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STU DY DESIGN FOR THE CENTRAL A TLANTA PLANNING P ROCESS CITY OF ATLA.'iTA PLUIN!NO DEP.MITMENT Prepared for CENTRA L A TLANTA PROGRE SSs IN C. Final Dra ft By ALAN M. VOORHEES & ASSOCLA.TES, INC. 767 0 Old Springhouse Roa d Westgate Research Park McLean, Virginia 22101 Octob e r, 1967 �INTRODUCTION This prospectus has been prepared for Central Atlanta Progress, Inc. to describe a process for developing an action program. The prospectus covers a period of approximately 18 months . . During that period both a short range and long range action program will be developed together with a method for continuous planning and programming for the future. The ~:r-ospectus emphasizes planning and programming in accordance with specific goals and objectives. Provision is made for frequent review of the goals and objectives and proposed programs by public officials, the businessmen and citizens of the Central Area. The purpose of this continuing policy review is twofold . . First, the plan and program resulting from the process will reflect the desires and aspirations of the people who will live, work and do business in the area. Second, it will generate support for carrying out the program. The program will be carried out by a special team from the City of Atlanta and Central Atlanta Progress, · Inc. with the assistance of consultants in transportation, economics and urban design. The work program places primary emphasis on the analysis and interpretation of information, rather than the collection of data. Most of the information which will be needed is already available from studies (completed or in progress) by the City of Atlanta, the Atlanta Area Transportation Study, the Atlanta Regi~:m Metropolitan Planning Commission, and the Metropolitan Atlanta Rapid Transit Authority. �,~ - 2 - I I The prospectus includ es a description of the organization needed to carry out the study and a diagram (see Figure 1) showing the time available for individual elements of the program. management of the study program. This will assist in better Planning programs of this kind, if not carefully managed, can result in delays, inadequate policy review and a final report which introduces whole new concepts or goals not previously tested for policy approval. The program has been generalized for this prospectus and it is expected that major elements of it would be programmed in greater detail for project management purposes. STUDY AREA The proposed Study Area is shown in Figure 2. The boundaries were sel.e cted to permit analysis of various transportation alternatives and to reflect the impact of major redevelopment projects on the downtown core. The core area will be the subject of the most intensive analysis. It is the area bounded by North Avenu e , the E x press wa y and the Georgia Railroad tracks. Within the core area , data collection, analysis and forecasts will be related to small zones , usually blocks. Outside the core larger zones will be employed and greater reliance will be placed on using data and forecasts, from other sources. Organization and Manageme nt The management of the prog r am will b e carried out by the CAP - City team . The functions assigned to this t eam include the making of studies , coo r dination with ot h e r agencies , sch e duling and preparation fo r rev iew meeti ngs and s upervision of consultants . The team will con sis t of four full time prof es s i ona l s, on e part t i m e pr ofe ssion al a n d one full time subprofe s sional. The tea m will b e o rgani z ed t o p erfo rm tasks i n t hr e e b a s ic �! . - . · ·A c;uRE I i vzzza -,- vzzm VOTIA Vllllil VltOA. W74i . V/7M ~- r 1 . - -~ ..,-. t I ,J 1 I I II I I ·-- . .. .... - -·- · -,---- -+- ·- --- - -· - ·--- t--· r . -r-· . t- I I I I I , > -+ - l A-i ' ;-Miu I - "'* I -: -.Ian I - . A J i) A s 0 - --+~_--;:---~· -' N D J F I . /If

&-L-...-1'~, 7 �- 5 - specialities. These are, transportation, land use and design, and economics, finance and programming. (See Figure 3) The first actions required to get the program underway are: the selection of consultants for urban design, economics and finance and transportation and parking, and the assembly of basic information and identification of sources. The second step is the appointment of the policy and technical review committees or boards. Policy Review Process To achieve the widest possible agreement on Goals, Objectives, Concepts and Standards, to guide and coordinate the efforts of the study team and the consultants and to assure, to the maximum extent possible, that the plan and program developed by this study process is in agreement with the desires and aspirations of the people of Atlanta, it is necessary to have frequent policy review. This review should be the responsibility of an established review board or committ e e representing a broad spectrum of interests in central Atlanta and its surrounding area. Membership of the review board should include representa tives of: City of Atlanta Metropolitan Atlanta Regional Planning Commission Georgia Highway Department Metropolitan A tlanta Rapid Transit Authority Civic or ganizat ions in the Central Area Centr al Atla n t a Progres s Inc . Public Ut ilities s e r ving t he C entral A rea �_....._. __ -..: . _, . ··· - - --· · - - _ -.....:.,_ __ _ _ ~ =-....,;,. --1 I FIGURE 3 CENTRAL ATLANTA PROGRESS BOARD OF DIRECTORS (SPECIAL COMMITTEES) CITY OF ATLANTA MAYOR & BOARD OF ALDERMEN (PLANNING & DEVELOPMENT COMMITTEE) if POLICY REVIEW & TECHNICAL COORDINATOR ... _t-_.