Lower South District Plan

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LOWERSOUTH> DISTRICT PLAN

PHILADELPHIA

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>The Philadelphia Home Rule Charter requires the Philadelphia City Planning

Commission to adopt and maintain a comprehensive plan. Philadelphia2035isour two-phase comprehensive plan. The Citywide Visionportion was adopted

by the PCPC in June 2011. Over the next several years, the PCPC will complete

18 strategic district plans, taking many of the broad-brush objectives of the

Citywide Visionand applying them at the local level.

>Philadelphia2035 is part of an integrated planning and zoning process that

includes zoning reform and the Citizens Planning Institute.A new zoning code

was signed into law in December 2011. The new code is user-friendly and

consistent with todays uses and development trends. The Citizens Planning

Instituteoffers classes in planning, zoning, and government.

>The PCPC also prepares the Capital Program, a six-year funding plan for

public facilities and infrastructure such as transit lines, highways, parks,

playgrounds, libraries, health centers, and other municipal facilities. Specific

recommendations for these facilities are included in the district plans.

The future begins with Philadelphia2035. It builds on ourcitys recent achievements and long-established assets to guide physical

development for the next 25 years and beyond.

Philadelphia2035 is our blueprint for a 21st-century citythatthrives with new growth and opportunities, connects to the region and the

world, and renews its valued resources for future generations.

Phase 1:Citywide Vision

Phase 2:District Plans

> Informs district plans > Informs zoning map revisions

PHILADELPHIA2 35www.phila2035.org


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>CITYWIDE VISION

>DISTRICT PLANS

+40,000jobs

in 2035

The Citywide Visionlays out broad, far-reaching goals for the future under thethemes of THRIVE, CONNECT, and RENEW.

These themes and their related goals are described through specific objectives

across the nine planning elements of neighborhoods, economic development,land management, transportation, utilities, open space, environmentalresources, historic preservation, and the public realm.

The Citywide Visionbuilds on our strengths of a strong metropolitan center,diverse neighborhoods, and industrial legacy areas by recommending goals

that contribute to a stronger economy, a healthier population, and a smallerenvironmental footprint.

The Citywide Vision also includes an ambitious forecast for population andemployment in 2035 of an additional 100,000 people and 40,000 jobs.

A framework for implementation across City departments will advance thegoals of the Citywide Visionand is underway concurrent with the developmentof the district plans.

There are three major products of the district plans: land use plans, planningfocus areas, and Capital Program recommendations.

The 18 district plans are focused on a shorter time frame than the 25-year Citywide Vision. While the majority of the land use and developmentrecommendations are meant to be accomplished within a ten-year period, someof the recommendations are early action items designed to lay the foundationfor longer-term proposals. Strategic recommendations for municipal facilities,infrastructure, and City-owned land are addressed because of PCPCsleadership role in the Capital Program process. The district plans presentpriority planning focus areas to illustrate the written recommendations andsuggest visionary changes in these areas. The district plans land use mapsguide the zoning map revisions, a public process that begins after each districtplan is complete.

The civic engagement planning process for each district plan includes threepublic meetings, frequent Steering Committee meetings, and several publicpresentations to the PCPC. When the PCPC completes all 18 district plans, theentirePhiladelphia2035 planning process will be revised and updated, therebymaintaining a current comprehensive plan for the city.

This is the LOWER SOUTH DISTRICT PLAN. It was adopted by the PCPC onMarch 20, 2012.

+100,000peoplein 2035

CENTRALCENTRAL NORTHEASTLOWER FAR NORTHEASTLOWER NORTHLOWER NORTHEASTLOWER NORTHWESTLOWER SOUTHLOWER SOUTHWEST

NORTHNORTH DELAWARERIVER WARDSSOUTHUNIVERSITY/SOUTHWESTUPPER FAR NORTHEASTUPPER NORTHUPPER NORTHWEST

WESTWEST PARK

THE 18 DISTRICTS


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LOWER SOUTH DISTRICT PLAN


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Metropolitan Center

West District

West ParkDistrict

Lower North District

River WardsDistrict

South District

University / SouthwestDistrict

Lower Southwest

District

Lower South District

Delaw

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r

N e w J e r s

N e w J e r s e y

~0

.5

m

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~1

.5mi

AT&TStation

Broad St.

Market St.

Philadelphia Museum of Art

30th St. Station City Hall

Convention Center

Philadelphia International Airport

I-95

I-7

I-95

I-76

I-76

I-676

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: Lower South District Plan


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The Lower South District covers 6.58 square miles and has a total population of 5,200. The district includes the

sports complex; the Navy Yard; large industrial areas, including port, food distribution, and shipbuilding facilities;

Franklin Delano Roosevelt (FDR) Park; and several residential neighborhoods. The district is largely nonresidentialwith nearly three times the number of people employed here than residents. As both an employment center and

entertainment hub, the district is a major and growing economic driver in the region.

Penros

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Passyu

nkAve

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v

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N e w J e r s e y

Schuylk

i

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FDR Park

I-95

I-95

The Navy Yard

Sports Stadium District

Broad St.I-76

Pattison Ave.

Walt WhitmanBridge

LOWER SOUTH DISTRICT

Refinery

Port

Neighborhoods

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DEFINING THE CONTEXT

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Existing Assets

Lower South is a corner of Philadelphia that attracts thousands of visitors and employees

to the sports complex and the Navy Yard from across the region. But to most it remains an

unexplored place with unknown potential. Lower South is very different than other planningdistricts because it is primarily nonresidential in character and broken into large, distinct areas

with limited access and use.

The Lower South boundaries were created using

2010 census tract boundaries that follow major

roadways and the Delaware and Schuylkill Rivers.

Prior to its development, Lower South was a

marshy place with numerous streams that created

two large islandsLeague and Greenwich. Much

of Lower Souths legacy of vast properties andlarge-scale use is tied to its early development as

an industrial and military hub located far f rom the

populous city center on land unsuitable for other

uses.

