Snowden Play spot, the Carver- neighborhood is pretty well defined with a Penn Playground, the Bertha Magrauer Center series of major and minor arterial streets. and Memorial Park, and Sampson Playground. Chef Menteur Highway, Higgins Boulevard, Benefit Street, Abundance Carver-Penn Playground is located at Street, and Florida Avenue are the major Almonaster and Metropolitan on a 4.5-acre east/west arteries through the neighbor tract. It has a both a baseball and football field. hood, while Almonaster, St. Ferdinand Clouet, Desire, Louisa, Piety, Alvar, and 11 Bertha Magrauer Center is located at Press and France serve as north/south throughways. Industry and is situated on a 4-acre site with a Of the major arteries, only one is a baseball diamond, basketball court, football Federal Highway (US 90 Chef Menteur field, paved sports area, playground equipment Highway); all other streets are under the and a gym that was being utilized as storage. jurisdiction of the City of New Orleans

Sampson Playground is located on a 1.98- The Desire Area is bordered by the acre tract of land at 3800 Louisa Street. Industrial Canal to its east, Florida The playground was a supervised NORD Avenue to the south, Chef Menteur site and home to a baseball diamond, Highway to the north, and the Peoples basketball court, football field, paved Avenue Canal and Almonaster Boulevard sports area, playground equipment, and to the west. The Desire Development is pool. bounded by Higgins Boulevard to the north, Florida Avenue to the south, Piety Images from left to right: Street and Desire Street to the west and Alvar Road to the east. A: Sampson Playground on Louisa B-C: Magrauer Memorial Park and Center D: Another view of Sampson Playground Park

Map Center: Public Facilities Map Source: City of New Orleans 1999 Land Use Plan Desire Area Neighborhood, Planning District Seven

Map Below: Pre-Katrina Blighted Property in District 7 - Desire Area

Housing, Architecture and Historic Preservation

The housing stock of the Desire Area has deteriorated over the years. Many of the homes are under the control of single owners that use them as rental properties, the majority of which have been classified as either blighted or adjudicated. The square bounded by Feliciana Street, Piety Street, Higgins Boulevard and Florida 12 Avenue has the highest concentrations. Several abandoned houses have become havens for drug use and crime and have been classified as “crack houses.”

The housing architecture in the Desire Area consists primarily of wood frame shotgun doubles and singles. The more recently developed Gordon Plaza, Press Park, and Liberty Terrace are slab on grade ranch style homes. The Desire Development (now known as Abundance Square, Treasure Village, and Savoy Place) consists of single- and two-story doubles, triples and quadplexes.

Although neither the Desire Area nor Development is designated in historical Images from left to right: registries, there is a tremendous amount of inadequate recreational facilities, poor history within the neighborhood. The street conditions, and inhumane living A: Almonaster at Interstate 10 Desire area was home to the Free Southern conditions. B: Old Desire Housing Project Theater, which produced the controversial C-D: New Housing in Adundance play “Ghetto of Desire.” The play exposed The Desire Development was also the scene the poor conditions that many of the of a highly publicized standoff between Map left: City of New Orleans - residents in the Desire projects faced in Black Panthers and the New Orleans Police Transportation Master Plan Element, their daily lives. It painted the picture of Department in 1970. 2004 City of New Orleans Neighborhoods Rebuilding Plan