- - - - - - - --1 COMMITTEE PUBLIC RELATIONS .. TRANSPORTATION & PARKING FEEDBACK PROCESS ~-----"'"---"" ' ECONOMICS, FINANCE & PROGRAMMING ·- '--------' LAND USE & URBAN DESIGN �- 7 - The City - CAP study team and consultants employed on the study will be responsible for presentations to the Board at regular intervals. The presentations will include alternatives for policy issues with supporting factual information on the implications of each alternative. Figure 1 shows the schedule of reports and policy board meetings through the period covered by the study process. 1. Development of Goals, Concepts, Objectives and Standards The broad goals for development of Downtown Atlanta should be developed by obtaining the views of the widest possible crosssection of the citizens and public officials of the region , The goals must be consistent with those adopted by the Region and the City . It would be desirable to utilize those public hearings and interviews which are to be held in connection with the planning of the metropolitan region. Goals should be stated in broad terms, while ob- jectives should be more specific and should usually include definite target dates. For example, one of the e x pressed goals of Central Atlanta Progress is to "Attract a strong middle income segment. 11 An objective might be to attract 4 00 new middl e inccme families b y 1970. To realize this objective, it will be necessary to develop one or more programs which might include a housing construction program, a school construction program, or other community faciliti es. In other cases, a goal may b e in t erms of quality, c reation of a m o r e b eaut iful downtown envi r onm ent. For exampl e, In this case an objective might b e to have approved design standards, concepts and revie w boards for various sections of Central Area by 1969 . �- 8 - Because the future of Central Atlanta will depend on the actions of numerous individual businessmen, different City departments and regional agencies, it is important that the goals and objectives be stated in explicit terms and that they be published and widely distributed. The development of goals, objectives, standards and concepts will be performed in two phases . The first phase will be compressed into the first six months to achieve agreement on as many issues as feasible and provide the basis for a short range plan. The planning process will then seek a basis for securing agreement on the remaining is sues for longer range planning and programming. Phase I The purpose of the Phase I program is to reach agreement on goals , objectives, concepts and standards at an early date and to develop a short range program for the Central Area. This will include a reconnaissance of the Study Area, a review of existing and programs projects a nd policy review. The consultants will be responsible for developing proposals and alternatives and supporting materials. The CAP - City team will coordinate this phase of the program. 1-1 Review of Existing Goals and Objectives The purpose of this study is to identify and assemble the goals and objectives of various programs which affect the Central Area. These are not always explicitly stated, requiring an analysis of �- 9 - the program or interv iews with officials to elicit their goals and and objectives. This s tudy will be the responsibility of the CAP - City team. Elapsed time - two months 1-2 Adopt Short Range Goals and Objectives The purpose of this study is develop and secure the adoption .of goals and objectives to guide the development of a short range action program. This will requir e interviews with businessmen and civic leaders and meetings with the Policy Committee to secure agreement. It will be the responsibility of the CAP - City study team. It will be the responsibility of the consultants to p r opose atter native goals, objective s , concepts and standards for their particular areas of interest and to prepare a Phas e I report d escri bing the adva ntages and disadvantages of each a lt ernative . This re- port should also identify those major issues r equiring further study and the decisions which can be d eferred until a lat er date . 