In recent years, Lower South has experienced

both population and employment growth despite

the closure of the Navy Yard in 1996 as an active

military base. Most of this growth has come from

the repurposing of naval sites for civilian housing

(Siena Place and the Reserve at Packer Park) and

modern industrial, port, and office uses at theNavy Yard itself.

Today Lower South has six distinct areas: the

refineries, the Navy Yard, sports complex, FDR

Park, the residential neighborhoods, and the port

and food distribution area. All of these areas have

clear boundaries created by infrastructure such as

streets, highways and freight rail lines.

In fact, infrastructure is the key issue in the district

Investing in properly designed infrastructure

is crucial to Lower Souths continued growth

Recommendations for highways, streets, mass

transit, and utilities are fundamental elements o

this plan.

Each of Lower Souths six distinct areas is define

by a characteristic development pattern, one

of the factors that contributed to the following

susceptibility to change analysis.

Refineryhas waterfrontaccess

Neighborhoodsare strong and growing Sports Complex

has new construction

Industrial Areashave rail, port, and

highway access

Navy Yardhas historical resources

FDR Parkoffers recreationalamenities

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Future Opportunities

This plan analyzes sites and divides them into

two categories: (1) properties likely to change

in the future, vs. (2) sites that are expected to

remain the same during the time frame of this

plan. Factors include vacancy, underutilization,

economic trends, and development patterns.

This type of analysis can help prioritize sites forplanning, sometimes disclosing important spatial

relationships.

Areas highlighted in dark purple are the most likely

to experience change in use or new development

in the short term. Light purple areas have longer-

term potential, and areas that are not highlighted

are unlikely to experience a substantial change.

Lower South continues to trend toward growth

with the construction of more housing at Siena

Place, the XFinity Live! entertainment complex,

the growth of the port to the Whiskey Yard and

eastern side of the Navy Yard, and with the

continued ability of the Navy Yard to attract and

retain businesses. Even with the planned saleand closure of Sunocos operations, Lower South

is expected to continue to see employment growth

due to the potential reuse of Sunoco property for

modern industry.

Lower South has great potential for further population and employment growth that will be

aided by infrastructure investments, phased development of City-owned land, and proper land

use and zoning changes as recommended in this district plan.

Long TermShort Term

Opportunity Areas

Refinery

EnvironmentalRemediation

CommerceCenter

SienaPlace XFinity

Live!

*

*

*

*

* Under Construction,spring 2012

*(adaptivereuse)

NavalHospital Site

Langley Ave.Improvements Diagonal Blvd.

Improvements

Terminal Ave.Improvements

CorporateCenter

Access RoadImprovements

Southport

WhiskeyYard

Lower Souths existing and potential economic

drivers, regional attractions, employers, and

desirable neighborhoods position it strongly

within the city and the region.

EnvironmentalRemediation

7Defining the Context


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Industries are the first majordevelopment in Lower South,taking advantage of river accessand limited population. The districtis an ideal location for industriesthat needed to be away from the

city center due to harsh fumes andby-products. The earliest industrialdevelopment includes a gascompany (eventually to becomePhiladelphia Gas Works) and theAtlantic Refining Company, bothlocated along the banks of the

Schuylkill River.

In 1876, the Navy Yard movedpermanently from its originallocation on South ColumbusBoulevard between Ellsworth

and Wharton Streets. Earlydevelopment of the League IslandNavy Yard concentrated alongBroad Street.

Industry expands and dominates the Schuylkill

River banks as a chemical works, railroadcompanies, a slaughterhouse, and a roofingmaterial company join the existing refineries.Trash dumps occupy a large swath east ofBroad Street north of the Navy Yard.

1890 1920

Atlantic Refining Company. View looking

north from Passyunk Avenue Bridge, 1917

Visitors swimming in League Island Park

during the Sesquicentennial Exposition,1926

1917:Industry

alongSchuylkill

RiverIndustry

The Navy Yard undergoes asubstantial construction phasein the early 1900s, addingnumerous equipment shops andofficers quarters. During WorldWar I, the need for ships and

aircrafts increases and MustinField and the Naval AircrafFactory are built.

Point Breeze Park, a popular horseracing track, is created around1862 at 26th Street and PenroseAvenue.

In 1885 League Island Park (now FDRPark) is created and shortly thereafteris redesigned by the Olmsted Brothers.League Island Park becomes the focusof the nations attention in 1926 when ithosts the Sesquicentennial InternationalExposition, attracting millions of visitors.

Municipal Stadium (later JFK Stadium)is built for the Sesquicentennial, as is thehome of the American Swedish HistoricalMuseum.

Scattered homeslie along post roads

and on farms.

During the early 1900s,the only housing thatexisted in the district waslocated at the Navy Yard.

Navy Yard

Parks and Entertainment

Residential Development

Navy Yard Looking Northeast, 1921

Photo courtesy of PhillyHistory.org, a project of the PhiladelphiaDepartment of Records

Photo courtesy of PhillyHistory.org, a project ofthe Philadelphia Department of Records

Photo courtesy of PhillyHistory.org, a project ofthe Philadelphia Department of Records

Development History

Early Development

Prior to city consolidation in 1854,the Lower South District was apart of Passyunk Township. Thearea was marshy with manystreams, creeks, and islands, andwas sparsely populated until themid-1800s.

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The Navy Yard experiences its greatest periodof expansion between 1939 and 1945 with theaddition of dry docks and additional equipmentshops. The need for housing sailors, workers,and their families necessitates the constructionof military housing outside of League Island.

1950 1970 2012

Lower South houses under construction, 1960

Veterans Stadium looking southwest, 1971

One Crescent Drive, 2011

1971:VeteransStadiumopens

19391945:Navy Yards

greatestexpansion

Trash dumps are cleared and the fooddistribution center opens in 1959 betweenPacker and Pattison Avenues to the east of 7thStreet. Construction of I-76 and I-95 improvevehicular transportation and result in majorphysical barriers.

Delaware River portexpansion below the WaltWhitman Bridge begins in

the 2000s and continues togrow with the acquisition ofthe eastern portion of theNavy Yard.

After World War IIproduction of ships

slows and the necessityof the Navy Yard isfurther reduced afterthe end of the Cold War.

