philadelphia city planning commission · philadelphia city planning commission seeks to encourage...

FRANKFORD CREEK REDEVELOPMENT AREA PLAN

PHILADELPHIA CITY PLANNING COMMISSION

November 19, 2002

CITY OF PHILADELPHIAJohn F. Street, Mayor

PHILADELPHIA CITY PLANNING COMMISSION Gary Hack, Chairman

Jeffrey S. Batoff, Vice ChairLynette M. Brown-Sow

James J. CuoratoJanice DavisGloria Levin

Marcia Moore MakadonEstelle Richman

Maxine Griffith, AICP, Executive DirectorRichard L. Lombardo, Deputy Executive Director

COMMUNITY PLANNING DIVISIONRichard Redding, Acting Division Director

REPORT BYShari Cooper, Northeast Philadelphia Planner

Maps and GIS analysis by Bryan Lightner

PCPC INTERNSGabrielle Grode

James Johnson-Piett

INTRODUCTIONThe Frankford Creek Redevelopment Area liesalongside the Frankford Creek and includes theneighborhoods of Frankford (population 31,572)and Juniata Park (population 35,461). The bound-aries of the Redevelopment Area includeFrankford Avenue, Adams Avenue, OrthodoxStreet, Castor Avenue, Cayuga Street, "O" Street,and Hunting Park Avenue.

Both Frankford and Juniata Park are geographi-cally situated between I-95 and RooseveltBoulevard. Each neighbhorhood shares a criticalnatural feature and amenity: the Frankford Creek.Although this creek physically separates theneighborhoods, it does not create a barrierbetween the revitalization efforts of the two com-munities. This may be because the FrankfordCreek is a shared feature between the two neigh-borhoods, as each community has residentialareas that abut to the creek. On both sides of thecreek, homes are intermixed with older, industrialproperties, which impose a blighting influence ontheir residential neighbors.

Additionally, these industrial users tend to use themajority of the land for outdoor storage or indus-trial activity. Other lots go largely unmanaged andexperience a high amount of natural overgrowth.

Unfortunately, these uses do not contribute to adesirable quality of life, nor do these uses maxi-mize or appreciate the natural amenity the creekbrings to bear. The return for the community couldpotentially be much larger than for what currentconditions allow.

The impetus for this redevelopment plan follows aproposal submission for housing developmentalong the Frankford Creek, by the Frankford CDC.This proposal involves creating approximately 54town homes on a site bordered by FrankfordCreek, Wingohocking Street, and Cayuga Street.This proposal responds to the community's desire

Philadelphia City Planning Commission Page 1

FRANKFORD CREEK REDEVELOPMENT AREA PLANfor the area generally bounded by:Frankford Avenue, Adams Avenue, Orthodox Street, Castor Avenue, and Hunting Park Avenue

Frankford Creek Study Area

Industrial User adjacent to Frankford Creek and Frankford Residences

to reinstate the creek to its natural setting anddevelop it primarily into a recreational and resi-dential showpiece for the area. The FrankfordCDC wishes to create a rich and stimulating"place," appropriately planned and designed forthe 21st century.

In addition to facilitating this proposal, ThePhiladelphia City Planning Commission seeks toencourage redevelopment in a broader perspec-tive around the creek. Specifically, PCPC hopesto work collaboratively with other agencies, non-profit groups, and elected officials to clean up thearea and transform the edges of both neighbor-hoods. We believe this project can have a signif-icant impact on the neighborhoods bordering thecreek, as well as the Near Northeast area as awhole.

THE NEIGHBORHOOD CONTEXT: FRANKFORD AND JUNIATA PARKFrankford is a neighborhood rich in history andstrong in community. However, Frankford hasexperienced significant deterioration over theyears in terms of its physical, economic, andsocial fabric.

In response to these problems, the FrankfordCDC, alongside various other community groups,has been working to revitalize and redevelop themore dilapidated parts of the neighborhood, par-ticularly the housing stock.