2. Devel opment of the Short Range Program The purpose of this study is to develop a short range action program fo r t h e C entral Area. This will require a review of proposed or programmed projects and brief evaluation of their contribution tc the short range goals and objectives. Development of the short range p r ogram will be coordinated by the CAP - City team with the consultants providing recommendations and an interim report. When �- 10 - approved by the Policy Committee, it will represent a set of 11 gives 11 for long range planning and will represent the action program of Central Atlantic Progress, defining the public programs and projects which it will support and the private programs it will undertake or stimulate. 2-1 Proposed and Programmed Projects Identify projects now programmed for the area such as street improvements, proposed buildings, urban renewal projects, etc. and relate these to existing conditions. Determine which of the projects are sufficiently firm to represent II givens II in the area and which should be regarded as alternatives. This will be the responsibility of C entra l Atlanta Progress. Elapsed time 2-2 Development of the Short Range Pla n A short range pla n b a s ed on a limited forec a s t of conditions (two to three y ears) will b e de v e lop e d. This pla n will include those projects currently programme d or proposed for the Central Area as w ell as othe r imme dia te action p r ojects or programs fo r which th e r e i s a n eed. In th e a b sence of time and information to make d etaile d evalua tions of th e s e proj e c ts , they will be evaluat e d in terms of th e ir contribution to the over all goals a nd th e spe cifi c obj e ctives which th ey will achieve. Ela psed time 2-3 Physical Model A scal e m odel s howing existing condit ions and the short range plan wi ll b e d ev el op e d for the study ar ea . This mode l will b e �- 11 - so constructed that alternatives can be demonstrated and evaluated visually during the evaluation phases of the study. Construction of the model will be the responsibility of the de- . . sign consultant. Elapsed time 2 -4 Develop Long Range Goals This will_produce a statement of the long range goals for Central Atlanta. It will require an analysis of explicit and im- plicit goals of the region and the City. Each consultant will participate in the development and review of the goals prior to review by the Policy Board. The City - CAP team will coordinate the development of these goals. The objectives, standards and concepts prepared for each element of total plan and alternatives for each element will be related to the achievement of these goals. Elapsed time 3. Inventories and Base Mapping · Most of th~ information needed to prepare preliminary alternatives is already available, or is being assembled by one or more agencies or study groups. The primary emphasis of this phase will be to identify sources of information, data collection schedules a nd publication schedules for the numerous agencies, public and private, who have an int erest in the Central Area, the City and the region. The phase will include the developme nt of base maps at appropriate scales for the display of information a nd alternatives. �- 12 - 3-1 Assembly of Basic Data and Data Collection Schedules This study will be concerned only with the assembly of existing data showing existing conditions and historical trends on population, employment, housing, building condition, travel patterns, traffic flows, transit routes and usages, pedestrian movements, parking supply and demand, and other financial, economic, and travel factors. Elapsed time - two months 3-2 Base Mapping This will produce base maps of Central Atlanta to several scales suitable for use in publications, by study staff and consultants for data collection and presentation. to the maximum extent . E xis ting maps will be used New maps will be prepared only if existing maps do not fulfill the requirements . Elapsed time - two months 3-3 Update Land Use Inventory This will require updating and verifying land use inventories made by other agencies for various studies in the C entral Area. It will be necess a ry to have l a nd us e data by block for most of the study area, with accurate employment and resident population figures to facilitiate estimates of trip generation (vehicular, transit and pedestrian) and parking. Ela ps e d time - fou r months 3-4 Special Study of Downtown Living This study will exami ne the trends of downt ov;,rn living with particular emph as is on th e trends or s hifts which h ave occurred in the character of the resident population of the central area and attempt to ide11:tify the factors which influenced those trends �- 13 - and shifts. The study will also identify the linkages between place of residence and place of work for central area residents and the transportation modes used. This study should be per- formed by a qualified consultant under the direction of the study team. - four months Elapsed time 4. Economic Trends and Forecasts The purpo~e of this study is to produce a forecast of the economic activity of Do wntown Atlanta. This forecast will include separate forecasts for: Housing Retail Trade Government General Office Whilesale and