The Navy Yard ceaseactive military base 2004, a new mastethe mixed-use redevof the Navy Yard suattracts businesses over 10,000 people.

A golf course iscreated on thewest side of FDRPark and theSouth City Drive-In movie theateris developed.The Aquarama,P h i l a d e l p h i a s" m a r i n ew o n d e r l a n d ,

opens in the early1960s, but closesseven years later.

The Spectrum, home of the Philadelphia Flyers andPhiladelphia 76ers, opens in 1967 at the cornerof Broad Street and Pattison Avenue. VeteransStadium, home of the Philadelphia Phillies andPhiladelphia Eagles, opens in 1971 on the site of theformer South City Drive-In movie theater.

The sports complexthe Wells Fargo Centhe Eagles NovaCar(2001), Lincoln Fina(2003), and Citizens (2004). The SportsSpecial Services Destablished in 2002.Live! opens in 2012.

The first non-military rowhoused e v e l o p m e n tis constructed.The Packer Parkneighborhood isborn with over600 housing units.

Navy housing is dfor market-rate rredevelopment. Theat Packer Park, a tdevelopment, is builtof Capehart Naval The Siena Place devoccurs on a formedefense housing sitPenrose Avenue.

Photo courtesy of PhillyHistory.org,a project of the Philadelphia Department of Records

Photo courtesy of PhillyHistory.org, a project of thePhiladelphia Department of Records

The Reserve, 2011

2000s:Market-rateresidential

developmen



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Demographics

> Current Population

For many decades most of the housing in Lower

South supported the Navy Yard. The closure of

military and affordable housing is reflected in the

68 percent population decline from 1990 to 2000,

mostly due to the shuttering of the PhiladelphiaHousing Authoritys Passyunk Homes. New

housing developments, such as the Reserve

at Packer Park on the former Capehart military

housing site and Siena Place at the former

Passyunk Homes site, correlate to the 19.2 percent

population increase seen during the past decade.

In the coming decade, population is expected to

further increase with the continued development

of Siena Place and the stability of established

neighborhoods.

Demographic trends are difficult to track in Lower

South due to the large shifts in population andhousing units. However, according to the 2010

census and the 2009 American Community Survey,

Lower South differs from the city as a whole in

several ways. Generally, Lower South is less

racially diverse, older, and more economically

stable.

Lower South has experienced wide swings in population over the past 30 years as former

military and affordable housing sites have been replaced with new, market-rate housing.

Population that is Caucasian

82.3%

41%

Population thatis 65 +

20.2%

12.1%

UnemploymentRate

Housing unitsbuilt after 1990

5.7%

12.1%

21%

4%

85.6%

67.1%

Households thatown at least one car

Lower South

Citywide

Key Comparisons between the Lower South District and Philadelphia

Residential Neighborhoods Sports Complex Special Services District Community Districts

BroadSt.

BroadSt.

I-76

Pattison Ave. Pattison Ave.

I-76

SouthernBoulevard

CommunityDistrict I

CommunityDistrict II

CommunityDistrict IV

CommunityDistrict III

Packer Park

The Reserveat Packer Park(former Capehart militaryhousing)

Siena Place(former PassyunkHomes militaryhousing)

Source: U.S. Census Bureau, Decennial census of population, 2010 & American

Community Survey, 2009

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> Projected Population

Population is expected to grow by approximately

1,000 new residents over ten years. This is based

on completion and occupancy of the Siena Place

development and redevelopment of currently

vacant and underutilized land for residential use.

Household size is expected to stay the same and

residential vacancy to remain low. This projection

brings Lower Souths population to approximately

6,544 residents by 2022.

Current and ProposedResidential Housing Projects

BaselinePopulation

5,200

Siena Place Build-out

Total single-family units 313

x Average household size* 2.17

Siena Place population 679

5,879

Naval Hospital Site

Total single-family units 284

x Average household size* 2.17

Total single-family population 616

6,495

Senior housing: 36-unit four-story apartment

26 one-bedroom units (capacity 1.5 persons/unit) 39

10 studio units (capacity 1 person/unit) 10

Total senior housing population 49

Total Lower South 2022 Population Estimate 6,544

Po

pulation

15,000

12,000

9,000

6,000

3,000

01990 2000 2010 2022

13,500

4,3005,200

6,544

Closure ofmilitary andaffordablehousing

Siena Place

* The average household size number is based on 2010 census information

for Tract 373 (Packer Park)

Population Trend

> Neighborhoods

Portions of Lower South are served by a

unique special services district that caters to

residential needs, the Sports Complex Special

Services District (SCSSD; see p. 30 for more

information). The Packer Park and Southern

Boulevard communities have elected community

representatives to the SCSSD board. The newerhousing developments of The Reserve and Siena

Place do not fall within the SCSSDs boundaries.

Year



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Economics

Employment is expected to grow significantly

in the next ten years. Job growth is based on

completion of XFinity Live!, continued absorption

of industrial and office space at the Navy Yard, and

redevelopment of the food distribution center and

port properties. Despite the potential closure and

loss of jobs at Sunoco, Lower South is expected to

gain 7,000 permanent, nonconstruction jobs in the

retail, office, and industrial sectors by 2022. The

district will continue to perform a vital role as an

economic engine for the city and the metropolitan

area.

25,000

20,000

15,000

10,000

5,000

01990 2000 2010 2022

PeopleEmployed

20,000

10,000

15,000

22,000

Closure ofNavy Yard

The closure of the Navy Yard as a military base caused fluctuation in employment trends and

population in Lower South.

> Projected Employment

5,150Residents

15,000Workers

Lower South hasthree times as manyworkers as residents

> Current Employment

Lower South comprises a large portion of a

metropolitan subcenter, as identified in the

Citywide Vision. The subcenter includes the

Navy Yard, sports complex, and the Philadelphia

International Airport (PHL). Metropolitansubcenters are major destinations that serve

the entire metropolitan area and offer a mix of

economic activities. It is estimated that over

15,000 people are employed in the district

almost three times the number that live in Lower

Southand comprising two percent of the citys

total employment base.

