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HomeMy WebLinkAboutWaterfront Conservation and Development Plan Draft 1988Waterfront Conservation and Development Plan City of New Bern, North Carolina DCM COPY DO NOT REMOVE Edward D. Stone, Jr. and Associates September 30, 1988 City of New Bern Waterfront Conservation and Development Steering Committee Representative Organization Dale Carrol Chamber of Commerce Eddie DeCamp Recreation Advisory Commission Alex Donaldson Historic District Commission Max Freeze Board of Aldermen Elbert Mallard Community Appearance Commission Susan Moffat Planning and Zoning Board Leander Morgan New Bern Housing Authority Lonnie Pridgen Municipal Services District Stewart Smith Tourism Development Authority Harold Talton Swiss Bear, Inc. Kay Williams Tryon Palace Restoration Complex Michael W. Avery, Director of Planning and Inspections Planning Consultants: Edward D. Stone, Jr. and Associates 215 South Front Street Wilmington, NC 28401 The preparation of this document was financed, in part, through a grant provided by the N.C. Coastal Management Program, through funds provided by the Coastal Zone Management Act of 1972, as amended, which is administered by the Office of Ocean and Coastal Resources Management, National Oceanic and Atmospheric Administration. Table of Contents 1. Introduction..............................................................................................................1 Need for the Waterfront Plan.........................................................................2 Purpose................................................................................................................. 2 Benefitsof the Plan............................................................................................3 PlanningProcess................................................................................................3 2. Existing Conditions.................................................................................................5 Study Area Boundaries.....................................................................................6 LandUse..............................................................................................................6 Circulation...........................................................................................................7 Vehicular Circulation.................................................................................7 Pedestrian Circulation................................................................................7 - Property in Public Ownership.........................................................................8 3. Review of Existing Plans, Policies and Regulations.........................................9 Land Use Plan Update(1987).........................................................................10 CityZoning Ordinance...................................................................................13 Flood Damage Prevention Ordinance.........................................................15 4. Principles for Waterfront Area Planning and Development ......................16 5. Conceptual Development Plan...........................................................................18 Introduction......................................................................................................19 Near -Term Conceptual Plan .........................................................................19 Long -Term Conceptual Plan .........................................................................24 6. Detailed Site Designs.............................................................................................27 Introduction......................................................................................................28 LawsonCreek Park....................................................................................28 UnionPoint Park.......................................................................................30 7. Implementation..................................................................................................... 32 8. Public Participation................................................................................................35 Appendix Section 1: Introduction Need for the Waterfront Plan The City of New Bern, like many other coastal communities in the Carolinas, has been under increasing pressures for competing use of the City's waterfront. Commercial, residential, industrial, and open space uses find themselves in competition for the limited waterfront land not yet specifically committed to one land use or another. In addition, old land uses are gradually being phased out as new uses move in. Over the years, waterfront property has typically developed in piecemeal fashion, oftentimes without regard to the impact of such development on adjacent land uses. Other important factors that are sometimes overlooked in the development process include: pedestrian and vehicular access, visual corridors and view cones, stormwater runoff and water quality, architectural character and compatibility, and recreation and open space needs. All of these factors must be balanced in the context in the continued economic use of the river and the need to allow for a healthy mixing of uses that has long characterized the historic vitality of the City's waterfront. New Bern's waterfront is perhaps the single greatest urban amenity and shaper of the City's image. The City is now at a critical juncture which could lead to an enhanced or a downgraded image, depending upon the success of the planning done today. A comprehensive planning approach and public/private partnership for the use of the waterfront is one possible solution that has worked in other communities, and could prove beneficial in New Bern as well. Rational decisions need to be made regarding the best use of the City's waterfront from both a public and private perspective. These decisions should be based upon a clear and accurate evaluation of existing conditions, and the goals and objectives for the waterfront as expressed by the citizenry of the City of New Bern. This waterfront conservation and development plan provides the process and the product to accomplish this important task. Purpose The purpose of this Waterfront Conservation and Development Plan is threefold: (1) to provide a forum for public input and consensus building for the future development of the waterfront, (2) to provide a comprehensive vision of the future and specific recommendations to achieve that future, and (3) to prepare site designs for the future development and enhancement of two public sites considered to be of critical importance for the future of the waterfront and the City of New Bern as a whole. 2 Benefits of the Plan Several groups benefit from having an adopted Waterfront Plan. City officials, for example, can better plan for public improvements in the area, such as streets, water and sewer services, storm drainage, parking, fire and police protection, landscaping, etc. For businesses, property owners, and developers, an official Waterfront Plan can establish a clear sense of direction for the waterfront and build confidence in the area, thereby reducing uncertainty regarding future investments. For other City residents, merchants, and property owners, the Waterfront Plan can provide a foundation for quality development in the critical waterfront area, ultimately resulting in an enhanced image for the community. The process of preparing the Waterfront Plan in the public arena allows the opportunity to produce a document which balances the interests of all parties involved. Planning Process In general, the planning process used to prepare the Waterfront Plan involved a methodical, disciplined, fact finding approach. The following are key features of the planning process: • A local Steering Committee comprised of interested citizens representing a broad cross-section of organizations in the community, was appointed by the City. The Steering Committee worked with the planning consultant (Edward D. Stone, Jr. and Associates) and the Director of Planning and Inspections throughout the study to offer local perspectives, provide input on the accuracy of information gathered, and feedback on recommended solutions. The Steering Committee members were also encouraged to network with other residents, property owners, and merchants in the community who may have an interest in the waterfront area. • Existing conditions in the waterfront area were evaluated, including existing land use, vehicular and pedestrian circulation, property in public ownership, and a slide inventory of man-made and natural features. EDSA was aided in this evaluation. by input received from the Steering Committee regarding specific problems and opportunities in the waterfront area. A review of relevant plans, policies, and regulations pertaining to the riverfront area in particular was conducted. This review included the Pride in Place study, the City of New Bern Recreation Plan, the Land Use Plan, the Zoning Ordinance, and the Flood Damage