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STUDY DESIGN FOR
THE CENTRAL ATLANTA
PLANNING PROCESS
peNTANINE DB nae PT FPR 5 SOR OE NT ONLY
NOT FOR PUBLIC RELEAS
i a Bi4 A en r
i fF “U3} fy i RJ ed 5 ky ik RELEASE
CITY OF ATLASTA PLANNING DEPARTMENT
Prepared for
CENTRAL ATLANTA PROGRESS, INC.
Final Draft
By
ALAN M. VOORHEES & ASSOCIATES, INC,
7670 Old Springhouse Road
Westgate Research Park
McLean, Virginia 22101
October, 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 prospectus 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 con-
sultants in transportation, economics and urban design.
The work program places primary emphasis on the analysis and inter-
pretation 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 Trans-
portation Study, the Atlanta Region Metropolitan Planning Commission, and
the Metropolitan Atlanta Rapid Transit Authority.
The prospectus includes a description of the organization needed to
carry out the study and a diagram (see Figure 1) showing the time avail-
able for individual elements of the program. This will assist in better
management of the study program. 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
selected 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 Avenue, the Expressway 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 Management
The management of the program will be carried out by the CAP = City
team. The functions assigned to this team include the making of studies,
coordination with other agencies, scheduling and preparation for review
meetings and supervision of consultants. The team will consist of four full
time professionals, one part time professional and one full time sub-
professional. The team will be organized to perform tasks in three basic
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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 onGoals, 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 committee representing a broad spectrum
of interests in central Atlanta and its surrounding area.
Membership of the review board should include representatives of:
City of Atlanta
Metropolitan Atlanta Regional Planning Commission
Georgia Highway Department
Metropolitan Atlanta Rapid Transit Authority
Civic organizations in the Central Area
Central Atlanta Progress Inc.
Public Utilities serving the Central Area
FIGURE 3
CITY OF ATLANTA
MAYOR & BOARD OF ALDERMEN
(PLANNING & DEVELOPMENT
COMMITTEE)
CENTRAL ATLANTA
PROGRESS
BOARD OF DIRECTORS
(SPECIAL COMMITTEES)
i
,
POLICY REVIEW
& FEEDBACK PROCESS
W
je f
PUBLIC TECHNICAL
RELATIONS = COORDINATOR ..... |= COMMITTEE
ECONOMICS,
TRANSPORTATION FINANCE & LAND USE &
& PARKING PROGRAMMING URBAN DESIGN
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 cross-
section 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 metro- :
politan 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 expressed goals of Central Atlanta Progress
"An objective might
is to ''Attract a strong middle income segment.
be to attract 400 new middle income families by 1970. To realize
this objective, it will be necessary to develop one or more programs
which might include a housing construction program, a school con-
struction program, or other community facilities.
In other cases, a goal may be in terms of quality. For example,
creation of a more beautiful downtown environment. In this case an
objective might be to have approved design standards, concepts and
review boards for various sections of Central Area by 1969.
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 dis-
tributed.
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 re-
maining issues 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 and 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
the program or interviews with officials to elicit their goals and
and objectives. This study 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 require 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 propose alter-
native goals, objectives, concepts and standards for their parti-
cular areas of interest and to prepare a Phase I report describing
the advantages and disadvantages of each alternative. This re-
port should also identify those major issues requiring further
study and the decisions which can be deferred until a later date.
Development of the Short Range Program
The purpose of this study is to develop a short range action program
for the Central 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
program will be coordinated by the CAP - City team with the con-
sultants providing recommendations and an interim report. When
approved by the Policy Committee, it will represent a set of "gives'
- 10 -
for long range planning and will represent the action program of
Central Atlantic Progress, defining the public programs and pro-
jects which it will support and the private programs it will undertake
or Stimulate.
2-1
2-2
2-3
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 "givens" in
the area and which should be regarded as alternatives. This
will be the responsibility of Central Atlanta Progress.