Warehousing Manufacturing The forecasts will be related to forecasts for the Atlanta Region, The State of Georgia, and Southeast and the Nation. They will describe at least three possibilities: 1. A continuation of existing trends 2. A dispersal of "Downtown" functions into other parts of the city. 3. A further strengthening and collection of functions in downto wn to develop the highest concentration of developm ent likely to occur. �- 14 - In addition to these alternative forecasts, this phase will also describe the social and economic forces which are likely to make each alternative a reality and the general kinds of policies and programs which are needed to achieve each forecast. It will also include a general analysis of the tax revenues which would be produced by different levels of development which could be expected in Downtov.rn Atlanta. 4-1 Functional Analysis Analysis of the major functions and activities performed in and by downtown Atlanta, the performance of these functions over time and in relation to metropolitan markets, and factors which act to restrain the optimum development of downtown functions. Elapsed time 4-2 Space Projections Projections of d e m a nd for private and public space and facilities of all appropriate types by five year intervals to 1990, based on projections of metropolitan and regional markets and alternative assumptions about public policies, competition, and other incentives and constraint s. Elapsed time 4-3 Development Factors Identific a tion and evaluation of publ ic and private policies and actions that will influence the development and re-development of Central Atlanta including, but not limite d to, urban renewal, public facilitie s investments, l and assembly, rapi d t r ansit, traffic , parking , plans for priva t e invest ment and fiscal policies . Elapsed time �- 15 - 4-4 Comprehensive Tax Evaluation Analysis of actual and potential effects of all existing taxes (local, State and federal) upon downtown development efforts, including past effects on development to the present, and recommendations for changes in the types, application and adminis tration of taxes that would provide maximum development incentives within the framework of the public interest. Elapsed time 5. Transportation and Parking Program The purpose of this series of studies is to develop a transportation program for the Central Area. It will be conducted by a qualified consultant under the supervision of the CAP - City team. The final result will be a coordinated transportation system including transit, freeways, streets, pedestrian facilities and parking and a program for the orderly development of these systems. The consultant will coordinate his activities with other transportation study groups for the metropolitan area, particularly AATS and MARTA. In the final plan, the street system will be classified according to function and the design and ope ra ting standards for each system will be appropriate to the function it performs. 5-1 Update Parking and Traffic Data This study will be concern e d with collecting data on traffic and parking to supplement that which is available from other studies and the data collection programs of the City and State Highway Department. Elapsed time - four months �- 16 - 5-2 Review Propos e d Tra nsport ation This study will involve a review of proposed transportation projects for the development of the short range program. Elapsed time - two months 5-3 Pedestrian Mov ement Studies This study will include counts of pedestrian movements and studies at selected locations to obtain trip generation characteristics for use in creating projections of future pedestrian flo ws. Elapsed time - two months 5-4 Trip G e neration Studies This study by the trans portation consultant will develop basic data on the trip generating characteristics of different kinds of land uses a nd parking facilities. Data collection will supple- ment the information available from AATS. The results will be used to forecast fut u r e trav el d e m a nds. Elapsed time - two months 5-5 Develop Tra n s porta tion Alternative s The study will inv olve a revie w of proposed trans p ortat ion pro jects for the deve lopm ent of the short r ange progra m. The transpo rtation an d parki ng c ons ultant, wo rking wi th CA P City team a n d t h e oth e r consulta nt s will d evelop a lt ernatives fo r the trans po rta tion a nd park ing sys te m s. These alt erna tives must cover the full r ange of l an d us e an d de velopment po s sibiliti es as well a s the rang e of s y stems - tran s it and highways - likel y t o emerge in the r egi on during th e plann i ng period . E lapsed time - th ree m onths �- 17 - 6. Urban Design The studies in this phase of the program are needed to produce a design rationale for the Central Area. They are inter-related with land use and transportation and a high degree of correlation between the urban design and other phases will be required. Al- though Policy Review of urban design concepts has been scheduled in advance of the final policy review for land use alternatives, it is recognized that the interplay between the two does not permit such a neat separation. What is expected is that decisions on design con- cepts will influence the final decisions on land use and that the urban design consultant will have a strong role in the evaluation of alternatives as well as the development of the plan and program . This consultant will also be responsible for developing land use and design controls which will assure not only the desired form for the central area but a design which is consistent in its quality for the structures and s ystems which will be built in the future. 