Prevention Ordinance. The Land Use Plan, Zoning Ordinance, and Flood Prevention 3 Ordinance received particular attention during this review; key features of these documents are summarized in this report. The intent of the review was to help insure that the recommendations set forth in the study are consistent with the overall plan of growth and development for the City of New Bern. • Several "Principles for Waterfront Area Conservation and Development" were identified based upon the review of existing conditions and plans, _ and on the specific input received during the public meetings of the Steering Committee. These principles provided the essential foundation. and direction necessary to prepare the Waterfront Plan. • A conceptual plan for future development was prepared in two stages: (1) near -term and (2) long-term. The near -term plan is comprised of elements which were felt to be reasonable to implement over the next five year period. The long-term plan, on the other hand, was prepared to include elements that may require a longer period of time to implement. • Lastly, two specific site plans were prepared for two publicly owned properties felt to be of critical importance to the future of the waterfront: Union Point Park and Lawson Creek Park. These two site plans suggest specific physical improvements that would be desirable in light of the community's objectives for these areas. V Section 2: Existing Conditions Study Area Boundaries The study area boundaries for the Waterfront Conservation and Development Plan are delineated on the map immediately following this page. For identification and reference during public meetings, the study area was broken into four sections. Section 1 is Lawson Creek Park. Section 2, referred to as the New South Front Street area, takes in an area on the north side of Lawson Creek from the intersection of Pembroke Road and First Street east along both sides of New South Front Street, extending to the western edge of the Tryon Palace grounds. Section 3 includes Tryon Palace on the extreme west and extends eastwardly along the north shore of the Trent River as far as the Trent River bridge. Area 4 has Union Point Park as its southern anchor and extends northerly along the western shore of the Neuse River as far as New Street. Collectively, these four areas encompass that portion of the City's shoreline considered most critical for determining future development and land use. Land Use As might be expected in an urban setting, existing land uses along New Bern's downtown area waterfront are varied. For the purposes of analysis, existing land uses will be discussed by subareas 1-4. 1. Lawson Creek Park Area Lawson Creek is the single largest parcel of land within the study area. At the present time, the park includes an existing paved access road and loop road, two boat launching facilities with parking, a soccer field, fitness trail, and picnic area in the area known as Jack's Island. The majority of the unused portions of the park is made up of marshland. 2. New South Front Street Area The New South Front Street area contains a mixture of commercial, single family residential, multi -family residential, and open space. Dominant land uses within Area 2 include the high-rise elderly housing structure on the south side of New South Front Street between Bryant and Norwood Streets, and the Housing Authority's low income housing development at the eastern end of this subarea. Also worth noting are the two vacant waterfront parcels located in the area between the elderly housing and the multi -family low income housing. 3. Tryon Palace to the Trent River Bridge Commercial, industrial, and office and institutional uses predominate in subarea 3. Especially significant land uses include Tryon Palace and grounds, Barbour Boatworks, the Farmers Market, the Sheraton Hotel 11 W c7_ w I� 5� IEIAf CU MER CiP.RDRER Q �T. 3 a AEQ L._Jo W N 7EIN J�E 4W y POLL: E/El EI 1 ^ :Jr / I (% ` STUDY AREA WATERFRONT CONSERVATION & DEVELOPMENT PLAN City of New Bern, North Carolina ti. yard D. Stone, Jr. and Associates nners and Urban Designers W complex, and the large vacant parcel between the Sheraton Hotel and the Trent River bridge. 4. Union Point to New Street Subarea 4 is oriented on a north -south axis and straddles both sides of East Front Street. Land uses in this area include commercial, office and institutional, multi -family residential, single-family residential, and parks and open space. Significant land uses within Subarea 4 include Union Point Park, the New Bern Motor Lodge, and a linear riverfront walkway extending north of the Neuse River bridge as far as New Street. Circulation For planning purposes, transportation patterns in the waterfront area can be discussed in terms of vehicular and pedestrian circulation. Vehicular Circulation With the exception of traffic on East Front Street between the Trent River bridge and the Neuse River bridge, the study area is largely unaffected by excessive traffic volumes. East -west streets in the study area include New South Front Street and Tryon Palace Drive. Neither of these streets are considered to be major traffic carrying arteries. The most significant street pattern impacting development patterns in the study area are the numerous city streets running perpendicular to the river at regular intervals along the entire length of the waterfront area (excepting Lawson Creek Park). Of these streets, Broad Street, leading to the Neuse River bridge, carries the most significant volumes of traffic for a short distance through the study area. All other streets serve largely to carry local traffic to destinations within the study area. Pedestrian Circulation Primary pedestrian routes within the waterfront area are confined largely to Subareas 3 and 4 between Tryon Palace and Union Point, and Union Point and New Street. This is the area where most sidewalks are in place and where most pedestrian movements related to business enterprise in the downtown occur. Also, this is already where the most extensive and continuous riverfront walkway is in place. Extending from the Farmers Market area on the west, a pedestrian can walk along the entire length of the Sheraton Hotel complex and continue eastward as far as East Front Street without having to cross a roadway. While Lawson Creek Park includes a limited amount of pedestrian walkway related to the Jacks Island picnic area, the park is otherwise without sidewalks. 7 The fitness trail in the park is unimproved, with the exception of the exercise stations themselves. New South Front Street presents a narrow right-of-way without benefit of sidewalks. Exceptions include sidewalks related to the street frontage of the elderly housing development and the low income housing project area. Property in Public Ownership The map on the following page illustrates those parcels of land that are in some form of public ownership. Properties have been identified as to whether they belong to (1) the City of New Bern, (2) the State of North Carolina, or (3) the Housing Authority of New Bern. As can be seen from the map, the City of New Bern owns all of the land area in Lawson Creek Park, two significant vacant parcels on the north side of Lawson Creek, and the Union Point Park area. The City also owns nearly all of the street right-of- ways that stub out to the water's edge throughout the waterfront area. An example shown on the map is the foot of Broad Street at the Neuse River that is currently in use as a passive open space area. Finally, the City also owns a continuous 30-foot strip of land along the Trent River shoreline between Hancock Street and the Trent River bridge. The next largest owner of land is the Housing Authority of New Bern, which owns both the elderly housing structure on New South Front Street and the low income housing project between Liberty Street and Tryon Palace. The State of North Carolina has jurisdiction over the Tryon Palace and grounds, as well as an associated parking area on the west side of Eden Street. In addition, the North Carolina Department of Transportation owns two waterfront properties necessary to accommodate landfall points for both the Neuse and Trent River bridges. J N BROAD ,- �I}-ITT �I• h� rl 1 Hil 11 I I I.YL II II I II 1.