Elapsed time ‘a
Development of the Short Range Plan
A short range plan based on a limited forecast of conditions
(two to three years) will be developed. This plan will include
those projects currently programmed or proposed for the
Central Area as well as other immediate action projects or
programs for which there is a need. In the absence of time
and information to make detailed evaluations of these projects,
they will be evaluated in terms of their contribution to the over-
all goals and the specific objectives which they will achieve.
Elapsed time -
Physical Model
A scale model showing existing conditions and the short range
plan will be developed for the study area. This model will be
- 1l1-
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 ele-
ment of total plan and alternatives for each element will be
related to the achievement of these goals.
Elapsed time
Inventories and Base Mapping |
Most of the 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 and pub-
lication schedules for the numerous agencies, public and private, who
have an interest in the Central Area, the City and the region.
The phase will include the development of base maps at appropriate
scales for the display of information and alternatives.
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 popula-
tion, 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
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. Existing maps will be used
to the maximum extent. New maps will be prepared only if
existing maps do not fulfill the requirements.
Elapsed time _- = two months
Update Land Use Inventory
This will require updating and verifying land use inventories
made by other agencies for various studies in the Central Area.
It will be necessary to have land use 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.
Elapsed time - four months
Special Study of Downtown Living
This study will examine the trends of downtown living with
particular emphasis on the trends or shifts which have occurred
in the character of the resident population of the central area
and attempt to identify the factors which influenced those trends
- 7S
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.
Elapsed time - four months
Economic Trends and Forecasts
The purpose of this study is to produce a forecast of the economic
activity of Downtown 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:
A continuation of existing trends
A dispersal of 'Downtown" functions into other paris
of the city.
A further strengthening and collection of functions in
downtown to develop the highest concentration of de-
velopment likely to occur.
= fg
In addition to these alternative forecasts, this phase will also de-
scribe 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 Downtown
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 demand 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 constraints.
Elapsed time *
4-3 Development Factors
Identification and evaluation of public and private policies and
actions that will influence the development and re-development
of Central Atlanta including, but not limited to, urban renewal,
public facilities investments, land assembly, rapid transit,
traffic, parking, plans for private investment and fiscal policies.
Elapsed time -
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 re-
commendations for changes in the types, application and adminis -
tration of taxes that would provide maximum development in-
centives within the framework of the public interest.
Elapsed time -
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 operating standards for each system will
be appropriate to the function it performs.
5-1 Update Parking and Traffic Data
This study will be concerned 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
5-2 Review Proposed Transportation
This study will involve a review of proposed transportation pro-
jects for the development of the short range program.
Elapsed time - two months
Pedestrian Movement Studies
This study will include counts of pedestrian movements and
studies at selected locations to obtain trip generation character-
istics for use in creating projections of future pedestrian flows.
Elapsed time - two months
Trip Generation Studies
This study by the transportation consultant will develop basic
data on the trip generating characteristics of different kinds of
land uses and parking facilities. Data collection will supple-
ment the information available from AATS. The results will
be used to forecast future travel demands.
Elapsed time - two months
Develop Transportation Alternatives
The study will involve a review of proposed transportation pro-
jects for the development of the short range program.
The transportation and parking consultant, working with CAP -
City team and the other consultants will develop alternatives for
the transportation and parking systems. These alternatives
must cover the full range of land use and development possibilities
as well as the range of systems - transit and highways - likely
to emerge in the region during the planning period.
Elapsed time - three months
- 17 =-
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 systems which will be built in the future.
6-1 Urban Design Review
This review will be for the purpose of identifying those design
features and concepts 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-
commendations on methods for achieving high design standards
throughout the Central Area.
This study should be conducted by a qualified urban design
consultant under the supervision of the Study Team.
Elapsed time - two months
«- £8 ~
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 must be developed.
These include zoning and design controls, This phase is con-
current with evaluation of the alternatives.
Elapsed time ts
6-4 Construct Physical Model
A model of the central area should be developed showing existing
conditions for use in visual evaluation of various proposals.
This should be the responsibility of the Design Consultant.