Over half the jobs in Lower South are located at the

Navy Yard, a quickly growing industrial, office, and

research and development center. More than 115

companies and three civilian Naval contractors

are located there. The largest employer is still theU.S. Navy, accounting for more than 15 percent of

the districts jobs.

As shown in the land use section, much of the

land (approximately 60 percent) in the district is

dedicated to economic activities such as port,

refining, and warehousing. All of these industries

require large amounts of land to operate. The

sports complex also requires large amounts of

land for the parking necessary to accommodate

multiple events.

Employment Trend

Year

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Current and ProposedProjects

BaselineEmployment

15,000

XFinity Live!

Phase I 400

Phase II 600

Total Employment 1,000

16,000

Navy Yard Employment Growth 5,000

21,000

Port and Food Distribution Center Employment Growth 1,000

Transition of Sunoco Property to New Ownership/Use No Growth

Total Lower South 2022 Employment Estimate 22,000

0

Philadelphia Population Change 1790-2010

(Source: U.S. Census Bureau and PCPC estimate for 2010)

1800 1850 1900 1950 2000

Population(inmillions)

1.53 million(2010)

1.63 million(2035 forecas

Decrease inPopulation

2.5

2.0

1.5

1.0

0.5

> Philadelphia2035

As a part of the Citywide Vision, population and development forecasts were

developed to help make recommendations for the long-range physical, social,

and economic conditions for the city. By 2035, citywide population was

projected to grow by 100,000, households by 38,000, and jobs by 40,000.

XFinity Live! under construction, 2011



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Public Ownership

In Lower South, public ownership is a mix of

city, state, federal, and quasigovernmental

entities. The predominant owners are: the City

of Philadelphia (185 acres including the sports

complex and FDR Park); Philadelphia Regional

Port Authority (PRPA; 107 acres); and Philadelphia

Industrial Development Corporation (PIDC); andPhiladelphia Authority for Industrial Development

(PAID; 400 acres including the Navy Yard).

This concentration of public ownership presents a

unique set of planning opportunities. It provides

greater predictability and public input for physical

development.

When a City-owned parcel of land is conveyed or

sold, City Council review and approval is required.

Quasigovernmental agencies such as PIDC or the

PRPA can sell land relatively quickly.

The Navy Yard, port, and sports complex have the

advantage of large campuses comprising inter-

related uses with coordinated management.

Many hospitals, colleges, and universities are

zoned as special purpose Institutional District (SP-

INS), a zoning district based on a publicly approved

Lower South has the highest percentage (45 percent) of publicly owned land among all of the

18 planning districts.

master plan that governs the location of buildings

total floor area, parking, etc. Within the SP-INS

uses may be wide-ranging and shift over time

without the need for a variance or rezoning, as

long as they comply with the previously approved

master plan.

The sports complex uses a master planbased

special purpose zoning district, Sports Stadium

(SP-STA). However, the regulations are not se

by a written or map-based master plan. In the

SP-STA District, the master plan is defined b

long-term leases between the City and manager

of the sports complex. The leases establis

accessory uses such as retail and restaurants

set agreements for parking; make provisions fo

concerts; or regulate alcohol sales.

The SP-STA zoning district allows specific land us

controls and provides predictability through longterm leases for the owners, managers, and the

public. This gives the City another set of tools fo

shaping and designing the sports complex.

Public Ownership

City - Parks and Recreation

City - Other

City - PAID and PIDC

City - PHA

Federal and State

City - PAID and PIDC(partial ownership)

Utilities

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Environmental Assessment

Lower South, up until the 19th century, was

a largely uninhabited place. The landscape

consisted primarily of marshland. Numerous

streams and tributaries that are now lost wound

through the area. Much of the land that we see

today was underwater, a part of the Schuylkill and

Delaware Rivers.

Oil refining companies and the U.S. Navy found

this uninhabited land an asset since it was far

from densely populated areas. These users filled

the waterways with man-made land. Later, private

and City dumps filled even more land.

> Water Table

Even though most of the marshes and waterways

were filled and drained, this area remains very

wet. The area has a high water table less than

ten feet below the surface. The high water tablemakes development more expensive as it requires

additional engineering and limits the construction

of basements, underground parking, and deep

footings for structures.

> Floodplains

The Navy Yard, port, and much of Sunocos

property are also in the 100-year floodplain. The

100-year floodplain is an area that is expected to

experience an above flood stage event at least

once in a 100-year time frame. This land can be

built on, but with additional requirements fromthe federal government that increase costs. These

requirements can include ground floors that are

designed to flood, sunken concrete piles to support

foundations, and designated evacuation routes.

Roadways and utilities are also affected as they

must be designed and constructed to withstand

flooding. The floodplain, in addition to the current

U.S. Navy deed restrictions on the former base,

limits residential development in the Navy Yard.

> Remediation

The man-made land, oil leaks, and dump sites

have created soil contamination. Ground pollution

must be cleaned to a certain standard or sealed to

prevent contact with people, an expensive process

that limits potential residential and recreationaldevelopment, and may make commercial or

industrial development more expensive or require

public intervention.

> Noise Pollution

The southern half of the Navy Yard is exposed

to airport noise levels of at least 65 decibels for

periods exceeding 24 hours. The Federal Aviation

Administration (FAA) considers these noise levels

incompatible with residential and recreational

development. Residential development must

include soundproofing to meet FAA standards,which increases construction costs and housing

prices.

> Air Quality

Many air quality issues converge in Lower South.

An Environmental Protection Agency model from

2005 indicates that Lower South hosts the citys

two worst concentrations of particulate matter

(PM) emissions. These emissions reflect ship,train, truck, and industrial emissions created by

the concentration of port, freight, and industrial

activity, as well as highway traffic. Proximity to

PHL also impacts air quality.

100 Year Floodplain

500 Year Floodplain

Federal Emergency Managemen

(FEMA) Floodplain Data, 2007

The Athenaeum of Philadelphia,

Lower South has specific environmental constraints that affect land use, development,

construction techniques, public health and safety. Constraints include air and ground

pollution, a high water table, floodplains, and noise.