The housing stock in Frankford, specifically with-in the study area, is fairly old, quite dense, andsmall in scale. Most of the homes in the studyarea were built in the late 1800s and early 20thcentury when inexpensive homes were built forworkers of nearby factories. In fact, some ofthese homes hold historic value, reflecting theoriginal development along the Frankford Creek.

Several of these older homes, and particularly thedilapidated wooden-frame structures, fell into dis-repair over time and were demolished. As aresult, many vacant lots and side yards arestrewn throughout this residential section.Currently, many of these side yards are eitherovergrown lots or are being used for outdoor stor-age. Other lots are being maintained as openspace.


Vacant lots and deteriorating properties in Frankford

Homes near the Frankford Creek

Townhouses at Frankford Creek (Conceptual Rendering)

By today's housing standards, the homes thatremain cannot compete in today's residential mar-ketplace. The homes in this area are consideredtoo small and "outdated". Additionally, today'shigher-value residential neighborhoods are sepa-rated from industrial uses, unlike most of theproperties in these communities where severalauto-related businesses exist adjacent to smallhomes.

Indeed, for such a dense residential area, maxi-mum utilization of open space figures as a neces-sity as well as critical amenity. The potentialamenity of the creek, along with green land-scaped spaces, offers a high return on investmentfor developers, as well as homebuyers.Currently, the land development potential is notbeing realized. This is reflected in the housingvalue chart below. Although the housing valueshave increased they still have not kept up with thecitywide rate as a whole.

Juniata Park, however, experiences marginallyhealthier housing values. Generally, the row-stylehomes in Juniata Park are in good condition.Most of the row homes here were built in the late1950s and early 1960s. The residential blocks inthis neighborhood were much more consciouslyplanned and were designed to be more contigu-ous in residential space, in order to strengthencommunity connections. However, certain sec-tions along "O" Street and Hunting Park Avenueare beginning to experience a number of vacantor boarded-up homes (see photo below).

Vacant PropertiesAlongside the vacant residential properties inFrankford, there are a number of underutilizedparcels, formerly used by large industrial factoriesalongside the Frankford Creek. Today, however,these buildings are obsolete in the modern indus-trial marketplace. As a result, many low-end auto-related uses (body work/repair, maintenance, andsalvage) have moved in to these oversized largespaces. Consequently, many of these business-es reflect underutilization or are largely vacant.

In Juniata Park, there are also other vacant com-mercial properties occurring at the intersection ofAdams Avenue and Orthodox Street, where anACME grocery store once existed. There is alsoconcern that the adjacent K-Mart will soon beclosed because of the recent bankruptcy of theparent corporation.

Further south on Castor Avenue in Juniata Park,there are several other vacant stores in theJuniata Park Shopping Center. This level ofvacancy reflects the area's inability to perform inan economically desirable manner.

RecreationAcross the street from the Juniata Park shoppingcenter is the Juniata Golf Course. Along with thesizeable Piccoli Playground, this golf course isone of the most outstanding natural features inthe neighbhorhood.

This local amenity is a beautifully landscaped golfcourse, occupying approximately 114 acres. Themeandering stream of the Frankford Creekbisects the golf course, emphasizing its


Vacant commercial property in Juniata Park

CENSUS HOUSING VALUES1990 2000 % Change

FRANKFORD $25,600 $29,600 +15.63%JUNIATA PARK $46,600 $54,100 +16.09%PHILADELPHIA $47,400 $59,500 +23.34%

“O” Street in Juniata Park

undulating grounds and accentuating its pastoralviews. Other playgrounds exist downstream fromthe golf course, which creates the possibility ofhaving community open spaces linked by a con-tiguous greenbelt alongside the creek. Futureextension of this greenbelt could also be plannedto eventually connect to the North DelawareRiverfront, similar to the Pennypack Creek andPark.

THE FRANKFORD CREEKAfter the stream passes through the Juniata GolfCourse, it abruptly crosses over to a more indus-trial section within the neighborhood. Currentanalysis reveals that the Frankford Creek suffersfrom industrial and waste contamination.Beginning at this point, the creek is in desperateneed of environmental remediation. Moreover,

these conditions present an "unsafe, unsanitary,and inadequate conditions" problem for the city.Its physical hardships include hazardous environ-mental contaminants, illegal dumping, scattereddebris, heavy overgrowth, and most importantly,lack of sustainable development opportunity, criti-cal for the area's future economic growth.