�� I LEGEND OCITY OF NEW BENN El STATE OF NORTH CAROUNA - HOUSING AUTHORITY OF NEW BERN PROPERTIES IN PUBLIC OWNERSHIP \ NMTH 0 100 ]m wo 60. • • Section 3: Review of Existing Plans, Policies, and Regulations 0 This section presents a review of pertinent public plans, ordinances, and studies previously prepared for the City of New Bern with particular relevance to the waterfront. The intent of this review is to help insure that the recommendations set forth in this report are consistent with overall community objectives for growth and development. Conversely, there may be a need to modify certain policies or standards of the City, based upon recommendations contained in the final Waterfront Plan. Follo n review of numerous public documents concerning growth and develo tin the City of New Bern, it was determined that three documents in particular were especially significant to the planning for the waterfront: (1) The 1987 Land Use Plan Update, (2) The Zoning Ordinance, and (3) The Flood Damage Prevention Ordinance. The following is a summary of significant findings and recommendations set forth in each of these documents. Land Use Plan Update (1987) The City's 1987 CAMA Land Use Plan Update contains a number of specific policies and recommendations that are relevant to New Bern's waterfront. The major points of emphasis contained in these policies are discussed as follows: Areas of Environmental Concern: Much of the land and water in or near New Bern's waterfront is located in certain specially regulated areas called Areas of Environmental Concern (AEC's). These are land and water areas that, due to their significance, receive special attention from State and local government authorities when reviewing development proposals within their boundaries. AEC's occurring within the Waterfront Plan study area include Public Trust Areas, Coastal Wetlands, Estuarine Waters and Estuarine Shorelines. Specific standards for each type of AEC are set forth in North Carolina Administrative Code Section 15-711. The information that follows is a brief summary of each of these AEC's as they relate to the Waterfront Plan: Public Trust Areas - These are generally waters to which the public has the right of navigation and use. In reviewing development proposals, the primary concern is that bulkheads, marinas, docks, etc. do not interfere with the public's interest in, or natural values of, these areas. Public Trust Areas include Lawson Creek, the Neuse River and The Trent River. Coastal Wetlands - These are generally any salt marsh or other marsh subject 4an%idW flooding. In recent years, State and Federal protection of these marshes has heightened, with the objective of minimizing any further losses of these valuable areas. Within the Study Area, the largest occurrence of tidal on) m OrCcWjta,�c-Q -C Ioo�Q.� 1 �;�1e�t L-S,I'CLJSw-w cQ" marshlands is at Lawson Creek Park. Other smaller areas of wetland are found along the shoreline fringe of Lawson Creek, and the Neuse and the Trent Rivers. In the City of New Bern, generally accepted uses within these areas include conservation uses requiring water access and uses that cannot function elsewhere. Specific uses which may be allowed are: utility easements, fishing piers, docks, marinas, and bulkheads in conformance with AEC standards. Estuarine Waters - As a general definition, estuarine waters are coastal water bodies having free connection with the open sea within which seawater is diluted with fresh water drained from the adjacent land. For New Bern, estuarine waters have been identified in the City's CAMA Land Use Plan as those -water between -the mean -high -water mark and the-Citylxnits, which generall Xtenu 3 r__t , the Trent and Neuse Rivers. Due to the natural productivity of these waters, the primary management objective is to ensure that development does not pollute estuarine waters, whether by the quantity or quality of stormwater runoff from adjacent lands. Appropriate uses within estuarine waters include marinas, piers, docks, boat ramps, bulkheads, and aids to navigation, when such uses do not significantly affect the function, cleanliness and circulation of estuarine waters. Estuarine Shorelines - are those non -ocean shorelines which are especially vulnerable to erosion, flooding, or other adverse effects of wind and water, and are intimately connected to the estuary. This area extends from the mean high water mark for a distance of 75 feet landward. The primary concern for estuarine shoreline AECs is that development substantially preserve the natural integrity of the shoreliness hin the Study Area, the entire waterfront shoreline falls within this classification. In New Bern, appropriate land uses in estuarine shoreline areas include residential, recreational, commercial, and industrial development provided that: a) all CAMA permitting requirements are met. b) all terms of the Zoning Ordinance are satisfied. c) new development limits impervious surface areas to the minimum amount necessary. d) the Flood Damage Prevention Ordinance is met. e) the development is consistent with the Downtown Development and Redevelopment Plan. Stormwater Runoff According to the Land Use Plan, New Bern will encourage the use of "best available management practices" to minimize the threat of pollution from storm water runoff into adjacent coastal waters. Recommended changes to be considered in the City's zoning and subdivision regulations include: 11 • special minimum lot sizes and setbacks adjacent to water areas. • the use of conservation zones adjacent to water access. • the submission of water management plans for large scale developments; and • proper site planning for waterfront development including vegetated buffers and the use of pervious materials for drives and parking. As an alternative to the above -mentioned ordinance amendments, the Plan suggested that the City may wish to consider comprehensive stormwater runoff control ordinances. Marinas The Land Use Plan "recognizes the positive recreational and economic aspects of marina development and will support proposals that are consistent with ... (city policies, plans and regulations)." (p. 38) Floating Home Development The Land Use Plan notes that while overnight tie ups at City owned docks is prohibited by City Code, there is a possibility that floating homes could be permitted in the City as part of an approved marina. Redevelopment of Development Areas The City of New Bern: • Supports public improvements in the Central Business District through revenues generated by the special tax district. • Supports the use of Federal and State grant funds, such as CDBG and UDAG to encourage redevelopment. • Supports the use of local historic district zoning to preserve the historical and architectural heritage of the City. • Supports the revitalization efforts of private groups such as New Bern Preservation and Swiss Bear, Inc. • Supports the preparation of a plan for the development of two blocks of City owned land on New South Front Street. Tourism/Beach and Waterfront Access The City will "require pedestrian walks along the entire waterfront as part of individual development plans. The development of Lawson Creek Park and proposed improvements at Union Point will further accomplish the city's objective of improving public water access facilities." (p. 43). 12 Land Classification Most of the Waterfront Plan Study Area has been designated as "Developed" on the City's official Land Classification Map, thereby encouraging the active development and redevelopment of this area. Lawson Creek Park, with the exception of certain significant wetland areas, has been designated as Transition, indicating that this area is suitable for future urban development and services. (In this case urban development will consist of park development). City Zoning Ordinance The map on the following page identifies the location and distribution of zoning districts as they occur within the Waterfront Plan Study Area. The information below summarizes the various districts relative to specific sites and areas along the waterfront. RA-10 Residential District Permitted Uses - single and two-family homes with 10,000 square feet minimum lot for 1 family dwellings and 15,000 square feet for 2 family dwelling. Building Height Limit - 35 feet; bonus for increased setback. Occurrence in Study Area - Shorefront residential area, generally north of Broad Street. RA-8 Residential District Permitted Uses - Single, two and multi -family dwellings with 8,000 square feet minimum for one unit and 12,000 square feet for two units; multi -family density maximum is approximately 10.6 units per acre (based on a 5 acre tract). Building,Height Limit - 35 feet, bonus for increased setback. Occurrence in Study Area - Tryon Palace Area RA-6 Residential District Permitted Uses - Single, two and multi -family dwellings, hospitals, trailer parks with 6,000 square feet minimum lots for one dwelling, 8,000 for two- family and a multi -family density of 21.2 dwelling units per acre (based on a a 5-acre tract). Building Height Limit - 35 feet, bonus for increased setback. 