Historical shoreline



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Health Impact Assessment

> Health Impact Assessment Summary

The PCPC selected the Lower South District as

a pilot opportunity to conduct a Health Impact

Assessment, or HIA. HIAs analyze and makepredictions about the impacts of projects, plans,

or policies on human health, with the goal of

informing decision-makers who are not always

aware of the interrelationships. Applying a health

lens to projects and proposals in their early stages

of development is of potential value to decision-

makers who must consider different land use

alternatives and take steps to prioritize certain

investments over others.

Screening: PCPC staff used the district planning

process to screen Lower South for project and

policy recommendations with significant potentialimpacts on health, ultimately choosing to focus

Planning a Healthier Philadelphia

A large body of research shows strong associations between land use, transportation, and

public health issues of serious concern to Philadelphia and the nation. Land use decisionsdetermine proximity of jobs, parks, fresh food, and essential services to residents, affecting

levels of physical activity, nutrition, and the likelihood and prevalence of chronic diseases.

Transportation infrastructure helps determine residents decisions to travel via car, transit,

bike, or walking. This affects local air quality, traffic-related injuries, and integration of

physical activity into daily routines.

on land use and transportation as key topics.

Accordingly staff decided to stucy proposed

transportation investments including the

extension of the Broad Street Line (BSL) subway

to serve the Navy Yard (see p. 43).

Scoping: Of the numerous health determinants

these projects stand to affect, the HIA focuses

primarily on the proposals' impact on air quality,

commute mode, and employment access, and

the subsequent impact that changes in these

determinants can have on the health of those who

work and live in the district.

Assessment:The HIA combines data and analysis

of the district plan with new data on commuting

patterns and preferences to make predictions

about the impact of transportation improvements.The primary tool was a survey disseminated to

1

Highway Air Pollutionand Noise Buffer, 50m

High concentrationof diesel PM emissions

!

!

!

1

BSL

Broad Street Line Extension

24 percent of survey respondents said they woulddefinitely switch to transit if the BSL extension werebuilt; an additional 41 percent would consider theswitch.

Navy YardCorporate Center

Existing RouteProposed RouteExtension

employees at the Navy Yard during the fall of

2011. Approximately 15 percent of the Navy

Yards employee population responded sample

size of 1,169). Staff employed an online World

Health Organization modeling tool to estimatethe cost/benefit ratio of increased cycling rates

Staff applied findings from the public health

literature to the existing data where appropriate

to estimate the level of impact that changes to

the built environment can produce.

The HIA concludes that shifts in commuting

patterns would have significant beneficia

impacts on local air quality and associated

respiratory and cardiovascular health outcomes

traffic volumes and associated rates of vehicula

collision and injuries; and active commuting rates

and associated levels of physical activity.

Lower South Air Quality, 2011

Building additional facilities, such as the BSL extension and bicycle paths,could remove a combined 3,700 6,400 cars from the road by 2022,reducing annual vehicle miles travled by up to 55 million miles (equivalentto the entire current day impact.) The corresponding reduction in COemissions is estimated between 17.7 million and 30.6 million pounds peryear by 2022.

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> Philadelphia2035

District HIAs support the goals of the Citywide Vision, as described in its

Health Profile section on page 28. Get Healthy Philly includes goals to combat

obesity, lower tobacco consumption, and establish healthier food and physical

activity environments.

The complete HIA is available through the Health Commissioners Office, and

also at www.phila2035.org.

Key Findings (based on a representative

sample of Navy Yard employees):

80 percent of Navy Yard employees drive to

work

The current workforce generates 229,000

vehicle miles traveld (VMT) per day

(approximately 55 million per year)

At the projected rate of growth, VMT would

reach 90 million by 2022, and 138 million at

full build-out of the Navy Yard

Based on current commuting patterns, this

translates to an additional 4,000 cars by2022, and an additional 10,000 cars at full

build-out

Nearly 5 percent said they would bike

or walk everyday to work if a separated

facility were constructed

By 2022, this would mean over 600 people

commuting via bicycle each day, logging

over 740,000 miles of active commute time

(assuming cyclists only bike half the time)

Using these projections, conservativemodeling estimates a 19 percent reduction

in mortality risk for this population, and a

projected benefit to cost ratio of more than

5:1

2012: 6,400cars daily


Without alternative transportation investments:

With a subway extension and dedicated bike trail:

Survey responsesindicate

that the majority of

commuters would switch or

strongly consider switching

modes if provided with

convenient infrastructure


1 car = 100 driving commuters

1 Commuter

Navy Yard Employee Commuting Distances

_

, , ,

5 mi10 mi

20 miNavy Yard

Home zip codes of Navy Yard employees weremapped to estimate the total vehicle milestraveled by commuters in 2011



22/88

What Is Land Use?

Planners categorize and map land use to document and understandthe current state of development. Land use refers to broad

categories such as residential, commercial, or industrial, and can be

broken out into more detail such as high density residential, office

commercial, or warehousing/distribution. Maps can help planners

identify what potential uses are lacking, that if developed, could

enhance the quality of life or economic productivity of an area.

Intensity or type of land use also impacts infrastructure needs

such as transit or utilities. Most importantly, land use impacts

development regulations such as zoning.

What Is Zoning?Zoning is the primary tool for regulating land use. Zoning is a set of regulations

governing land development and permitted uses for property. These laws regulate

what type of uses can occur (use), where buildings can be located on a property

(area), and the size of the buildings (bulk). Existing properties may not conform with

zoning regulations if they have received a variance for their use, area, or bulk, or if

they legally existed prior to the zoning laws being enacted.

Zoning Map Revision ProcessWhen analyzed together, land use and zoning inform planners if a

property or area is zoned correctly for current conditions or if zoning

changes are necessary to either reflect existing conditions or bring

about changes to future physical development. Over time, changes

in land use may require a remapping, or a change to a propertyszoning district classification. Zoning map revision is a public process

for updating and revising an area.