C. Hurricane Katrina Neighborhood Impacts

Extent of Flooding Damage Assessment

Flood water depths ranged between 6 and Residential Damage 8 feet in much of the Desire neighborhood. Assessment Because the renovated Desire Development is composed of single- and two-story More than 45 percent of the residential structures, only the first floor units properties in the Desire neighborhood received flood waters. For those that were were deemed substantially damaged slab on grade, the outcome was different – according to the Damage Assessment Data waters easily reached the roof. Many of received from the City of New Orleans. the residents of the Desire neighborhood The Desire Development has not re- had to be evacuated from rooftops and or opened Post Katrina and represents a 13 waded through waist- and even neck-high housing stock of nearly 425 units. water to reach higher ground. Because this area represents one of the poorest areas of the city, many of these Flooding in and around the Agricultural residents make up the Diaspora of New Street Landfill Site caused many residents Orleans that has not been able to return concerns over potentially deadly toxins. home due to a lack of jobs and affordable Testing has indicated that the some areas housing. show benzopyrene levels at more than 50 times that allowable by the EPA. These Homes damaged over 50% will have to areas have since been fenced off and meet the 1984 Base Flood Elevation (BFE) Image top right: remain off-limits. or be elevated to the Advisory Base Flood A: Industrial Canal Lock Elevation (ABFE) as adopted by the City of Wind Damage New Orleans. Desire Area Neighborhood Flood Damage MapNew showing Orleans inundated- April 2006 areas of the Apart from the flooding of homes, neighborhoood (above). Source: City of Hurricane Katrina’s winds damaged a Commercial Properties substantial number of homes, in particular Damage Assessment the roofing systems. Katrina’s winds also uprooted a substantial number of trees on All commercial properties within the Desire Area Neighborhood Damage private property, street rights of way and flooded areas sustained a significant Assessment Map showing the extent of neutral grounds. This resulted in damage amount of flood damage. The commercial the damage to neighborhood structures to the streets, curbs, and sidewalks. The areas along Louisa Street and Piety (below).April 2006 Source: City of New Orleans - siding at the Desire Development peeled received the most flooding and have since away from the concrete block-reinforced not been able to return to the structures. neighborhood. Desire Area Neighborhood, Planning District Seven

Infrastructure not designed to hold heavy traffic and equipment. Over 8,600 linear feet of The infrastructure for the Desire 86,000 linear feet of streets in the Desire neighborhood was severely damaged. Area have been designated as failed or in poor condition and are in need of major Telecommunications: repair.( I don’t quite understand this The majority of the underground sentence) Katrina’s debris has also telecommunications lines were damaged resulted in clogged street drains and catch due to corrosion from the saltwater. basins. The neighborhood also faced poor Bellsouth and Cox are currently replacing street conditions and potholes pre-Katrina. their copper infrastructure with fiber optic This was an issue not only in Desire, but 14 systems. The above ground lines were city-wide. battered by Katrina’s winds and downed trees. The Desire Development is considered private parcels and therefore not under the Power: jurisdiction of the City of New Orleans. This Entergy has been able to restore 100% of property is under the jurisdiction of the the lighting and power services for the Housing Authority of New Orleans. neighborhood. They are continuing to However 1,300 linear feet of the 1,900 bring service to individual structures on a linear feet immediately surrounding the daily basis. development have been deemed as failed or in poor condition. Water & Sanitary Sewer: The sanitary sewer and water system in the Signage and Way-Finding: Desire neighborhood received major Over 85% of the street signage is missing damage. The New Orleans Sewerage and within the Desire neighborhood. These Water Board is identifying and repairing street signs are critical for way-finding, leaks and breaks in the system daily. The reconstruction recovery and emergency lift station and pump stations serving the services. neighborhood are at 100% capacity. Most importantly, the majority of the stop Images from left to right: Streets and Storm Sewer: signs and traffic signals at key The streets system was heavily damaged intersections and streets are either missing A: Flooded Buses at RTA by not only flood waters but from or damaged, creating a substantial traffic B: Street in Desire Area subsidence of compact fill used to support danger and hazard. C-D: Abundance Housing Damage due to street surfaces as well as recovery vehicles Katrina and debris contractors working on streets City of New Orleans Neighborhoods Rebuilding Plan