13 B-3 U� .aMo[a r • 111T]1e i •� ' RA Try -an 10 -- • Palace - "B71a RA-8 B-2 � -, 'RA-10 RESIDENTIAL DISTRICT RA-6 RESIDENTIAL DISTRICT RA-6 RESIDENTIAL DISTRICT 84 CENTRAL BUSINESS DISTRICT B-2 CENTRAL BUSINESS DISTRICT B-3 COMMERCIAL. DISTRICT 1.1 INDUSTRIAL DISTRICT EXISTING ZONING t Occurrence in Study Area - New South Front Street area. B-1 Central Business District Permitted Uses - allows a wide range of commercial uses including: retail sales, banks, food services, hotels, motels, offices, limited/small scale manufacturing for sale of premises, personal services, public buildings, recreational facilities. Screening/buffer required where district abuts residential zone. Building Height Limit - None specified. Occurrence in Study Area - Sheraton Hotel area, generally, and immediately west of Tryon Palace. B-2 Central Business District Permitted Uses - most B-1 uses plus: wholesale businesses, single family dwellings, boarding houses, two family dwellings, multi -family dwellings, offices. Screening/buffer required where district abuts residential zone. Building Height Limit - None specified. Occurrence in Study Area - East Front Street area, generally. B-3 Commercial District Permitted Uses - most B-1, B-2 uses plus: animal hospitals, auto storage and repair, outdoor advertising, single family, two family and multi -family uses, offices. Screening/buffer required where district abuts any residential zone. Building Height Limit - None specified. Occurrence in Study Area - Pembroke Road area, generally. I-1 Industrial District Permitted Uses - manufacturing, processing and related uses ranging from light to very intense operations, warehousing and wholesaling activities, retail businesses. Building Height Limit - None specified. Occurrence in Study Area - Lawson Creek Park and Barbour Boatworks property. 14 H.D. Historic District Permitted Uses - this district serves as an "overlay" to underlying commercial and residential districts thereby establishing additional requirements and standards that must be met in addition to the regular zoning district. Uses are not regulated through the Historic District overlay zone; a Certificate of Appropriateness must be issued in connection with exterior alterations to historic structures. Building Height Limit - controlled by underlying district. Occurrence in Study Area - entire study area shoreline except along New South Front Street area west of Liberty Street and Lawson Creek Road. Flood Damage Prevention Ordinance The Flood Insurance Rate Study prepared for New Bern in 1985 identified the following flood elevations for the City relative to various storm events: Frequency of Event Flood Elevation above M.S.L. 10 year flood 6.1 50 year flood 8.3 100 year flood 9.1 500 year flood 10.9 New Bern's Flood Damage Prevention Ordinance requires that new construction be built above the 100 year flood elevation. All shorefront properties with the waterfront plan study area are within the 100 year floodplain. 15 Section 4: Principles for Waterfront Area Planning and Development 16 The recommendations contained in this Plan are the result of a careful analysis of waterfront conditions and potentials. Studies regarding property ownership, land use, vehicular and pedestrian circulation, and previous plans, policies, and regulations were conducted as an integral part of plan preparation. Perhaps most importantly, ideas and perspectives were gathered from area citizens who know the City's downtown area rivers and creeks, and shorelines best. The property owner, the business man, the homeowner, and others. Issues, problems, prospects and opportunities identified through careful study and confirmed by a broad spectrum of interests are laid out in the balance of this report. While not every issue identified had a clear best action, several general principles for the betterment of the waterfront area gradually emerged. These universally held "themes" provide common ground and set forth the highest general policies to guide public and private actions. They may be summarized as follows. 111. Create an environment which will bring people back to the water's edge. 2. Create a unified character of development. 3. Retain and promote a harmonious blend of river -oriented land uses. 4. Strive for a general clean up of waterfront properties. 5. Establish a continuous walkway along the entire length of t h e downtown area waterfront. 6. Encourage continued leadership and coordination in waterfront development. From the outset of the planning process, the need for a public -private partnership for the future conservation and development of the waterfront area was emphasized. As demonstrated by the experiences of communities across the nation, any successful development program must be a partnership between local government and the private sector. A planning and development program placed solely on the shoulders of local government is destined to fail. On the other hand, interested citizens and property owners seldom have the resources and organization necessary to influence the activities of an entire waterfront area. The recommendations set forth in the balance of this report, therefore, seek to achieve a reasonable allocation of responsibilities between the City and the private sector. At the same time, the six general principles outlined above, provide the foundation for setting priorities and evaluating public and private actions. 17 Section 5: Conceptual Development Plan Introduction The Conceptual Conservation and Development Plan for New Bern's waterfront represents a pulling together of various information sources regarding existing conditions in the area. It is also directly responsive to the general "Principles for Waterfront Area Planning and Development" as outlined in Section 4 of this report. For the purpose of insuring proper implementation of the plan, recommendations are presented in two phases: (1) near -term, and (2) long- term. Near -Term Conceptual Plan The Near -Term Conservation and Development Plan for the Waterfront contains those recommendations that are felt to be reasonably achievable within the next five years (i.e. 1989-1994). The specific elements of the plan are outlined under numbers 1 through 12 on the Conceptual Plan sheet which immediately follows this page: Each of the twelve items may be more fully described as follows. Map No. 1- Lawson Creek Park -wide Improvements Sentiments expressed by citizens attending the major public input forum generally agreed that the Lawson Creek Park area is an underutilized public resource which could benefit from continued improvements. While the City has been working actively over the past several years to improve the park, and has made many significant improvements, nearly everyone recognizes that more can be done. Specific park -wide improvements identified over the course of plan preparation are summarized on the accompanying plan sheet and are restated here: • Instill More Lighting Other Than at Boat Ramps • More Trash Cans Needed • Preserve Existing Marsh • Encourage Family -Oriented Activities • Prepare a Comprehensive Landscape Plan • Keep Shoreline Clean of Debris and Trash Each of the above listed items is more fully discussed in Section 6 of this report, which presents a more detailed site design for the Lawson Creek Park area. Also, items 2 through 4 below also relate to Lawson Creek Park improvements. Map No. 2 - New Concession Building An idea that received considerable support from the Waterfront Steering Committee was the need for design and construction of a concession building M] LEGEND 1 LAWSON CREEK PARKWIDE IMPROVEMENTS • Install More Lightingg Other Than at Boat Ramps • More Trash Cans Needea • Preserve FxisGnrgg Marsh Areas • Encourage Farm -Oriented Aclivdies • Prepare a Comprehensive Landscape Plan • Keep Shoreline Clear of Debris and Trash 2 NEW CONCESSION BUILDING • New Existing Boat Ramps • Food Beverage, Bail. Tackle • Canoe and Boat Rental • Restrooms Maintained Under Lease Agreement 3 PUBLIC WORKS STORAGE AREA TO BE RELOCATED 4 BEAUTIFY AND LANDSCAPE PARK ENTRY 5 POSSIBLE SMALL BOAT HARBOR AND MARINA NewRoad ovWea 1 _ wed — Access to Creek For Fwhh` 6 TWO BLOCK AREA TO BE KEPT IN PUBLIC OWNERSHIP AND MAINTAINED AS PASSIVE OPEN SPACE PENDING APPROPRIATE DEVELOPMENT AND/OR OTHER ALTERNATIVE USE 7 MAINTAIN AND ENHANCE EXISTING PUBLIC HOUSING AREA 8 SHERATON HOTEL EXPANSION TO INCLUDE MORE ROOMS PLUS MEETING SPACE 9 AREA TO BE DEVELOPED FOR MEDIUM DENSITY RESIDENTIAL AND LIMITED COMMERCIAL n 10 UNION POINT PARK PLAN OF IMPROVEMENTS • Enhanced LarWscaping Throughout • Grassed Amphitheater • Passive Open Space Area For Events Day and Overnight Boat Slips Small Bowl Launch and Rental - River Center • Restaurant • Dock For Elizabeth II • Bricked Pedestrian Walkways t • Also See Union Point Detail Sheet 11 SITE OF NEW MEDIUM DENSITY RESIDENTIAL DEVELOPMENT WITH BOAT SLIPS 12 SITE OF NEW HOTEL DEVELOPMENT WITH BOAT SLIPS r Try" Pala" Grounds Perimeter Improvements to Include New Brick Walk With Wrought Iron Fvn" VOLLOfAt Tryon Palace Shift Existing Street Pavement 10'-15' North to Allow For Improved Wider V Walkway Along Water il \.iw �r \,,-<V Area Proposed For Additional Boat Shoe Preserve Existing Mamh Trail System _ LEGEND o Maintain and Preserve Attractive Closer Waterirowl Park-Ulks Aran and Walkway Area to Renni Public Open Spa" 1 L-'4.. 