Land Use and Zoning

Adoption of the New Zoning Code

On December 22, 2011, Mayor Michael Nutter signed Bill No. 110845,

enacting into law the first comprehensive rewrite of the Philadelphia

Zoning Code in 50 years. The new zoning code goes into effect

on August 22, 2012. This plan uses the new code language and

designations to ensure that the plan is user-friendly for the years of

implementation to come. The new zoning code is better organized and

easier to navigate. The purpose of the zoning code is to set clear rules

and expectations about land use, preserve neighborhood character,

protect open space, and encourage investment and jobs.

The zoning code rewrite was the first part of the integrated zoning

and planning process; the other major part is the zoning map revision

process. The district plans are key to the zoning map revision process

by providing land use and zoning recommendations. These land use

and zoning recommendations ensure that the new code is properly

mapped to reflect both existing and future land use needs. This

reduces the number of developments requiring relief from the Zoning

Board of Adjustment.

18Philadelphia2035



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Citywide Land Use

Civic / Institution

Industrial

Transportation

Commercial Business / Professional

Park / Open Space

Vacant

Commercial Consumer

Residential High (average 56 units/acre)

Water

Cemetery

Culture / Amusement

Residential Medium (average 32 units/acre)

Active Recreation

Commercial Mixed Residential

Residential Low (average 8 units/acre)



24/88

Existing Land Use

ActiveRecreation Civic/Institution 0.4%

CommercialBusiness/Professional 2.3%

Commercial Consumer 0.7%

Culture/Amusement 1.4%

41.3% Industrial

Park/OpenSpace

ResidentialHigh

ResidentialMedium

Transportation

Vacant

5.6%

1%

1.8%

31%

9.8%

4.7%

This survey of Lower South land use was completed in 2011. To collect this information, aworking land use map was created from various City sources, including the Office of PropertyAssessment, and was then verified by in-field surveys conducted by PCPC staff. The land usedata is stored in a geographic information system database maintained by PCPC. Color codesare used to represent 15 major categories of land use.

Lower South District Land Use, 2011

Each parcels use is distinguished on a land use

map. For example, the parcels with sports venues

on them are distinct from the parcels used for

parking.

20Philadelphia2035



25/88

Existing Zoning

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CMX-3

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2%

RM-11%

6%

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RSA-52%

The existing zoning of the Lower South District is consistent with not only the existing landuses, but also with proposed developments at Siena Place, the Navy Yard, and the port. Themajority of the district is zoned industrial (purples) reflecting the refinery, the food distributioncenter, Navy Yard shipbuilding and industrial users, and the port. The sports complex is zonedSP-STA, a unique master plan-based zoning district only mapped in this one location in the city.The zoning map also reflects the limited commercial uses in the district.

Lower South District Zoning, 2012

On a zoning map, only the zoning district is

depicted. For example, this area is zoned Sports

SP-STA.

Residential Single Family Detached RSD-1; RSD-2; RSD-3

Residential Single Family Attached RSA-1; RSA-2; RSA-3; RSA-4; RSA-5

Residential Multifamily RM-1; RM-2; RM-3; RM-4

Auto-Oriented Commercial CA-1; CA-2

Neighborhood Commercial Mixed-Use CMX-1; CMX-2; CMX2.5

Community/Center City Commercial Mixed-Use CMX-3; CMX-4

Light Industrial I-1

Medium Industrial I-2

Heavy Industrial I-3

Port Industrial I-P

Industrial Commercial Mixed-Use ICMX

Institutional Development SP-INS

Stadium SP-STA

Recreation SP-PO-A; SP-PO-P



26/88

FRAMING OUR FUTURE

22Philadelphia2035



28/88

Three Forward-Looking Themes

How to Use This Section:

Open Space

Lower South has one major park and recreation amenity, FDR Park, at Broad Street and Pattison Avenue. FDR Park,

originally named League Island Park, was dedicated in 1914 and designed by the O lmsted Brothers, a renowned landscape

architecture firm that also designed New Yorks Central Park and Bostons Emerald Necklace. The Olmsted Brothers

tamed marshland and created scenic lakes, meadows, paths, and recreation areas. It was a massive engineering project

that also included the area now occupied by Xfinity Live! and the Wells Fargo Center.

Today, FDR Park is both a regional and local attraction including a golf course, skateboard park, the American Swedish

Historical Museum, two lakes, historic structures, and sports fields. There are 15 tennis courts, seven softball/baseball

fields, and two playground facilities. Ashburn Field is sponsored by the Philadelphia Phillies and has a dedicated staff

for field maintenance. The FDR golf course is a public, par 69 course that is considered a Florida-style design with

its incorporation of water features and short fairways. The former pool refreshment stand, which is now used as a

maintenance shed, and the former Police Department horse stable, which is vacant, are in fair to poor condition. Historic

preservation and reuse of these structures could provide long-term maintenance and revenue for the park.

FDR Park is also used for overflow parking when there are two or more events at the sports complex. This parking is

sanctioned and managed on some event days which provides much needed revenue for t he park, but parking management

and security is not always provided. Both the sanctioned and unsanctioned event parking creates maintenance issues

and conflicts with park users.

FDR Park was chosen as the Fairmount Park Conservancys 2011 Greening the Neighborhood site, receiving $250,000

to improve the quality of the lakes with aerators and a skimming boat. The Fairmount Park Conservancy is a nonprofit

organization that raises funds for the Philadelphia Parks and Recreation Department.

The only other public recreation site in Lower South is Whitman Fields. The fields are located on Packer Avenue at 6th

Street, owned by the Delaware River Port Authority, and feature fields run by the Southeast Youth Athletic Association.

The Navy Yard has been increasing the use of its public open space. Recently, the Philadelphia Orchestra held an outdoor

neighborhood concert here and the Philadelphia Sports and Social Club regularly uses its open space for recreational

activities. Conceptual design proposals have been reviewed for i ts newest park, Central Green, to be constructed in the

near future.