Sidewalks / Pedestrian Circulation: landscaping on major corridor neutral Even though the majority of the grounds sustained damage. Most are neighborhood travels by vehicular means, overgrown with weeds and debris. residents expressed their desire for pedestrian travel. The tree canopies allowed for shaded passageways and Civic Facilities: walkable communities. However, Katrina’s (Church and Community Facilities) wind uprooted trees, causing major damage to sidewalk systems. In addition, All of the civic facilities within the Desire debris contractors have substantially neighborhood were damaged. Many of the damaged sidewalks and curb and gutter facilities have begun restoring their systems as they remove storm related properties with their own resources and 15 debris from the neighborhood. help from the community. There are no public libraries in the neighborhood. The Police / Fire: closest library is the Alvar branch located Desire is serviced by the Fifth District in the Bywater neighborhood. There were Police Station. It is located at 3900 North two community centers (Magrauer and Claiborne. Residents have expressed Desire Street Ministries) in the neighborhood. extreme concerns about the crime in the neighborhood. The station did receive Churches served as a vital part of the flood waters and has since made minor neighborhood and have continued to do so repairs allowing for the station to be post-Katrina. Many of the churches have utilized again. returned and are serving as conduits for mental and spiritual support as residents The neighborhood is also serviced by the rebuild their homes and lives. Third and Fourth Fire District. Engine 6 / Ladder 3 are located at Old Gentilly and Louisa and Engine 8 is located at Desire Schools and Universities: and Florida. Both were damaged by flooding and wind and are in need of minor There are three public schools, Carver Middle, repairs. Helen S. Edwards and Robert R. Moton Image right to left: Elementary Schools, one private school, Saint Phillips, and one higher education institution in the Desire neighborhood. All received major A: Carver Middle School Parks and Open Space All of the parks within the Desire damage and none has reopened. B: Helen S. Edwards Elementary School neighborhood were significantly damaged. C: Desire Street Ministries In addition, the tree canopy and Desire Area Neighborhood, Planning District Seven

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D. Neighborhood Rebuilding Scenarios

The recovery plan will follow the existing strategies and site specific improvements address not only the damage caused by Neighborhood Repopulation neighborhood urban plan and organization, should be implemented. Hurricane Katrina, but to also turn them with special emphasis on restoring and into the community assets that these parks The neighborhood repopulation process enhancing the residential quality of the • Formulate policies and actions for the were and can become. appears to be a lot slower in Desire than in Desire neighborhood and its retail clean-up and maintenance of the other areas of the city. This is mainly due commercial and civic areas. community’s public realm and private • The construction of bike and pedestrian to the inability of the Diaspora to find parcels to create an adequate, healthy paths throughout the neighborhood turning employment and affordable housing in the A number of basic assumptions support the environment that allows the orderly them into the community assets that city. According to data received from the overall neighborhood rebuilding effort. repopulation of the neighborhood and that neighborhood has so desired. City of New Orleans Mayor’s Office of These assumptions are: projects an image of cleanliness and order Technology, fewer than 29% of the needed to further aid community faith and • The reconstruction of the water and structures within the neighborhood have • A flood protection system will be momentum for the reconstruction process. sewer system by the City of New Orleans applied for rebuilding permits. Many of the 17 designed to withstand future catastrophic Water and Sewerage Board, and its properties were rental and under control of loss from a 1 in 100 year storm and that • Identify and implement public sector continuous monitoring by the citizens of single ownership. Many of the renters are this is a commitment by the Federal financed Early Action projects to act as Desire and District 7. not able to return due to the properties not Government; catalysts for neighborhood reconstruction. being renovated. These include the following. • Reconstruction and new construction of • Stringent building codes will be the damaged street and sidewalk Through the planning process smaller implemented to further limit wind damage; • Fair and equitable buyout and infrastructure. neighborhood associations within Desire relocation options for the residents living have been meeting bi-monthly and, in • That there is an organized, coherent on or near the Agricultural Street Landfill Assistance and guidance in undertaking some cases weekly, to discuss recovery and operable Hurricane Evacuation site. key, district-wide projects such as: related issues and visions. Pre-Katrina Program; and, demographic information illustrated nearly • Essential public facilities and programs • Mitigation and redevelopment of the a 7.5% decrease in population throughout • That the basic urban structure of the identified in the Neighborhoods Rebuilding Agricultural Street Landfill site; the district. ACORN housing, a community city is sound and that rebuilding will Plan and other planning efforts and activist group, has been working very respect the basic urban structure of the documents. • Development of elderly housing options closely with the Diaspora to get critical City. within Desire if a block of blighted orinformation and progress to those unable • Implementation of key catalytic adjudicated land parcels becomesto return. The rebuilding scenario is based on the recovery projects to spur commercial available; assumption and fact that the basic urban development in the Desire neighborhood Desire, including the Development, has a structure of the District and the and Planning District 7, such as the • Recovery of all pre-Katrina blighted and total housing stock of approximately 1,800 neighborhood is sound and that long-term development of small business incubator adjudicated properties; and residential units. As of August 26, 2006 property value enhancement is dependent center along Louisa Street. almost 575 units are either occupied or upon the maintenance of the urban pattern under renovation. and layout of their neighborhood and • The restoration and improvement of • Renovation and re-population of community. Additionally, the following neighborhood park and open space to Abundance Square, Treasure Village and Savoy Place housing sites. Desire Area Neighborhood, Planning District Seven