After careful review, the United StatesEnvironmental Protection Agency designatedFrankford Creek "biologically impaired." Thisdesignation reflects the negative environmentalimpacts resulting from the various industrial usessurrounding the creek. Despite these impedi-ments, however, the Philadelphia WaterDepartment asserts that the Frankford Creek is

primed for restoration.

In support of the restoration effort, various resi-dents, community groups, environmental groups,city, state, and federal agencies are working col-laboratively to begin the creek's revitalization.Surprisingly, the creek supports a significantamount of aquatic life, despite its poor water qual-ity. Recently, the Philadelphia Water Departmentconducted stream assessments and identifiednumerous fish species that live in the creek.

Clearly, improving the land-water relationship andminimizing negative impacts on the aquaticecosystem, will further benefit these aquaticspecies and enable other less pollution-tolerantspecies to thrive. Indeed, the creek restorationcould be the first step in maximizing developmentpotential.


Frankford Creek directly across from the Juniata Golf Course

Frankford Creek

Frankford Creek at the Juniata Park Golf Course

In addition to the Philadelphia City PlanningCommission's collaboration with the PhiladelphiaWater Department, preliminary discussions havebegun with the Fairmount Park Commissionabout future visions for the Frankford Creek area.At this time, proposed recreational developmentis conceptual and the Fairmount ParkCommission is under no immediate obligation tofinance and implement specific recommenda-tions.

REDEVELOPMENT OBJECTIVESThe general goal of this Redevelopment AreaPlan is to provide a framework for present andfuture redevelopment proposals. Clear planningpolicies for land use, zoning and capital programinvestment will not only guide the orderly growthand development of the area, but will also serve aroad map for interested developers.

The plan sets out to achieve the following objec-

tives:-To encourage new residential construction, aswell as the rehabilitation of vacant homes aroundthe creek, and adaptive reuse of large, industrial,historic structures

-To recognize the area around the FrankfordCreek as an important natural community asset,thereby creating a safe and well landscaped pub-lic right of way that is regionally connected toother greenbelt areas, local parks and openspaces

-To remediate the environmental contaminationand pollution of the Frankford Creek

-To eliminate the blighting influence of undesir-able land uses by encouraging the redevelop-ment of vacant or underutilized properties

-To replace substandard, or economically obso-lete buildings, with open space, and

-To preserve the historic character of the creekand community.

EXISTING CONDITIONSThe Philadelphia City Planning Commission certi-fied the subject properties as blighted onNovember 19, 2002. Designation for redevelop-ment is warranted by the following criteria havingbeen satisfied:

1. Unsafe, unsanitary, inadequate or overcrowdedconditions 2. Inadequate planning3. Faulty Street and Lot layout4. Economically or socially undesirable land use

Summary of Blight StudyThe study area is comprised of 78 acres, 21% ofwhich are vacant. Additionally, of the 395 proper-ties in the study area, 11% of these are tax delin-quent, which reflects economically undesirableland use. Several dead-end streets provide evi-dence of faulty street layout, along with other nar-row, sub-standard streets. These conditions havea decidedly deteriorating effect on the neighbor-hood.


Conceptual greening of--and connections to Frankford Creek

EXISTING LAND USE As shown on the right, the landaround the creek reflects a mixbetween industrial and residen-tial land use. Playgrounds and agolf course are also importantfeatures of the land use patternbordering the study area.Connections between theseopen spaces or nearby play-grounds and golf course shouldbe made.

The Juniata Park Side of theStudy AreaJust south of Orthodox Street, onCastor, there is a commerciallyzoned parcel that is home to alarge vacant building (once a gro-cery store), next to a K-Mart.Additionally, there is anotherlarge vacant building, and twoother vacant tenants, in theJuniata Shopping Center.

Between Castor Avenue,Wingohocking Street andCayuga Street, there are severalindustrial uses such as a con-crete-mixing plant, and auto sal-vage operation. All of these usesabut to the Frankford Creek. Theauto related business is adjacentto Juniata Park residences.