7� 2 NeedW Between West Mr&LIentoBrltlge 25'35' CONTINUOUS PUBLIC ACCESS WATERFRONT EASEMENT WHERE NOT ALREADY IN PUBLIC OWNERSHIP OR CONTROL 94• Now Finning Plan �-t l� STREETSCAPE UPGRADE NEEDED TO LINK DOWNTOWN WITH g1_111U RIVERFRONT • STREET FURNITURE, BENCHES • PEDESTRIAN SCALED LIGHTING SIDEWALK UPGRADES STREET TREES mo�om EXISTING RIVERFRONT WALKWAY TO BE MAINTAINED New Brsakrster to Protect Boat Ramp Area umlaaraaanr NEW OR IMPROVEMENT RIVERFRONT WALKWAY NEEDED 6 AREA OF SPECIAL NEED FOR SHORELINE CLEANUP Q' (FS-T-}T773Tii STREET TREES TO BE PLANTED OUTSIDE MAXIMUM ANTICIPATED RIGHT GC kLt'I1S'.11� OF WAY h� CONCEPTUAL PLAN NEAR TERM ""TM a 100 �00 •ae era C 11 noW 01 64ki Z W/Ar 110 to serve the park area. The features of this building are more fully described in Section 6 of this report. Map No. 3 - Public Works Storage Area to be Relocated This recommendation is not major in terms of the effort required to accomplish the task. In fact, it is the understanding of the Steering Committee that this relocation is already scheduled to be completed before the end of calendar year 1988. Optimistically, this recommendation may be completed by the time this Plan reaches the City Council for final acceptance. Map No. 4 - Beautify and Landscape Park Entry The current entryway into Lawson Creek Park is quite modest, considering the size and importance of the land area and facilities involved. Perhaps as the first step of a Comprehensive Landscape Plan for the Park, a project should be undertaken to design and install an attractive entryway scheme for the park at its entrance off Pembroke Road. See Section 6 of this report for a more complete description of this recommendation. Map No. 5 - Possible Small Boat Harbor and Marina City officials have been approached in the recent past by a private developer about the possibility of establishing a small boat harbor and marina at the extreme western end of the navigable portion of Lawson Creek. Specifically, the City was asked if it would be willing to lease a small piece of property associated with Lawson Creek Park for use by part of the marina operation. The specific location is well sheltered and could provide an appropriate location for such a marina, provided the environmental aspects of the facility could be satisfactorily addressed. The small boat harbor and marina could provide an alternative location for the concessions services discussed under item 2 above. Map No. 6 - Two -Block Area to be Kept in Open Space The two -block area to which this recommendation refers is located on the south side of New South Front Street between Norwood and Liberty Streets. Owned by the City of New Bern and currently in use as passive open space, this is an attractive parcel of creekfront property. The Waterfront Steering Committee felt that the City of New Bern should not act in haste to develop these parcels (or sell them for development) but rather wait until an appropriate alternative use came along. Logical alternative uses suggested include additional multi -family development, active park development, as well as potential right-of-way for the proposed new downtown entry road from U.S. 70. (See the Long -Term Plan for a full discussion of this proposed roadway.) Map No. 7 - Maintain and Enhance Existing Public Housing Area Comments received at the public forum regarding the public housing area in question ranged from selling the property to a potential developer for 20 alternative development, to enhancing the area for continued use as public housing. The general consensus was that this use is there to stay and that it should continue to be maintained and enhanced as affordable, low income housing. Map No. 8 - Sheraton Hotel Expansion This item recognizes that the Sheraton Hotel is currently considering expansion of its facility to include more rooms plus additional meeting space. The Sheraton Hotel complex is currently one of the most identifiable components of New Bern's redeveloping waterfront. It is important that any future additions to the hotel be done in a manner which is sensitive to the context of the site, but even more importantly, the context of the community. Map No. 9 - Medium Density Residential Area This area, immediately east of the existing Sheraton Hotel complex, has been preliminarily programmed for a careful mix of limited retail and medium density residential development. As in the case of the Sheraton Hotel expansion, it is critically important that any new development on this site be done in a manner which is consistent with the urban fabric and architectural context of the community of New Bern. Special consideration is particularly important for this site in light of its exposure and proximity to Union Point Park. Should the Trent River bridge be removed as proposed, the Union Point property could very well directly abut this strategic site. Map No. 10 - Union Point Park Plan of Improvements Union Point Park has been the subject of considerable deliberation and public debate over the past several years. Community ties to the property run deep and wide throughout the City of New Bern. As a result, it is important that any future plans for this most strategic of all waterfront properties be developed with utmost care and attention. Several key points were identified during the course of the Plan's preparation and are worthy of being repeated here. First, it is important that any future improvements to the park be done in a manner which will allow for continued free and open access to the park by all segments of the New Bern community. One specific concern expressed, for example, was that future improvements to the park not dissuade low income groups who have traditionally frequented and enjoyed the park from continuing to use the area in the future. A second major point that emerged regarding Union Point Park was that the plan developed for this property have a plan developed for it that was on a level in keeping with the strategic location and importance of the site. In contrast with the informal character of Lawson Creek 'Park, for example, Union Point Park's urban location requires that its development be more carefully planned and executed in a formal sense. 21 Over the past, several years, several programming needs and suggestions have been identified for Union Park which seem to be consistent with the many varied points of view of its future development. The following elements are therefore summarized on the near -term plan and restated here: • enhanced landscaping throughout • grassed amphitheater • passive open space area for events • day and overnight boat slips • small boat launch and rental • river center • restaurant • dock for Elizabeth II • bricked pedestrian walkways. Union Point Park was also selected as one of the two sites for which more detailed conceptual design was needed. The full conceptual plan outlining the location and relationship of the above noted programming features is presented in Section 6 of this report. Map No. 11- Medium Density Residential Development The City of New Bern is currently reviewing plans by a private developer to construct a multi -story residential property with associated boat slips in the adjacent Neuse River. This site is also important due to its exposure to the east across the river and its immediate proximity to Union Point Park to the south. As the City reviews these plans or any future plans for this property, a conscious effort should be made to insure that the scale and architectural character of any development is consistent with the character of New Bern. At the same time, the City should insure that any development of the property provides for a similar 30-foot public access right-of-way parallel to the shoreline to allow for continuous pedestrian movement along the City's waterfront. This 30-foot access strip would benefit the public in providing for continuous pedestrian movement along the City's waterfront but, at the same time, would provide an attractive amenity to prospective purchasers or renters of the residential units on the site. Map No. 12 - New Hotel Development The New Bern Motor Lodge has long been a fixture on New Bern's waterfront adjacent to the Neuse River bridge. It is the last development seen by travelers through the City moving north on U.S. 17. Recently, there have been plans discussed for a new hotel development on the site. As is the case with the proposed multi -family residential development immediately to the south of this site, any development proposal for this site should be carefully 99 integrated with the historic and architectural character of the City of New Bern. Other Miscellaneous Near -Term Improvements In addition to the 12 numbered items discussed above, the Conceptual Plan Sheet for the near -term phase of the Waterfront Plan contains several miscellaneous items. These items are presented in their approximate order of appearance on the plan, beginning at Lawson Creek Park and moving through the study area to the northeast. A new fishing pier is identified as a need at Lawson Creek Park. The best location for this pier may be at Jacks Island. A new breakwater is needed at the southernmost boat ramp to provide shelter from the wind and waves blowing across the full expanse of the Trent and Neuse Rivers. In addition to the cleanup of the creek shoreline within Lawson Creek Park, there was also a need identified to clean up the shoreline on the north side of Lawson Creek along its full length. In light of the current barren streetscape along New South Front Street within the study area, a need was identified to provide for street trees to be planted outside the maximum anticipated right-of-way. While it is recognized that New South Front Street will have to "wait its turn" within the full context