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E. Neighborhood Recovery Plan

The Desire Neighborhood Recovery Plan proposes to revitalize based on a series of strategic initiatives that have been identified by the residents of Planning District 7, including the Desire neighborhood.

Strategic Initiative No. 1: Promote efficient, long term growth within Desire.

Establish boundaries for areas that are 19 available for intense development activity compared to those areas that require sensitive development, such as Brownfield or Superfund sites.

Development small business incubators along Louisa Street, allowing for a mixture of commercial, residential, and recreational uses.

Strategic Initiative No. 2: Maintain a balanced yet diverse and dynamic pattern of land uses that maintain a quality of life in Desire.

Encourage the development of compatible land uses, avoiding mixtures of incompatible uses in close proximity to each other.

Encourage the creation of districts that include recognizable identity and clustered development of compatible land uses. Images top to bottom: A: Existing damaged street conditions Encourage more green space and open B: Proposed street improvements / beautification project with proposed resurfacing, new drainage, street trees, street lighting and crosswalks Desire Area Neighborhood, Planning District Seven

space areas within the primarily residential the neighborhood itself. It is and residential lots that fall into public homes. Historically, the challenges of neighborhood. recommended that an advisory board be ownership. The “Lot Next Door” program is dealing with contractors, permit inspectors, created, with representation from each of one of a series of proposed housing policies lenders, etc. have proven particularly Strategic Initiative No. 3: the neighborhood associations within that have been developed as part of the difficult for elderly households after they Utilize, revitalize, and maintain the Desire to ensure that the Recovery Plan Neighborhoods Rebuilding Plan and takes have experienced similar trauma. urban areas of Desire while continues to incorporate the needs and direct aim at some particular market Additionally, there are a substantial number strengthening the economic capacity requests of the community. hurdles that slow the redevelopment of of areas of the City including Lakeview and and quality of life in Desire. many of these properties. In its simplest areas of Gentilly, where rebuilding homes Neighborhood associations within Desire form the Lot Next Door program will offer with damage in excess of 50 percent will Enhance existing green space and should continue to meet bi-monthly with homeowners who are committed to require the total reconstruction at three commercial areas. their residents and monthly with elected redeveloping their homes, the ability to feet above grade or the Base Flood 20 officials, the business community, and purchase publicly owned adjoining Elevations, whichever is greater. Many of Encourage infill development within the neighborhood associations outside of the properties prior to these properties being these homes will have to be raised close to existing urbanized area, including Desire neighborhood to review, comment offered to any other buyers. This option one story making them a difficult housing demolition and rehabilitation of all on, and update the recovery plans. would be provided should the property end product type for people with physical substandard structures and up in public ownership either through the challenges. underdeveloped property. Strategic Initiative No. 6: adjudication process or through the sale of Implement Housing Recovery the property to a public entity through the Elderly homeowners are clearly a special Strategic Initiative No. 4: Initiatives. Road Home or other public acquisition group with specific needs, and currently Develop and implement suitable program. there are no programs targeted to this zoning classifications. A number of housing initiatives are subgroup of homeowners. A targeted proposed as part of the Neighborhoods ELDERLY MODERATE INCOME elderly homeowner program, which will Structure overlay zoning districts that Rebuilding Plan and are presented in the CONDOMINIUM ROAD HOME TIE-IN allow elderly households to tie their Road restrict heavy truck traffic and alcohol and overall policy element of the plan issued Home grant to senior specific elevator tobacco sales within a 1-mile radius of under separate cover. Below is a summary It has become quite apparent through the multi-story condominium projects to be schools and parks. of these policies. neighborhood planning process that senior developed throughout the City, is needed. households, which have the strongest ties There has been wide support for dedicated LOT NEXT DOOR to the community and have expressed the multi-family senior housing product in many Strategic Initiative No. 5: strongest voices for rebuilding and parts of the City, but particularly in areas Develop and implement policies, The principal thrust of redevelopment returning to the City, also face some of the where younger homeowners have aging Images left to right: regulations, and processes that programs and policies that encourage the most significant challenges in redeveloping parents living nearby. In some cases, there represent the vision of each speedy redevelopment of neighborhoods or rebuilding their homes. First, there are may be a need to increase the grant Proposed designs for State of the Art neighborhood. must match various government powers many areas of the City that had a high amount or provide a low interest loan to the School Facility and financing tools to the local housing concentration of elderly homeowners household if there is a gap between the There is no better individual or group to and real estate market conditions. A key (Lower Ninth, Pontchartrain Park, and value of the buyout (and insurance ensure that the recovery of a community or question will be how to most effectively Lakeview) that sustained substantial proceeds) and the market value price of the neighborhood is fairly represented than encourage the redevelopment of homes damage and which will require the condominium unit. demolition and reconstruction of many City of New Orleans Neighborhoods Rebuilding Plan

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Project List for Desire Area Neighborhood Desire Area Neighborhood, Planning District Seven