Elapsed time -
Financial Planning
The purpose of this phase of the program is to develop a program for
financing the development of the Central Area. It will include an
inventory of financial resources, development of financing alternatives
and the establishment of a long range financial program by the Economics
Consultant in close cooperation with the CAP - City team and the other
consultants.
7-1 Inventory of Financial Resources
This will include an inventory of the local, State and Federal
resources which can be applied to the development of Central
Atlanta. It will examine trends in tax revenues and public ex-
penditures and proposals for financing major public programs
in metropolitan Atlanta which could affect the choices of financial
programs for the Central Area.
Elapsed time _ 7 three months
Develop Financial Alternatives
This task will involve the development of practical alternatives
for financing the programs proposed for the Central Area.
Elapsed time - two months
Preparation of the Financial Plan
Following policy review of the financial alternatives, a program
for financing the major elements the total improvement program
will be developed and tested. This step will be concurrent with
the development of the program. Although the development
program will not be limited to.a continuation of present funding
levels, it will be tailored to fit reasonable financing expectations.
Elapsed time - two months
Evaluation of Alternatives
This phase will evaluate alternatives for the development of the ceniral
area. Alternatives should be developed by the City - CAP team and
the consultants for a wide range of possibilities so that they can be
tested for public program requirements. It is entirely possible, for
example, that a given transit or highway system will be adequate for
= 9G «
a number of alternative development alternatives where another
system would only be adequate for a much more limited number of
alternatives. Because forces beyond 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 accommodate a range of alternatives.
The specific areas for which alternatives will have been developed are:
4 Employment and commercial development .
Housing and residential population
Transit systems
. Freeway and major street systems
Local street systems classified according to function
‘ Pedestrian systems
Goods handling systems
onn om fF wo DW
Parking systems
Alternatives for many of these programs have been proposed or are
under study by other agencies. This study process will not duplicate
the work of others but will relate their proposals and plans to the
form and function of downtown. If clear conflicts emerge as a result
of this process, the Study Team and the Consultants will be responsible
for working with the interested agency toward agreement on an
acceptable alternative.
The transporation and parking consultant will evaluate the alternatives
by their contribution to the goals and objectives and by the use ofa
special traffic assignment network for the Central Area. This network
will be prepared by AATS as a part of the network coding program.
=< 24.5
The results of each analysis will be reviewed with the CAP - City
team and other consultants for relationship to the land use, develop-
ment, and design plans to assure that the transportation systems
serve the area and the objectives of those plans,
Elapsed time - 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, with its' associated fin-
ancial program,
9-1 Develop Preliminary Plan and Program
Each program or project will be examined for the contribution
it makes to the objectives of the plan in proportion to its cost.
Other factors which will determine priority order will be avail-
ability of ear-marked funds, (for example, highway projects
cannot be substituted for school funds), for orderly development
(for example, portions of the pedestrian system may best be imple-
mented in connection with other improvements to the street or
subway system).
The final financial plan will be such that appropriate substitutions
can be made depending on the timing of related developments and
projects.
9-2 Policy Review of Plan and Program
9-3 Adopt Long Range Planand Program
~ 92 -
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 centers. 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 and 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.
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. No overhead cost was added
for City - CAP team members. However, an overhead estimate of 100
percent of salary was assumed for consultant staff and direct costs 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
City = CAP Transportation Economics Design
Team Consultant & Finance Consultant
Project Man Man Man Man
or Phase Months Cost Months Cost Months Cost Months Cost
1-1 4.0 6, 000 1.0 3, 000 O25 1, 500 2.0 6, 000
1-2 4.0 6, 000 2.0 6, 000 2.0 6, 000 1.0 3, 000
Goals &
Objectives
2-1 4.0 6, 000 ~ = 1.0 3,000 - =
2-2 4.0 6, 000 2.0 6, 000 165 4,500 - -
2-3 10, 000
2-4 6.0 9, 000 2.0 6, 000 2D 7,500 2.5 7, 500
Inventories
& Mapping
3-1 2.0 3, 000 = = “ = = =
3-2 4.0 6, 000 - S - - on =
3-3 8.0 12,000 - - - - - -
3-4 8.0 12,000 - - - - - -
Economic
Forecasts
4-1] - - - = 1..5 4,500 - -
4-2 - - e ~ 2.0 6,000 - -
4-3 - - + - Ja 5 4,500 - =
4-4 - - - 3.5 10,500 - -
Transportation
5-1 7 = 4.0 12,000 - - ss i
5-2 - - 2.5 7, 500 = es = 2
5-3 - - 3.5 10,500 = = * a.