of the City's street tree planting program, New South Front Street should be included on the list of streets in need of trees. In the event that the new entryway into the City from U.S. 70 uses New South Front Street as part of the access corridor, it is important that the trees be planted so as not to require their removal during future road construction. The Near -Term Conceptual Plan also identifies a continuous 30 foot public access waterfront easement wherever such an easement would not create an undue hardship or overwhelming obstacle for the private use of waterfront property. At the present time, the only location where such an easement is identified as presenting a significant obstacle would be along the shoreline of the Barbour Boatworks property. The current industrial nature of this use precludes the placement of a public walkway along the shoreline of that property. The existing sidewalk along the river's edge south of the Tryon Palace grounds is only three feet wide and insufficient to handle significant amounts of pedestrian traffic. It is therefore recommended that the existing street pavement be moved 10 to 15 feet to the north to allow for an improved, wider walkway along the water's edge. M1 Recently, Tryon Palace commissioned a study to suggest a plan and recommendations for improvements to the Palace grounds, particularly around the perimeter of the property. These improvements will be a welcome addition to the future enhancement of the riverfront area. Several of the City's public streets which run perpendicular to the river's edge throughout the downtown area are in need of streetscape improvements to enhance the utility of these corridors for pedestrian movements from the downtown area to the riverfront. Specific streetscape upgrading might include street furniture including benches, pedestrian scaled lighting, sidewalk improvements, and the installation of street trees. As shown on the accompanying plan, the eight streets that should be involved in this program include Broad Street, Pollock Street, Tryon Palace Drive, Metcalf Street, Hancock Street, Middle Street, Craven Street, and East Front Street. These streetscape improvements can be coordinated with the Public Facility Improvement Plan that was recently prepared for the downtown municipal services districts. An item that has received considerable attention from the City in recent months has been the need for a new pedestrian link between the west and east sides of the Trent River bridge. This linkage would provide an important connection between the existing riverfront walkway on the west side of the bridge and Union Point Park on the east side of the bridge. At the time of this writing, the City has appropriated funds to design and construct this connection. Finally, the Near -Term Conceptual Plan acknowledges the very positive influence of the park and open space improvements that exist in the immediate vicinity of the Neuse River bridge. It is important that these areas be maintained and enhanced as the northernmost destination point for pedestrians walking along what will eventually be the northernmost extent of the riverfront walkway. Long -Term Conceptual Plan The Long -Term Conceptual Plan for the New Bern Waterfront consists of those items which, while having substantial merit, are not likely to occur within the next five years. These items might be described as being more far reaching and, at the same time, having the potential to exert a major influence on the future course of the City's waterfront. The overall thrust of the Long -Term Conceptual Plan is driven by the proposal for a new major entryway into the New Bern downtown area from U.S. 70. As described in DOT plans, the Pembroke Road entrance into the City would be extended along the approximate existing right-of-way of New South Front Street as far east as Norwood Street. At that point, the roadway would 24 1 FUTURE DEVELOPMENT MJM-Fan* Noum9 or PaaaMa Pacnatian 2 NEIGHBORHOOD PARK 3 NEW TRYON PALACE/CITY OF NEW BERN VISITORS CENTER AND PARKING -PWs Restaurants. St"m lWartnn Min. GM W&WdrOnt Wakway and Boat SUPS 4 FUTURE PARKING AREA FOR UNION POINT PARK 5 NEW EXPANDED, IMPROVED WATERFRONT PARK v J J� I T I-JaF — 7 7 T: 7.0 711 1711.. � I Tryon Palace lerartront Walkway To BO Cwm;4" tl 4HiEND asrara Um NEW ACCESSWAY INTO DOWNTOWN NEW BERN aa�asar AIVERFRONT WALKWAY EXTENSION CONCEPTUAL PLAN LONG TERM. sr. TO as EsUaee artles To Be Oima"d O wo aao .00 soo cut diagonally across the current two -block vacant area between Norwood and Liberty Streets, and then run along the water's edge behind the public housing project and Tryon Palace. The need for this new entryway would be prompted by DOT plans to remove both the Trent River and Neuse River bridges. These two bridges would be replaced by a single span located further down stream from the City. In removing the two bridges, the downtown area of New Bern would become a peninsula. This entryway, as presently proposed, would be designed as a compact (narrow right-of-way, curb and gutter) four -lane parkway with landscaped central median strip. The design would have to be carefully integrated with existing neighborhood and land use conditions abutting the parkway corridor. Several other changes which can be described as long-term are discussed under items 1-5 on the accompanying map sheet. They are more fully described as follows. Map No. 1- Future Multi -Family Housing or Passive Recreation Parcel Number 1 would be created as a result of the new parkway into downtown New Bern. Due to the proximity of this site to the existing elderly high-rise housing development, the site could be used for either additional multi -family housing or as passive recreation. The specific use of the site would depend upon various factors related to market demand as well as design of the parkway. It has been suggested that if the new street is designed as a parkway with central median strip, then pedestrian crossings at grade should not be difficult. Regarding market demand, there is little doubt that the demand for future additional elderly housing will increase with each passing decade, well into the next century. Map No. 2 - Neighborhood Park Regardless of how Parcel Number 1 is used, Parcel Number 2 is strongly suggested for use as a neighborhood park. Reasons for this use include (1) the ability of the park to buffer the new parkway from existing residential areas, and (2) the need for the park to offset the loss of existing open space between the public housing project and Lawson Creek. Map No. 3 - Visitors Center Parcel Number 3 is the present location of the Barbour Boatworks. The Steering Committee wished to emphasize that the present Barbour Boatworks facility has every lawful right to remain in its present location as long as it wishes to. However, in the event that the owners of the Boatworks facility should decided to voluntarily relocate at some future date, this property presents a good opportunity to create a new visitors center complex for both Tryon Palace and the City of New Bern as a whole. 25 Features of this facility could include restaurants, shops, a riverfront inn, boatslips, as well as the waterfront walkway. The specifics of the development program would depend upon the amount of buildable area available after sufficient space has been allocated to the actual Visitors Center structure and associated parking. Map No. 4 - Future Parking Area for Union Point Park Parcel Number 4 has been identified as an area that could conveniently serve as a much needed parking area for activities at Union Point Park. Obviously, negotiations between the existing property owners and the City of New Bern would be necessary to reach a satisfactory agreement between both parties. The idea of providing off -site parking here or elsewhere is to eliminate the need to use valuable waterfront property at Union Point Park to accommodate automobiles instead of facilities for people. Map No. 5 - New Expanded and Improved Waterfront Park Parcel Number 5 is the present location of the landfall for the existing Neuse River bridge. When this bridge is removed as part of the overall transportation plan of improvements for the New Bern area, this site will likely be available for an alternative use. It is suggested that this area be improved as a significant waterfront park. This park would provide a much needed strong northern anchor for the ultimate extent of the proposed riverfront walkway. The location of this site, at the foot of Broad Street, also presents a good opportunity to create a significant view corridor down one of New Bern's most significant historic streets. Finally, it should be noted that the riverfront walkway should ultimately be extended at least as far west as the existing elderly high-rise housing development on New South Front Street. It will be important to tie this area of the City into the overall plan of improvements for the waterfront. Also, there is a possibility that the walkway need not stop at the elderly housing site. Rather, a pedestrian bridge could be built at this point, spanning Lawson Creek and connecting the walkway with Lawson Creek Park. The park would then provide a very suitable southern anchor for the riverwalk. 