USE OF SECOND GENERATION FUNDS Given the different market factors • Repair of neighborhood infrastructure, Strategic Initiative No. 8: AND EXPANSION OF HOME influencing the redevelopment of housing inclusive of major arterial streets and Promote and Monitor the PURCHASER ASSISTANCE PROGRAMS in different neighborhoods, there are a roadways Implementation of Key Recovery / variety of strategies that will have to be • Supplemental education programs for Redevelopment Parcels and Projects One of the principal issues that has come employed with regard to the sale of lots both youth and adults up repeatedly in neighborhood meetings is acquired through the acquisition program • Remediation of the inadequate drainage Plan Elements how properties that end up in public on the open market. These strategies on many of the neighborhood streets Key Recovery and Development ownership either through the adjudication include the following. • Fair and equitable buyout and Projects or buy back process are going to be resold relocation options for the residents living in the marketplace. While the Lot Next • Recycle second generation proceeds on and near the Agricultural Street Landfill • Build an elderly mid-rise condominium Door program provides one method for from higher income neighborhood property site complex through acquisition of 22 recycling lots in the market, there are sales to properties in neighborhoods where • Restoration of adjacent neighborhood concentrations of blighted and adjudicated going to be numerous lots that are not values are lower. This will ensure that services such as grocery stores, banks, gas properties. acquired by next door neighbors that are more housing redevelopment dollars will and service stations, pharmacies, and drug going to have to be sold to third party follow to low-income areas than could stores • Conduct an economic development and purchasers. otherwise have be imagined prior to • Additional neighborhood street lighting comprehensive study for the Katrina. • Grant programs for all neighborhood redevelopment of abandoned industrial Assuming that there are few new churchesand faith-based organizations sites within the Gentilly Industrial District regulations associated with developing • Sell adjacent lots and blocks of lots in • Demolition of the Carver Middle and to create mixed-use facilities with small housing (i.e., some requirement that public ownership to experienced for-profit High Schools and construction of new business incubators. certain units must be homeownership vs. and not-for-profit developers when not state-of-the-art school and community rental) it is likely that the value placed on purchased through the Lot Next Door center • Conduct an economic development and many properties for sale will determine program. • Renovation of Louisiana Technical comprehensive study for the how quickly that property will be rebuilt School for construction and rehabilitation redevelopment of the Agricultural Street for housing. • Re-sell properties at fair market value training Landfill site into a public golf course and reduce price of lots only when very • Renovation and reopening of St. Phillip similar to Bunkers in Anaconda, Montana. Additionally, and realistically, there are a specific policy objectives are being met, School (Only if equitable buyout and relocation variety of neighborhoods throughout the such as providing for mixed-income • Immediate restoration and options are afforded) City where reducing the cost of a lot or housing in a neighborhood. redevelopment of New Desire HOPE VI unit to essentially zero will not be enough Revitalization project, which includes • Conduct an economic development and to ensure the redevelopment of the Strategic Initiative No. 7: Abundance Square (Phase 1A), Treasure comprehensive study for the future property. These are generally those Identification and Promotion of Early Village (Phase 1B) and Savoy Place (Phase development of a pedestrian and bike neighborhoods where land values were Action Projects II) and will consist of 425 units of single path along Almonaster Boulevard and quite low prior to Hurricane Katrina and family homes and duplexes that capture the Florida Avenue. homes were not built unless there was There are several key early action projects unique architectural style of New Orleans significant targeted public assistance that the residents of Desire would like to • Economic development of sites as listed related to construction. see, including the following. in Strategic Initiative No. 8 below City of New Orleans Neighborhoods Rebuilding Plan