6-1 Urban De sign Review This review will be for the purpose of identifying those design features and concep ts which provide a basis for a design policy. The review should identify those structures of significant historical and architectural interest. It will also provide re- commendat ions on methods for achieving high design standards throughout the C entral Area. This study should be conducted by a qualified urban design consultant under the supervision of the Study Team. Elapsed time - two months �- 18 - 6-2 Alternative Design Concepts This will involve the development of design concepts for the central area taking into account the spatial arrangement of land uses and structures and the functional arrangements, present and future. The design concepts will guide the land use, trans- portation and parking systems alternatives since these must conform to and support the concepts. Elapsed time 6-3 Develop Land Use and Design Controls Following adoption of general design concepts and land use arrangements, appropriate methods of encouraging development and requiring conformance to the policies mus t be developed . These include zoning and d e sign controls. This phase is con- current with evaluation of the alternatives. · Elaps e d time 6-4 Construct Physical Model A model of the central area should be developed showing ex isting conditions for use in visual evaluation of various proposals . This should b e the respons ibility of the Des i gn Consultant. Elapsed time 7. F inancial Planning The purpose of this phase of the program i s to d evelop a program for financing the development of the Central Area. It will include an inventory of financial resources, d evelopment of financing alternatives and th e es tablishment of a long range financial program by the Economics Consultant in close cooperation with the CAP - City team and the other consultants. �r - 19 - 7-1 Inventory of Fin ancial R eso urces This will include an inventor y of t he local, State and Federal resources which can be applie d to the development of Central Atlanta. It will examine trends in tax revenues and public e x - penditures and proposals for finan cing major public programs in metropolitan Atla nta which could affe ct the choices of financial programs for the Central Area. Elapsed time - three months 7-2 Develop Financial Alternatives This task will involve the development of p r actical alternat i v es for financing the progra ms p r oposed fo r th e Cent ral A rea. Elaps e d tim e - two months 7-3 Preparation of the Finan c ial Plan Followi ng policy r e vi e w of the fi na n cia l a lternati ves, a progra m fo r financing th e m a jor el eme nt s will be dev elop e d a nd tes ted. th e t ota l i m provement pr ogra m This step will be conc urrent with the developm ent of t h e p r ogra m. Althoug h t he development pr ogram will not b e l imit e d to .a cont inuation of p r esent fun ding l ev el s , it will b e tailore d to fit r easona b l e fina nc i ng exp ecta t ions. Elaps e d t ime 8. - t wo months Evalua tion of Alternatives This phase will ev aluate a lt e rnati ves for t h e d evelopment of th e c entra l ar ea. Alt ernati ves shou l d be deve l op e d by the City - CA P team and th e cons ultants fo r a wide range of poss ibil ities so that th ey c a n b e t est e d for pu b lic program requirements. It i s entirely possible, for exampl e, t h at a given t ransit o r highway system will be adequate for �- 20 - a number of alt e rnative development alternatives wher e another system would only be adequat e for a much more limited number of alternatives. Because forc e s b eyond the control of the City or Central Atlantic Progress , Inc. may bring about a different density or pattern of development, major public improvements should be flexible enough to accommoda te a range of alternatives. The specific areas for which alternativ es will have been developed are: 1. Employment and commercia l development 2. Housing and residential population 3. Transit systems 4. Freeway and major street s y stems 5. Local street systems classified according to function 6. Pedestrian s y st e ms 7. Goods h a ndling sys t e m s 8. Parking s y s t ems Alterna ti ve s for many of t h ese prog r ams have b een p rop osed or are under study b y oth e r a g enci e s. This