Neighborhood Parks and Recreation

Definition | Public Facility

Public facilities are divided into two

categories: community-serving and

municipal support. Community-serving

facilities provide services to the public

and include libraries, playgrounds, and

museums. Municipal support facilities

support City government operations and

include administrative offices, garages

and utilities, and are not generally

open to the public. Lower South has

six municipal support facilities and 15

community-serving facilities. These do

not include buildings at the Navy Yard.

Goal 6.3:

Expand access to

neighborhood parks and

recreation.

Philadelphia2035

Citywide Vision

Recommendations

99. Provide revenue-generating activities in FDR Park such as paddle boats, managed parking or parking permits,

and special events to help fund ongoing park maintenance.

> Implementing Agencies: PPR | CW Objective: 6.3.3

100. Identify reuse opportunities for the historic structures in FDR Park such as concessions at the boathouse and

community and office spaces in other buil dings.> Implementing Agencies: PPR, SCSSD | CW Objective: 6.3.3, 8.1.1

101. Implement an event management plan for FDR Park that designates parking locations and ensures staffing.

> Implementing Agencies: PPR, SCSSD, Sports complex operators | CW Objective: 6.3.3

102. Evaluate use of the spaces under I-95 by incorporating green infrastructure that complements the skateboard

park, recreation, and stormwater management for the highway.

> Implementing Agencies: PPR, PWD| CW Objective: 7.2.3

103. Increase public awareness and use of public open spaces at the Navy Yard (seeTHRIVE, p. 32).

> Implementing Agencies: PPR, PIDC | CW Objectives: 6.2.1, 6.3.2Crescent Park, Navy Yard

FDR Skatepark

50 Philadelphia2035: Lower South District Plan

RENEW >

Goals and Objectives

from the Citywide VisionIntroduction:

> Existing Conditions

> Summary of Key Issue

THEME > Element

Topic

Sidebar:

Images and

Definitions

District-Specific

Recommendations

Implementing

Agencies(see Appendix)

Citywide Vision

Objectives(see Appendix)

Land use and zoning recommendations are organized into three forward-looking themes:

THRIVE,CONNECT,and RENEW. These themes reflect the goals and strategies of

the Citywide Vision.

Within the three themes are seven elements from the Citywide Vision that address

the major issues, opportunities, and unique qualities of Lower South. Each element

is broken into topics that include a description of existing conditions, district-specific

recommendations, responsible implementing agencies, and references to applicable

objectives from the Citywide Vision. A complete list of objectives from the Citywide

Visionis provided in the Appendix section.

24Philadelphia2035



29/88

Lower South CONNECTS the regionand metropolitan center safely andconveniently to the airport, NavyYard, sports complex, and port.

Lower South RENEWS treasuredresources by activating itswaterfronts, preserving FDR Park,enhancing its public realm, andrestoring wetland habitats.

Lower South THRIVES in a growingmetropolitan subcenter providingunique housing, business, industrial,and entertainment opportunities.

Lower South is home to major industry,

business, port, and cultural attractions.These economic assets dominate thelandscape from the refineries to thesports complex to the ships docked inport. In many ways it seems like theseplaces have always been there. Yetover the years, many owners and useshave changed and Lower South hasadapted. Vacant land never stays vacantfor long. A former drive-in theater andthe Aquarama, a theater combining the

elements of an aquarium and aquaticcircus, became the site of the sportscomplex. City dumps were transformedinto the food distribution center and portareas. New communities sprang fromformer Navy housing sites. Continueddevelopment lies ahead for Lower Southas long-standing owners, like Sunoco,and newcomers, like XFinity Live!,

change the landscape once again.

> THRIVE > CONNECT > RENEW

24 | Open Space20| Transportation

22 | Utilities 26 | Historic Preservation

28 | Public Realm

Increase equitable access to ouropen-space resources

Improve transportation safety,efficiency, and convenience

Adapt utility services to changingtechnology and consumptionpatterns

Preserve and reuse historicresources

Achieve excellence in the designand quality of Philadelphias builtenvironment

16 | Neighborhoods

18 | Economic Development

Improve neighborhood livability

Make Philadelphia more competitivein the metropolitan region

Infrastructure, including highways,

streets, mass transit, freight rail,and utilities, is the framework foreconomic development. Lower Southscontinued growth is dependent uponimprovements to and expansion ofthis infrastructure. Key Lower SouthCONNECT recommendations includehighway interchange redesign; improvedpedestrian, bicycle, and vehicularcirculation; expanded bus service;new transit service; and an improved

electrical power grid at the Navy Yard.

Lower South contains landmark

gateways, waterfront on two rivers,signature public places, and a diversebuilt environment that spans morethan 100 years. The district has hostedhistoric celebrations and is establishingnew cultural traditions. Its open spaceand public realm are characterized byextremes; from the wide sidewalks thatfill with crowds after a sporting event,to the narrow paths around the FDR Parklakes used for quiet strolls. Varying levels

of preservation, both environmentaland historic, have been realized butcontinued diligence will renew LowerSouths public realm, open space, andhistoric resources.

> RENEW> CONNECT> THRIVE

2Framing Our Future


30/88

Despite a strong demand for housing and population growth in recent years, residents of Packer Park and SouthernBoulevard lack an identifiable neighborhood center within the Lower South District. Such a center could provide

services, daily goods, and connections to other economic activities in Philadelphia. Outside of FDR Park, Lower South

has no community-serving municipal facilities such as public schools, libraries, or health centers. As identified in a 2004

community survey by the SCSSD, a community center is a high priority for residents of Lower South.

Pockets of small businesses and retail exist at Broad and Geary Streets, along Packer Avenue, and 20th Street, but

none serve as the neighborhood center or main street commercial corridor for Lower South. AT&T Station is 0.3 mile

from the closest residence, and although bus service (Routes 4 and 17) provides alternate options in closer proximity to

some homes, the district has the highest share of automobile ownership citywide. Key sites could provide opportunitie

for more goods and services within walking distance of most residents, such as the Southern Home for Children and

Naval Hospital. The sports complex could transform into a transit-oriented development (TOD) with community-serving

facilities and retail in the long-term with key transit improvements and additions.