Residential homes line thestreets from Cayuga Street and"O" Street, to Hunting Park Avenue andKensington Avenue. Here, industrial (auto-relat-ed) users exist in between the residential backyards and the Frankford Creek.

The Frankford Side of the Study AreaAlong Kensington Avenue and Adams Avenuethere are numerous auto sales lots. OffKensington Avenue, on Deal Street, there are sev-eral small homes (few are occupied). There arealso numerous vacant lots, resulting from prior res-idential demolitions in the area. The homes on thesouth side of Deal Street abut, and have access to,the Frankford Creek. However, Deal Street dead-ends at a very large, historic, and mostly vacant

industrial building.On Adams Avenue, just north of KensingtonAvenue, numerous auto-related businesses, inter-spersed with small houses, dominate the land-scape. Most of these properties back up to theFrankford Creek.

Adams Avenue contains the majority number ofauto-related businesses. However, just north ofHorrocks Street to Orthodox, on Adams, there is alarge tract of land that is undeveloped (approxi-mately 9 acres).


Existing Land Use

PROPOSED LAND USE As shown on the right, the"Proposed Land Use" map hasbeen prepared to lay the ground-work for appropriate treatmentfollowing removal of blight.

The Frankford CreekRedevelopment Area Plan envi-sions significantly more recre-ational uses and landscapingalongside the waterway. It is forthe benefit of the entire communi-ty that the creek must occupy agreen and fully landscaped publicspace that is functional, wellplanned, and well connected toother major features in the area.This concept resembles otherhigh-value Philadelphian areas,such as the Wissahickon Creekand Pennypack Creek Parks.

The Plan also encourages newhousing construction, historicpreservation, housing rehabilita-tion, and mixed-use developmentin certain areas.

Specifically, on the Juniata ParkSide of the creek betweenWingohocking Street, CastorAvenue, Cayuga Street and theFrankford Creek, ThePhiladelphia City PlanningCommission anticipates that theFrankford CDC will acquire anddevelop approximately 54 townhouses, includinga landscaped edge for public access alongsidethe Frankford Creek. This public access is a partof a larger, conceptual plan that calls for connect-ed and comprehensive jogging and bike pathsalongside the creek.

EXISTING ZONING ContextIn the late 19th century, Frankford experiencedsignificant industrial development. During thistime, Frankford was the one of the epicenters ofindustry in Philadelphia. Many of the factories

desired to be located near the creek for purposesof waste disposal and for the power generationand cooling the water offered.

However, today the area hosts several auto-relat-ed businesses within the former manufacturingsites. Many of the large industrial buildings arenot fully utilized and the creek is a hidden assetthat lies dormant behind several of these large,mostly vacant, or underutilized properties.

Consequently, the existing zoning within theFrankford Creek Redevelopment area reflects ahigh concentration of G2 industrial zoning.


Proposed Land Use

There are also areas of zoning for commercial onthe edges of the study area. Residential zoning isminimal, but adjacent to the industrially zonedpieces of property.

There is no recreational zoning around the creek,as shown on the "Existing Zoning Map" above. The Philadelphia Planning Commission’s propos-al for new recreational open space reflects thecity's appreciation for, and desire to work within,the existing framework of the natural environ-ment. The Plan seeks to achieve safe and use-able open space, while maximizing the benefit ofview corridors or vistas onto, around, and fromadjacent properties, buildings, and roadways.

PROPOSED ZONING This area underwent a zoning remapping in 1982.Most of the zoning changes involved the chang-ing of the R-9 and R-10 designations to R-9A andR-10A, reflecting the single-family nature of thecommunity. Furthermore, some of the areas des-ignated G-2 were changed to a L-4 LimitedIndustrial designation.

The site of "The Townhouses at Frankford Creek,"bordered by Frankford Creek, WingohockingStreet, and Cayuga Street, is recommended for"residential" zoning. Future parkland along thecreek is proposed for rezoning to "recreational."Specific rezoning strategies involving councilman-ic ordinances or variances from the Zoning Boardof Adjustment will await final development plansand/or land acquisitions to facilitate new housingor parkland.