study proc e s s will not duplicate the work of oth ers but will r elate their propos a ls a nd plans to the form and func t ion of downto wn . If clear confl i cts emer ge a s a result of this p r o cess , t h e Stu dy T eam a nd th e Consultants will be r e spons ible fo r wo rki ng wi th t he in t e rested agenc y towar d a g ree m ent on a n acc e ptable alt erna tive . T h e transpo r ati on a n d parking cons u ltant will e valua te the a lt ern at i ves by their c ont ribut ion t o the goal s a n d obj ectiv es a nd b y the u se of a specia l t r affic assignment network fo r t he Cent ra l Area , T hi s netwo r k will be p repa red by AA T S as a part of the n etwo rk coding progra m. �- 21 - The results of each analysis will be reviewed with the CAP - City team and other consultants for relationship to the land use, development, and design plans to assure that the transportation systems serve the area and the objectives of those plans. Elapsed time 9. - three months Development of the Plan and Program The final phase of the study will be concerned with the selection of best alternatives and a coordination of all elements into a single comprehensive plan and program, 1iv ith its' associated financial program. 9-1 Develop Preliminary Plan and Program Each program or proj ect will be examined for the contribution it makes to the obj ecti ves of the plan in proportion to its cost. Other factors which will determine priority o rder will be availability of ear-marked fund s , (for example, highway projects cannot be substituted for school funds), for orderly development (for example, portions of the pedestrian s y stem may best be implem e nt e d in conn e ction with other improvements to the street or subway system) . Th e final fina ncia l pla n will be such that appropriate substitutions can be made de p ending on the timi ng of related d e v el opments and proj ec t s. 9-2 Policy R eview of Plan and Program 9-3 Adopt Long Range P l an and Program �- 22 - 9-4 Develop Continuing Program The future development of the Central Area will depend on many individuals and on forces beyond the control of Central Atlanta Progress or of the City. For example, federal aid may be reduced or expanded due to national or international situations . Housing will respond to market demand, the availability of mortgage money or other factors. Retail sales forecasts may be influenced by regional shopping cent ers . Office development may be accelerated by the introduction of one or more new regional offices in down town. For these reasons, the planning and programming process must remain flexible a nd it will be desirable to re-examine the goals and objectives at regular intervals. The continuing program will include additional studies as well as recommendations for the organizational and administrative requirements for implementation of the program. �- 23 - Cost Estimates The Study costs were developed by estimating man-months of effort required to complete each phase of process. For purposes of arriving at a dollar cost estimate each man month was assumed to have an average net cost of $1200. To this net cost, $300 per month was added for each member of the City - CAP team. for City - CAP team members. No overhead cost was added However, an overhead estimate of 100 percent of salary was assumed for consultant staff and direct cost·s of $600 per man month were assumed for consultants to reflect travel and subsistence allowances. While these are very general estimates they represent a reasonable average for budgeting purposes. �ESTIMATED MAN MONTHS AND COST BY STUDY TEAM Project or Phase 1-1 1-2 City - CAP Team Man Months Cost 4.0 4.0 6,000 6, 000 4.0 4.0 6, 000 6,000 6.0 9,000 2.0 4.0 8. 0 8.0 3, 000 6,000 12,000 12,000 Transportation Consultant Man Months Cost 1.0 2.0 Economics & Finance Man Months Cost 3,000 6,000 0.5 2.0 1, 500 6,000 6,000 1.0 1. 5 3,000 4,500 Design Consultant Man Months Cost 2.0 1.0 6,000 3,000 Goals & Objectives 2-1 2-2 2-3 2-4 2.0 2.0 6,000 2.5 7,500 1. 5 2.0 1. 5 3. 5 4, 500 6,000 4,500 10, 500 2.5 10,000 7, 500 1. 5 4, 500 Inventories & Mapping 3-1 3-2 3-3 3-4 Economic Forecasts 4-1 4-2 4-3 4-4 Transportation 5-1 5-2 5-3 5-4 5-5 2. 0 3,00 0 4.0 2.5 3.5 3.0 5.0 12, 000 7, 500 10,500 9, 000 15, 000 �Project o·r Phase City - CAP Team Man Months Ccst Transportation Consultant Man Months Cost Economics & Finance Man Mmths Cost Design Consultant Man Months Cost Urban Design 6-1 6-2 6-3 6-4 2.0 8.0 2.0 6,000 24,000 ·6, 000 5,000 6,000 8.0 24,000 1.0 3, 000 2.0 6,000 1. 5 4, 500 1.0 3, 000 6,000 2.0 6,000 1.0 1, 500 1. 5 2.0 2.0 4,500 6,000 6,000 10.0 15 , 000 2.0 9-1 9-2 · 9- 3 9- 4 6.0 2.0 4. 0 4.0 9,000 3, 000 6,000 6,000 G e ne ral S up ervision 27 . 0 40,5 00 4.0 Financial 7-1 7-2 7-3 Evaluation of Alter native s 8. 0 18.0 . 54, 000 Plan & P r ogr a m D evelopment T OTAL 2. 0 1.0 0.5 2.5 6,000 3,000 1, 500 7, 500 $ $ $ $ 104. 0 15 6, 000 . 49. 0 14 7,000 . 28 . 0 84, 000. 30.0 105 , 000 . GRA N D TOTAL $492, 000. �