Land Use and Zoning • Repair and improve mobility of the key neighborhood associations draft covenants flooding during torrential rainfalls. All thoroughfares and enhance the existing that will maintain the integrity and the existing street drains need to be cleaned • Enforce current zoning. street infrastructure through coordinated architectural character of the housing and flushed and additional drainage • Creation of Renaissance (urban design) efforts with the Department of Public stock. installed to accommodate the current Corridors along Louisa Street Works, RTA, and LADOTD to ensure inadequate areas. efficient lasting repairs. Begin the immediate repairs and new construction to the Abundance Square, Additional street lighting should be Parks and Open Space and •Promote pedestrian and bicycle pathways, Treasure Village, and Savoy Place at the installed to increase safety in the area. Landscape Architecture primarily along Almonaster Boulevard andold Desire development site to assist in Florida Avenue. providing affordable housing to those who All damaged sidewalks and curbs should be • Restoration of all existing neighborhood are still displaced. These housing options repaired and/or missing curbs installed. parks • Investigate the opportunities forwould hopefully provide opportunities for 23 residents to become part of the rebuilding • New neighborhood pocket park at reestablishing the Desire Streetcar line, process. Derbigny and Bartholomew. Park should extension of riverfront streetcar line. Human Services and Community be equipped with playground equipment, Facilities water fountains, water feature, and paved • Add benches and pedestrian lighting play surface. along designated pedestrian routes. Utilities and Municipal Services Throughout the neighborhood planning • New linear park along Almonaster Public Transit improvements as proposed process it became evident that healthcare Boulevard As Desire recovers in the rebuilding by the Regional Transit Authority. was a primary concern for the residents of • Tree enhancements along major process, it is essential that utilities and the neighborhood. There is a lack of thoroughfares such as: Almonaster, Louisa, municipal services be addressed healthcare facilities in the area. Affordable and Higgins. immediately. Traffic signals and signage Housing, Architecture and Historic healthcare should be provided and low- • Neighborhood identification signs at need to be addressed immediately as they income residents welcomed. entrances to all neighborhoods and Preservation are critical to way-finding not only for subdivisions, with locations to be residents of the Desire neighborhood but Currently the only gymnasium is utilized as determined by active neighborhood The Desire neighborhood is comprised of a for recovery contractors working in the a storage container. The only public associations. mixture of single family and multi-family area. swimming pool has been abandoned and homes. It is the desire of the Images left to right: neglected, creating a magnet for neighborhood to maintain and enhance the Garbage collection needs to be managed in mosquitoes. Transportation and Public Transit existing character of the primarily the same manner as any other residential neighborhoods and encourage neighborhood within the City of New The state-of-the-art schools proposed at The recovery transportation strategies and low-rise elderly condominium sites. Due to Orleans. Response times from police, fire the Carver Middle School site would also planning objectives mimic those of the the mixture of residential zoning and other city services needs to be quicker allow for a much-needed gymnasium and 2004 New Orleans New Century Master throughout the Desire Area neighborhood, and more reliable. should serve as a community center for the plan and the Upper Ninth Ward Community all of the housing programs listed above neighborhood as it recovers. Plan. Key major transportation projects are applicable as the neighborhood Drainage within the neighborhood is include: recovers. It is recommended that inadequate, often leading to extensive Desire Area Neighborhood, Planning District Seven