ILLUSTRATIVE SITE PLANComprised of approximately 78 acres, theFrankford Creek Redevelopment Area is a fairlylarge-scale redevelopment plan. Large-scaleplanning such as this often requires a compre-hensive and carefully planned approach.Planning for such radical change also requires along-term strategy.

The Illustrative Site Plan below is a conceptualplan, which proposes new housing at three differ-ent locations. Along the creek, the plan also pro-poses contiguous open spaces that could incor-


Illustrative Site Plan

Existing Zoning

porate a multi-use trail system. This new recre-ational area and trail system could contribute anew and attractive feature to the City ofPhiladelphia, similar to other continuous parksalong the Pennypack and Wissahickon. Theopen spaces should be maintained with assis-tance from community based organizations andcaretakers.

Implicit in the illustrative site plan is the generalgoal of housing rehabilitation and historic preser-vation. Frankford has a rich history in terms ofhousing, industry, and transportation. The com-munity has recognized that early Native Americansettlements were located near the FrankfordCreek. There are many existing homes andstructures that hold the possibility for preserva-tion, such as the residence at 1548 AdamsAvenue (ca. 1800). Any new housing should bedesigned in a way that is respectful of the area'shistoric and residential characteristics.

The Landscaping PlanWith regard to this conceptual plan, a moredetailed landscape strategy will need to be creat-ed. This plan should provide for a variety of openspaces, greenways, bike and jogging trails,waterways, small meadows-such as play areas,communal gardens, and courtyards. Generalopen spaces should have linkages with ancillaryopen spaces contained in specific developments.

It is also critical to work within the floodplain andgrain of the landscape, including topographical,hydrological, and ecological considerations.Therefore, the landscape plan should enrich theexisting urban form by working with the topogra-phy to achieve sustainable movement systems,footpaths, public transit connections and corri-dors.

Site ImprovementsAlthough not specifically shown on the IllustrativeSite Plan, site improvements are recommendedto support the revitalization projects proposed inthis plan. This will involve improvements to thestreetscape, including new sidewalks, streettrees, landscaping, and lighting. Care should betaken to ensure that these site improvements arein keeping with the architectural and historic char-acter of the area. Finally, site planning should be a collaborative effort and with commu-nity leaders, developers, elected officials, and

other city, state, and federal agencies.PROPOSED STREET CHANGESIt is anticipated that some changes will be madeto existing streets. Final plans will be prepared inconjunction with specific development plans.

RELOCATIONNo residential relocation is anticipated at thistime. In the event relocations are necessary, allrelocation will be accomplished in accordancewith the terms and conditions of the federalUniform Relocation Act.

ESTIMATED COSTS OF REDEVELOPMENTThe total cost of the Townhouses at FrankfordCreek is estimated at $10,190,000. Additionalcosts will be determined at a later time in consul-tation with the City's Redevelopment Authority.

PROPOSED STANDARDS AND CONTROLSThe Philadelphia Zoning Code establishes stan-dards and controls for uses, density, land cover-age, building area, parking and off-street loading.All impacts of redevelopment on the surroundingresidential community will be minimized throughdevelopment controls regulating site design,building materials and landscaping. These con-trols will be established by the RedevelopmentAuthority, and reviewed and approved by the CityPlanning Commission.

The Pennsylvania Urban Redevelopment Law of1945, as amended, and the United StatesHousing Act of 1949, as amended, regulateRedevelopment and Urban Renewal in the City ofPhiladelphia.

Redevelopment in the Frankford CreekRedevelopment Area will be in conformity with theprovisions of this Redevelopment Area Plan andwith the requirements of any Urban Renewal Planprepared by the Redevelopment Authority of theCity of Philadelphia for this area, and will complywith the Code of General Ordinances of the Cityof Philadelphia. All plans and proposals preparedby the Redevelopment Authority will be subject tothe recommendations of the City PlanningCommission and the approval of the Council ofthe City of Philadelphia.


philadelphia city planning commission · philadelphia city planning commission seeks to encourage...

Documents