26 Section 6: Detailed Site Designs 27 Introduction Of the various publicly owned properties within the waterfront study area, the Steering Committee selected Lawson Creek Park and Union Point Park as the two sites most critically in need of updated site design studies. Accompanying this report, therefore, are conceptual site plans for each of these two strategic properties. For discussion purposes, the main features of each site design are presented as follows. Lawson Creek Park As noted in Section 5 of this report, the Lawson Creek Park area is viewed as a public resource which has not yet reached its full potential as an open space and recreation facility. A relatively new park, Lawson Creek has been gradually improved over the years to the point where it now includes two boat launching ramps and parking, a soccer field, fitness trail, and picnic area. Access into the park is generally good with an existing paved loop road. The updated site design presented on the following page includes the following recommended improvements that were identified as a result of the public involvement process during the preparation of the Waterfront Plan: • Additional outdoor lighting - At the present time, outdoor lighting is provided only at the site of the park's two boat ramp facilities. The installation of additional lighting throughout the park is needed for increased security as well as improved use. • Provide more trash receptacles - It was felt that a plentiful supply of trash receptacles distributed at appropriate locations throughout the park would help reduce the litter problem. • Preserve existing marsh - Another concern that received near unanimous support from the citizenry as well as the Steering Committee was the need to preserve existing marsh areas in the park. The natural and scenic value of these marshlands is universally acknowledged. • Encourage family -oriented activities - In terms of park use and service orientation, it was felt that Lawson Creek Park should have facilities and events which cater to families in the area. • Prepare a comprehensive landscape plan - While the City has worked toward a gradual enhancement of the Lawson Creek Park grounds, the need for a comprehensive landscape plan was identified. Such a plan would provide the City with the information necessary to program a phased plan of landscape improvements over a multi -year period. M LAWSON CREEK PARK a7 7.7%� - NORTH o so = sm soo M I - - PIM I • Keep shoreline clear of debris and trash - Another outcome of the public involvement process was the identified need to keep the shoreline, particularly along Lawson Creek, clear of debris and trash. This may require a conscious effort on the part of the City as well as an educational and enforcement program for users of the park. Specific Site Design Features In addition to the above park -wide improvement needs, there were also identified several specific projects which can be more easily located on the site plan. These specific projects include the following: • New concession building - The need for a concession building at Lawson Creek Park is prompted in part by the need for permanent restroom facilities. This concession building could be built by the City and leased to a private concessionaire. The building would include restrooms which the concessionaire would be required to maintain and secure as a part of the lease agreement. If successfully completed, these restroom arrangements would provide a much needed service in the park without placing the burden of their security and maintenance on the City. Potential goods and services which could be provided as part of the concessionaire's arrangement could include food and beverages, bait and tackle, and canoe and boat rentals. • Enhanced park entryway - The entryway into Lawson Creek Park should be significantly enhanced to properly reflect the size and importance of the park area. Specific entryway improvements should include a larger, more attractive sign element including ground plane landscaping and/or landscaping which "frames" the sign. Other landscape treatments could also be used to present a quality image of the present and heightened anticipation for the future of the park. It is critically important that the design for this entryway be given considerable thought and attention to design character, in that it will establish the design theme and context for the balance of any other landscape improvements inside the park. This entryway improvement could be an excellent joint project between the City and the private sector, with donations of time, materials, and money. • New fishing pier - Lawson Creek Park has emerged as a popular fishing location for numerous area residents. Many of these residents do not have access to a boat, or prefer fishing from the shore. It was felt that a new fishing pier located at the park could do much to serve the needs of this segment of fishermen. The most logical location identified for this 29 new pier was identified as being at the tip of Jacks Island. It is shown as such on the site plan. • New breakwater - The boat launching facility, located at the southeast corner of Lawson Creek Park, is in need of a breakwater structure to protect the ramp area from the effects of wind and waves. The relatively exposed location of this boat ramp facility could clearly benefit from the installation of a breakwater. A proposed breakwater has therefore been drawn into the site plan. Union Point Park The design for Union Point Park is oriented around a major east -west axis. The west end of this axis begins at a brick entry court with fountain and colonnade opposite Tryon Palace Drive. It then extends eastwardly along a brick walk to a half moon shaped boat basin at the water's edge of the Neuse River. This central axis reflects one of the major recommendations which emerged from the Pride in Place study recently conducted for the City of New Bern. In that study, it was recommended that the various street ends in the City be capitalized upon to bring the waterfront into closer relationship with the downtown area. Framing either side of this central east -west axis are two new structures. On the north side of the view corridor will be a restaurant and, to the south, the proposed river center. Revenues generated by the restaurant operation could be used to offset any revenue shortfalls that may be associated with the river center. Existing trees on the property will be preserved and supplemented by enhanced landscaping throughout the park. Open space areas within the site include a grassed amphitheater and stage immediately west of the restaurant, and a passive open space area in the extreme southeastern corner of the park. A moderate sized parking area will be provided on the north side of the site, but the allocation of land to parking in general will be minimized in favor of off -site parking areas. Water -related park features will include facilities for overnight boat slips, a small craft launch and rental area, a fishing pier, and day slips. In addition, an emergency boat ramp will be provided at the eastern end of the proposed parking area in the event that emergency or rescue vehicles should require immediate access to this part of the City's waterfront. 30 WATERFRONT CONSERVATION Edward D. Stone, and Associates ' Planners and Urban Designers & DEVELOPMENT PLAN ...._. �... City of New Bern, North Carolina ._..,.•,...�...,.,.----•��� One potentially sensitive issue is whether the so-called "Women's Club" Building should be left on the site and improved or simply removed. The site plan as proposed shows the Women's Club building being relocated to a location immediately adjacent to the existing restrooms building in the southwest corner of the site. Issues related to relocating the building include the possibility that one or more trees may have to be removed to allow the movement of the structure. For the time being, it is recommended that the Women's Club issue remain undecided until more detailed site design studies can be completed with associated cost estimates and project benefits. 31 Section 7: Implementation 32 This plan suggests a series of specific recommendations which the public and private sectors in the City of New Bern can undertake to enhance the future conservation and development of the Waterfront Study Area. Many of the recommendations are fairly straightforward, making the actions necessary for their implementation self evident. In evaluating the overall scope of the plan, however, there appear to be four specific areas within which the City exercises its control that can have a major impact on the ultimate success of the plan. The four areas may be identified as (1) implementing the 30-foot access strip, (2) including identified public improvements in the City's capital improvement program/budget, (3) establishing urban design guidelines and associated modifications in the City's zoning ordinance, and (4) implementing necessary stormwater management initiatives. Each of these items is discussed more fully below. 