5-4 - - 3.0 9, 000 = ei z= ss
5-5 2.0 3, 000 5,0 15;:000 - = 1,5 4,500
Transportation Economics Design
City - CAP
Team Consultant & Finance Consultant
Project Man Man Man Man
or Phase Months Cast
Months Cost
Maths Cost Months Cost
Urban
Design
6-1 - - ~ - - 7 2.0 6, 000
6-2 4.0 6,000 ~- - 2.0 6, 000 8.0 24,000
6-3 - 7 - - - 2.0 -6,000
6-4 * = = “ * 7 = 5, 000
Financial
7-1 i. Z ~ ~ 1.5 4,500 ~- '
1-2 1.0 1,500 _ 2 2.0 6,000 - -
7-3 i x _ _ 2.0 6,000 ~- me
Evaluation
of Alternatives
8.0 10.0 15,000 18.0 54,000 2.0 6,000 8.0 24,000
Plan &
Program
Development
9-1 6.0 9,000 2.0 6,000 14.0 3,000 2.0 6, 000
9-2 2.0 3, 000 EE. 0 3, 000 S - a a
§=3 4.0 6,000 0.5 1, 500 . = 7 ‘
9-4 4.0 6, 000 2.0 7, 500 1.5 4,500, 1.0 3,000
General
Supervision 27.0 40,500 — : - FP r z
$ $ $ $
TOTAL 104.0 156,000. 49.0 147,000. 28.0 g4 900. 30.0 105,000.
GRAND TOTAL $492, 000.
THE CENTRAL ATLANTA
PLANNING PROCESS
peNTANINE DB nae PT FPR 5 SOR OE NT ONLY
NOT FOR PUBLIC RELEAS
i a Bi4 A en r
i fF “U3} fy i RJ ed 5 ky ik RELEASE
CITY OF ATLASTA PLANNING DEPARTMENT
Prepared for
CENTRAL ATLANTA PROGRESS, INC.
Final Draft
By
ALAN M. VOORHEES & ASSOCIATES, INC,
7670 Old Springhouse Road
Westgate Research Park
McLean, Virginia 22101
October, 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 prospectus 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 con-
sultants in transportation, economics and urban design.
The work program places primary emphasis on the analysis and inter-
pretation 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 Trans-
portation Study, the Atlanta Region Metropolitan Planning Commission, and
the Metropolitan Atlanta Rapid Transit Authority.
The prospectus includes a description of the organization needed to
carry out the study and a diagram (see Figure 1) showing the time avail-
able for individual elements of the program. This will assist in better
management of the study program. 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
selected 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 Avenue, the Expressway 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 Management
The management of the program will be carried out by the CAP = City
team. The functions assigned to this team include the making of studies,
coordination with other agencies, scheduling and preparation for review
meetings and supervision of consultants. The team will consist of four full
time professionals, one part time professional and one full time sub-
professional. The team will be organized to perform tasks in three basic
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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 onGoals, 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 committee representing a broad spectrum
of interests in central Atlanta and its surrounding area.
Membership of the review board should include representatives of:
City of Atlanta
Metropolitan Atlanta Regional Planning Commission
Georgia Highway Department
Metropolitan Atlanta Rapid Transit Authority
Civic organizations in the Central Area
Central Atlanta Progress Inc.