24 City of New Orleans Neighborhoods Rebuilding Plan

F. Implementation and Funding Strategies

Funding Matrix

The connection between the Neighborhoods Rebuilding Plan and potential funding sources is graphically represented by the Implementation Priority Matrix. The costs estimates are provided on an order-of-magnitude basis. As such, variations as to the scope of the project could result in variations in the final cost of construction. 25 In the process of cost analyses, consultations were carried out with the City of New Orleans Public Works Department to identify general cost guidelines typically used for the calculation of street improvements and reconstruction. Other sources of cost identification included the Means Cost Data and our team’s professional experience inside and outside New Orleans. Desire Area Neighborhood, Planning District Seven

No single source of funding or financial Finally, there are a variety of items or plan will be capable of dealing with the initiatives listed on the funding matrix capital improvement needs for total where a capital cost can not be attached or redevelopment and reconstruction of all the determined without further study, but the neighborhood projects and needs. community believed needed to be a central However, the funding matrix included in part of the plan. These include: this report shows different funding sources that could be made available for specific • Undertaking specific further studies projects and it should be expected that to determine the actual cost to layering of multiple sources of funding will governmental entities for certain be required in most cases. The ability to public/private initiatives (for which we have 26 obtain these funds will rest with the City of noted the cost of the study); New Orleans and neighborhood groups and advisory committees. • Housing initiatives for which there Each matrix matches proposed projects may be dollars already allocated through with potential funding sources identified the Road Home, LIHTC, private funding through the planning process and while not sources, or other sources but where the exhaustive in its scope, it serves as a guide additional gap in funding is impossible to to where funds could originate. Substantial determine at this point; financial commitments by federal and state entities are a vital ingredient in the • Other policies, including land use recovery effort and will provide the and zoning regulations, which the necessary economic infrastructure to community believed to be in the short and attract the private investment required to long term interest of the community; and create stable and vibrant communities. • Recurring operations (i.e., Each funding matrix, based upon expanded police patrols, library operations, consultation with neighborhood residents park operations, etc.) that either tie to through the community meeting process, certain capital improvements or are also ranked projects based upon priority of important to the health of the community need with regard to recovery: “Early through the expansion of existing services. Action/Critical”; “Mid-Term/Needed”; and “Long Term/Desired”. This ranking provides a general guide as to what communities believe are the most important priorities with regard to revitalization and redevelopment.