1. Implementing the 30-foot Access Strip A continuous riverfront walkway was identified as a near unanimous need along the entire length of the City's urban waterfront. It is therefore very important that the City take steps now to insure that all future waterfront developments plan for and include this 30-foot public access strip along the water's edge. This can be accomplished by an organized land dedication, acquisition or easement program, or through the site plan approval process for new developments. In all instances, it should be emphasized to the property owner or developer that the provision of the 30-foot strip is in the best interest of all properties along the waterfront and will ultimately increase each individual property's value. Voluntary dedications of the 30-foot strip are therefore the most advantageous approach to take. 2. Capital Improvement Programming This riverfront conservation and development plan contains literally dozens of specific recommendations for physical improvements at various locations throughout the riverfront area. Examples include improvements at Lawson Creek Park, Union Point Park, and streetscape improvements along no less than 17 blocks of the City's street system. It is apparent that not all of these improvements can be made at once; it may be a process extending over a decade or more. It is important that the City begin planning now to incorporate these recommended improvements into the City's long-term capital budgeting process. Decisions can then be made as to the most pressing improvements. Identifying these necessary improvements in the public arena may also provide the opportunity for the private sector to become actively involved in helping the City to achieve its improvement objectives. 33 3. Establish Design Guidelines and Associated Zoning Changes The number and magnitude of development proposals currently before the City of New Bern for approval along the City's waterfront affirms that the City is today at a critical juncture. Factors of architectural character, massing, scale, materials, height, vehicular and pedestrian movement, etc. raise the issue that the City is currently inadequately equipped with development controls necessary to insure a coherent and attractive downtown waterfront. One administrative tool gaining increasing acceptance and use in communities across the country are urban design guidelines. Such guidelines provide a greater level of direction to developers contemplating projects within especially sensitive areas of a community. Design guidelines are typically drafted so as not to confine or restrict new development, but rather to give the prospective developer a clear indication of the character of development that is most likely to be favorably reviewed by City officials. Such guidelines usually consist of a narrative and series of sketches outlining the City's objectives for new development. The most important message conveyed by the guidelines is to insure that future development is consistent with the architectural character of both the immediate site environs and the unique area of the community within which the site is located. New Bern's waterfront along both the Neuse and Trent Rivers is the City's "window to the world." What the outside world sees through that window reflects strongly on the overall image of the entire community. Design guidelines are therefore strongly recommended. 4. Stormwater Management Initiative Also associated with new development is the issue of proper stormwater management. Public and private sector developments alike must be conscious of how their impervious surface areas affect stormwater volumes and, ultimately, the quality of water in adjacent rivers and streams. The City has received a grant from the Pamlico -Albemarle Commission to assist New Bern in the preparation of a management strategy to reduce stormwater runoff reaching area waters. Such a management strategy should describe specific design measures to retain stormwater on site and increase its infiltration into the underlying groundwater system. It is important that the City put these stormwater management design guidelines in place now to insure that increasing levels of riverfront development do not contribute to further degradation of area water quality. 34 Section 8: Public Participation 35 At the outset of the planning process for the Waterfront area, public participation was noted as being critical to the development of the Plan and, ultimately, its implementation. For this reason, the first action requested by EDSA of the City was to establish a Steering Committee of interested citizens to guide the preparation of the Waterfront Plan. The Steering Committee was appointed in March of 1988 and was formally organized at its first meeting on April 11. A complete list of meeting dates, activities, and actions is presented at the end of this section. At the first meeting of the Steering Committee, the importance of each member's active participation in plan development was emphasized. Three reasons were given as to why each Steering Committee member's active participation was so critical. They are repeated here in full as they were provide in a handout given to each Steering Committee member: Your effectiveness as a Steering Committee member is absolutely critical to the success (or failure) of the Waterfront Conservation and Development Plan: 1. LOCAL PERSPECTIVE: You represent a unique local viewpoint from within the community; you know the area well, its strengths and weaknesses. You have a feeling for what may work and what may not. 2. FEEDBACK: You should provide input on the accuracy of information gathered and feedback on recommended solutions. (You should not, however, take the roles of planner, designer, or government official. Your role is as an adviser.) 3. NETWORKING: You know others in the community who have a vested interest in the riverfront and who should be involved in the area's redevelopment. These others may include friends, neighbors, business associates, or others in a position of interest and influence. The series of Steering Committee meetings that followed typically involved EDSA, the City's Planning Director, and the Steering Committee members. All meetings were open to the public. The planning and design process that was used led the group toward an ever-increasing level of plan refinement and detail. The first meeting of the Steering Committee was followed immediately by a major Public Forum held in April at the Sheraton Hotel complex on the downtown riverfront. Nearly 100 persons attended the public forum and identified an extensive list of concerns for the waterfront for each of four study subareas. 36 On May 18, the Steering Committee met again to review the results of the public forum and to begin the formulation of a preliminary planning response. Each of the priority issues identified at the Public Forum was discussed in full and elaborated upon. Work already in progress toward achieving any concern was identified and the probability of success for other alternative actions was evaluated in group discussion. The Steering Committee met for a third time on May 25 to continue its review of the Public Forum results. Discussion continued much along the same lines as that of the May 18 meeting, but covered new topics. Also at this meeting, EDSA presented the Steering Committee with a preliminary planning response in map form. Points of agreement and disagreement followed, with further plan refinements resulting. By the conclusion of this meeting, every major concern identified had been touched upon with recommendations for a planning response established. EDSA was then given the directive to bring these recommendations together into a coherent draft plan for further review. On July 21, the Steering Committee invited the City's Planning and Zoning Board to join with them in evaluating the draft plan. Plans presented at this meeting included first drafts of the Near -Term and Long -Term Conceptual Plan as well as preliminary site plans for both Union Point Park and Lawson Creek Park. Again, suggestions were made as to further refinements in the plan. The joint meeting ended with a unanimous endorsement of the preliminary plans presented with modifications as recommended. EDSA was directed to pull together a final draft of the plan for presentation to City Council. 37 Summary of Public Involvement New Bern Waterfront Conservation and Development Plan March • Steering Committee Appointments Late March/Early April • Public Forum Announcements Sent Out April 11 • First Steering Committee Meeting Orientation and training • Major Public Forum at Sheraton Slide/visual inventory Issue identification Issue ranking May 18 Second Steering Committee Meeting Review public forum results Preliminary planning response May 25 Third Steering Committee Meeting Continue review of public forum results Continue planning response Discuss preliminary plan - feedback July 21 • Joint Meeting of Steering Committee and Planning and Zoning Board Present long- and near -term plans Discuss two site designs m