Public Utilities serving the Central Area
FIGURE 3
CITY OF ATLANTA
MAYOR & BOARD OF ALDERMEN
(PLANNING & DEVELOPMENT
COMMITTEE)
CENTRAL ATLANTA
PROGRESS
BOARD OF DIRECTORS
(SPECIAL COMMITTEES)
i
,
POLICY REVIEW
& FEEDBACK PROCESS
W
je f
PUBLIC TECHNICAL
RELATIONS = COORDINATOR ..... |= COMMITTEE
ECONOMICS,
TRANSPORTATION FINANCE & LAND USE &
& PARKING PROGRAMMING URBAN DESIGN
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 cross-
section 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 metro- :
politan 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 expressed goals of Central Atlanta Progress
"An objective might
is to ''Attract a strong middle income segment.
be to attract 400 new middle income families by 1970. To realize
this objective, it will be necessary to develop one or more programs
which might include a housing construction program, a school con-
struction program, or other community facilities.
In other cases, a goal may be in terms of quality. For example,
creation of a more beautiful downtown environment. In this case an
objective might be to have approved design standards, concepts and
review boards for various sections of Central Area by 1969.
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 dis-
tributed.
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 re-
maining issues 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 and 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
the program or interviews with officials to elicit their goals and
and objectives. This study 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 require 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 propose alter-
native goals, objectives, concepts and standards for their parti-
cular areas of interest and to prepare a Phase I report describing
the advantages and disadvantages of each alternative. This re-
port should also identify those major issues requiring further
study and the decisions which can be deferred until a later date.
Development of the Short Range Program
The purpose of this study is to develop a short range action program
for the Central 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
program will be coordinated by the CAP - City team with the con-
sultants providing recommendations and an interim report. When
approved by the Policy Committee, it will represent a set of "gives'
- 10 -
for long range planning and will represent the action program of
Central Atlantic Progress, defining the public programs and pro-
jects which it will support and the private programs it will undertake
or Stimulate.
2-1
2-2
2-3
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 "givens" in
the area and which should be regarded as alternatives. This
will be the responsibility of Central Atlanta Progress.
Elapsed time ‘a
Development of the Short Range Plan
A short range plan based on a limited forecast of conditions
(two to three years) will be developed. This plan will include
those projects currently programmed or proposed for the
Central Area as well as other immediate action projects or
programs for which there is a need. In the absence of time
and information to make detailed evaluations of these projects,
they will be evaluated in terms of their contribution to the over-
all goals and the specific objectives which they will achieve.
Elapsed time -
Physical Model
A scale model showing existing conditions and the short range
plan will be developed for the study area. This model will be
- 1l1-
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 ele-
ment of total plan and alternatives for each element will be
related to the achievement of these goals.
Elapsed time
Inventories and Base Mapping |
Most of the 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 and pub-
lication schedules for the numerous agencies, public and private, who
have an interest in the Central Area, the City and the region.
The phase will include the development of base maps at appropriate
scales for the display of information and alternatives.
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 popula-
tion, 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
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. Existing maps will be used
to the maximum extent. New maps will be prepared only if
existing maps do not fulfill the requirements.
Elapsed time _- = two months
Update Land Use Inventory
This will require updating and verifying land use inventories
made by other agencies for various studies in the Central Area.
It will be necessary to have land use 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.
Elapsed time - four months
Special Study of Downtown Living
This study will examine the trends of downtown living with
particular emphasis on the trends or shifts which have occurred
in the character of the resident population of the central area
and attempt to identify the factors which influenced those trends
- 7S
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.
Elapsed time - four months
Economic Trends and Forecasts
The purpose of this study is to produce a forecast of the economic
activity of Downtown 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:
A continuation of existing trends
A dispersal of 'Downtown" functions into other paris
of the city.
A further strengthening and collection of functions in
downtown to develop the highest concentration of de-
velopment likely to occur.
= fg
In addition to these alternative forecasts, this phase will also de-
scribe 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 Downtown
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 demand 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 constraints.
Elapsed time *
4-3 Development Factors
Identification and evaluation of public and private policies and
actions that will influence the development and re-development
of Central Atlanta including, but not limited to, urban renewal,
public facilities investments, land assembly, rapid transit,
traffic, parking, plans for private investment and fiscal policies.
Elapsed time -
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 re-
commendations for changes in the types, application and adminis -
tration of taxes that would provide maximum development in-
centives within the framework of the public interest.
Elapsed time -
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 operating standards for each system will
be appropriate to the function it performs.
5-1 Update Parking and Traffic Data
This study will be concerned 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
5-2 Review Proposed Transportation
This study will involve a review of proposed transportation pro-
jects for the development of the short range program.
Elapsed time - two months
Pedestrian Movement Studies
This study will include counts of pedestrian movements and
studies at selected locations to obtain trip generation character-
istics for use in creating projections of future pedestrian flows.
Elapsed time - two months
Trip Generation Studies
This study by the transportation consultant will develop basic
data on the trip generating characteristics of different kinds of
land uses and parking facilities. Data collection will supple-
ment the information available from AATS. The results will
be used to forecast future travel demands.
Elapsed time - two months
Develop Transportation Alternatives
The study will involve a review of proposed transportation pro-
jects for the development of the short range program.
The transportation and parking consultant, working with CAP -
City team and the other consultants will develop alternatives for
the transportation and parking systems. These alternatives
must cover the full range of land use and development possibilities
as well as the range of systems - transit and highways - likely
to emerge in the region during the planning period.
Elapsed time - three months
- 17 =-
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 systems which will be built in the future.
6-1 Urban Design Review
This review will be for the purpose of identifying those design
features and concepts 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-
commendations on methods for achieving high design standards
throughout the Central Area.
This study should be conducted by a qualified urban design
consultant under the supervision of the Study Team.
Elapsed time - two months
«- £8 ~
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 must be developed.
These include zoning and design controls, This phase is con-
current with evaluation of the alternatives.
Elapsed time ts
6-4 Construct Physical Model
A model of the central area should be developed showing existing
conditions for use in visual evaluation of various proposals.
This should be the responsibility of the Design Consultant.
Elapsed time -
Financial Planning
The purpose of this phase of the program is to develop a program for
financing the development of the Central Area. It will include an
inventory of financial resources, development of financing alternatives
and the establishment of a long range financial program by the Economics
Consultant in close cooperation with the CAP - City team and the other
consultants.
7-1 Inventory of Financial Resources
This will include an inventory of the local, State and Federal
resources which can be applied to the development of Central
Atlanta. It will examine trends in tax revenues and public ex-
penditures and proposals for financing major public programs
in metropolitan Atlanta which could affect the choices of financial
programs for the Central Area.
Elapsed time _ 7 three months
Develop Financial Alternatives
This task will involve the development of practical alternatives
for financing the programs proposed for the Central Area.
Elapsed time - two months
Preparation of the Financial Plan
Following policy review of the financial alternatives, a program
for financing the major elements the total improvement program
will be developed and tested. This step will be concurrent with
the development of the program. Although the development
program will not be limited to.a continuation of present funding
levels, it will be tailored to fit reasonable financing expectations.
Elapsed time - two months
Evaluation of Alternatives
This phase will evaluate alternatives for the development of the ceniral
area. Alternatives should be developed by the City - CAP team and
the consultants for a wide range of possibilities so that they can be
tested for public program requirements. It is entirely possible, for
example, that a given transit or highway system will be adequate for
= 9G «
a number of alternative development alternatives where another
system would only be adequate for a much more limited number of
alternatives. Because forces beyond 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 accommodate a range of alternatives.
The specific areas for which alternatives will have been developed are:
4 Employment and commercial development .
Housing and residential population
Transit systems
. Freeway and major street systems
Local street systems classified according to function
‘ Pedestrian systems
Goods handling systems
onn om fF wo DW
Parking systems
Alternatives for many of these programs have been proposed or are
under study by other agencies. This study process will not duplicate
the work of others but will relate their proposals and plans to the
form and function of downtown. If clear conflicts emerge as a result
of this process, the Study Team and the Consultants will be responsible
for working with the interested agency toward agreement on an
acceptable alternative.
The transporation and parking consultant will evaluate the alternatives
by their contribution to the goals and objectives and by the use ofa
special traffic assignment network for the Central Area. This network
will be prepared by AATS as a part of the network coding program.
=< 24.5
The results of each analysis will be reviewed with the CAP - City
team and other consultants for relationship to the land use, develop-
ment, and design plans to assure that the transportation systems
serve the area and the objectives of those plans,
Elapsed time - 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, with its' associated fin-
ancial program,
9-1 Develop Preliminary Plan and Program
Each program or project will be examined for the contribution
it makes to the objectives of the plan in proportion to its cost.
Other factors which will determine priority order will be avail-
ability of ear-marked funds, (for example, highway projects
cannot be substituted for school funds), for orderly development
(for example, portions of the pedestrian system may best be imple-
mented in connection with other improvements to the street or
subway system).
The final financial plan will be such that appropriate substitutions
can be made depending on the timing of related developments and
projects.
9-2 Policy Review of Plan and Program
9-3 Adopt Long Range Planand Program
~ 92 -
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 centers. 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 and 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.
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. No overhead cost was added
for City - CAP team members. However, an overhead estimate of 100
percent of salary was assumed for consultant staff and direct costs 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
City = CAP Transportation Economics Design
Team Consultant & Finance Consultant
Project Man Man Man Man
or Phase Months Cost Months Cost Months Cost Months Cost
1-1 4.0 6, 000 1.0 3, 000 O25 1, 500 2.0 6, 000
1-2 4.0 6, 000 2.0 6, 000 2.0 6, 000 1.0 3, 000
Goals &
Objectives
2-1 4.0 6, 000 ~ = 1.0 3,000 - =
2-2 4.0 6, 000 2.0 6, 000 165 4,500 - -
2-3 10, 000
2-4 6.0 9, 000 2.0 6, 000 2D 7,500 2.5 7, 500
Inventories
& Mapping
3-1 2.0 3, 000 = = “ = = =
3-2 4.0 6, 000 - S - - on =
3-3 8.0 12,000 - - - - - -
3-4 8.0 12,000 - - - - - -
Economic
Forecasts
4-1] - - - = 1..5 4,500 - -
4-2 - - e ~ 2.0 6,000 - -
4-3 - - + - Ja 5 4,500 - =
4-4 - - - 3.5 10,500 - -
Transportation
5-1 7 = 4.0 12,000 - - ss i
5-2 - - 2.5 7, 500 = es = 2
5-3 - - 3.5 10,500 = = * a.
5-4 - - 3.0 9, 000 = ei z= ss
5-5 2.0 3, 000 5,0 15;:000 - = 1,5 4,500
Transportation Economics Design
City - CAP
Team Consultant & Finance Consultant
Project Man Man Man Man
or Phase Months Cast
Months Cost
Maths Cost Months Cost
Urban
Design
6-1 - - ~ - - 7 2.0 6, 000
6-2 4.0 6,000 ~- - 2.0 6, 000 8.0 24,000
6-3 - 7 - - - 2.0 -6,000
6-4 * = = “ * 7 = 5, 000
Financial
7-1 i. Z ~ ~ 1.5 4,500 ~- '
1-2 1.0 1,500 _ 2 2.0 6,000 - -
7-3 i x _ _ 2.0 6,000 ~- me
Evaluation
of Alternatives
8.0 10.0 15,000 18.0 54,000 2.0 6,000 8.0 24,000
Plan &
Program
Development
9-1 6.0 9,000 2.0 6,000 14.0 3,000 2.0 6, 000
9-2 2.0 3, 000 EE. 0 3, 000 S - a a
§=3 4.0 6,000 0.5 1, 500 . = 7 ‘
9-4 4.0 6, 000 2.0 7, 500 1.5 4,500, 1.0 3,000
General
Supervision 27.0 40,500 — : - FP r z
$ $ $ $
TOTAL 104.0 156,000. 49.0 147,000. 28.0 g4 900. 30.0 105,000.
GRAND TOTAL $492, 000.