The former Southern Home for Children site, located at 3200 S. Broad Street, is a long-vacant institutional building and

grounds held in private ownership. With its prominent location on Broad Street, the site could be reused for a variet

of developmentsincluding housing, commercial, or institutionalthat could complement the nearby residential and

the adjacent pharmacy and medical clinic. A reuse of this site for retail or office could provide a significant cluster of

commercial services within reach of many existing residents, thus reducing the reliance on shopping centers outside the

district for daily goods. The site is currently zoned RSA-5 which permits single-family rowhouse development, schools

and houses of worship.

The Naval Hospital site has potential to host locally serving commercial services as part of a primarily residential

development scheme. Businesses here could cater to residents, as well as FDR Park users. Residents on the eastern

side of this site would find themselves less than a half mile from AT&T Station, which could mitigate additional traffic

impacts resulting from new development.

The sports complex can grow into a neighborhood center over time (1520 years) while still fulfilling its role as a

metropolitan subcenter (see p. 30). This longer-term goal is possible due to AT&T Stations direct connections to Cente

City, the entire SEPTA system, and with an extension, the Navy Yard (see p. 43). A TOD plan for portions of the curren

surface parking lots, as called for in the Citywide Vision, would guide and manage growth while minimizing potentia

impacts. A new street system (see p. 55), and the inclusion of structured parking in new developments to replace surface

parking spaces will improve circulation and create a safer and stronger pedestrian environment when tied with transi

improvements. These long-range transit improvements include extension of the BSL to the Navy Yard, potential light rai

connections, and direct mass transit service to New Jersey.

A more diverse mix of uses and activities, including residential buildings along Broad Street and Pattison Avenue, would

allow the residential density necessary to attract neighborhood businesses like food markets, a gym, and professiona

services, that neighbors desire now. With careful planning and smart phasing of development, the sports complex can

become both an entertainment center worthy of the sports teams that define the area as well as a desirable area for

future households seeking a vibrant and exciting place to live.

Currently, the SP-STA zoning district and governing lease agreements between the City and the sports complex operators

does not permit residential development by-right and precisely details parking requirements and provisions. To facilitate

the long-range TOD vision for the sports complex, any changes to these legal documents would necessitate numerou

stakeholder meetings and public hearings before both City Council and the PCPC. The realization of such a TOD scheme

for the sports complex may be 1520 years away, but first steps must be taken now to ensure that development

occurs in a rational way that respects current residents by balancing the needs of near neighbors and larger economi

development goals.

Goal 1.1:

Promote strong and well-

balanced neighborhood

centers.

Philadelphia2035

Citywide Vision

Southern Home for Children

Definition | NeighborhoodCenter

As defined by the Citywide Vision, a

neighborhood center can be:

1. A clustering of community-

serving public facilities

2. A viable commercial corridor

3. A transit hub

Definition | Transit-OrientedDevelopment (TOD)

Mixed-use development, includingresidential, commercial, and

institutional uses, centered at transit

stations to maximize access and

ridership of public transportation.

TOD generally encourages higher

density and reduced parking ratios.

Neighborhoods

Neighborhood Centers

26Philadelphia2035


THRIVE >


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Recommendations1. Create a safer pedestrian environment that allows Lower South residents to walk to nearby schools, libraries,

and shopping, as well as to the BSL and bus service (see CONNECT, p. 40).

> Implementing Agencies: Streets, PennDOT, PWD, SCSSD | CW Objective: 4.1.1, 4.2.3

2. Apply appropriate commercial zoning to encourage the development of more neighborhood shopping options.

> Implementing Agencies: PCPC, City Council | CW Objective: 1.1.2

3. As population grows, identify an appropriate location for a community center that provides amenities such as

meeting rooms, senior activities, and programming for children and teens.

> Implementing Agencies: PPR, Budget, SCSSD, City Council | CW Objective: 1.1.1

4. Encourage neighborhood shopping and services to be provided in any new developments at the sports complex.

> Implementing Agencies: PCPC, Commerce, PIDC | CW Objective: 1.1.3

5. Ensure that future development at the sports complex balances the needs of existing residents and visitors.

> Implementing Agencies: PCPC, SCSSD, community, sports complex operators, private developers | CW

Objective: 9.1.1

[See FOCUS AREASp. 58, 60]

Penr

oseAve

nue

SouthernHome forChildren

FDR ParkEntrance

NavalHospitalSite

SEPTA

FutureMixed-UseTOD

Center City

Navy YardEntrance

Broad Street Line

Future BroadStreet LineExtension

Potential site forneighborhood centerredevelopment

1/2m

ile

(10-min

.walk)

Existing, limitedcommercial services

SEPTA

27Framing Our Future


32/88

The highways, busy streets, and vast parking lots of Lower South benefit the neighborhoods of Packer Park and SouthernBoulevard by serving as buffers from incompatible uses such as oil refineries and the sports complex. However, these

same barriers also isolate the residents from schools, places of worship, shopping, and FDR Park.

This separation of uses may be because housing was a latecomer to Lower South. The first nonmilitary housing

development was not constructed until 1950. Early housing was limited to inns and farmhouses until the Navy Yard

spurred the development of hundreds of units of housing both on base and off. The two major off-base housing sites

were Capehart (now The Reserve at Packer Park) and Passyunk Homes (now Siena Place). Within the past decade, more

than 400 units of market-rate housing have been built at The Reserve and 313 more units are planned at Siena Place.

Lower South has a healthy housing market that appeals to young families with stable incomes who seek a more suburban

lifestyle, with off-street parking and yards that are not commonly found in South Philadelphia. The 2010 census reported

that 60 percent of the homes in the district are owner-occupied, as compared to 54.1 percent citywide. Of those, 20

percent are owned without a mortgage which is reflective of the long tenure of many homeowners. Between 2005 and2011, more than 600 home sales were recorded. The average sales price was $374,000 and the median was $125,000

Newly constructed homes generally sold at the higher end of the spectrum.

Single-story housing options, attractive to seniors, are limited in Lower South. As Packer Park and Southern Boulevard

residents grow older, many seniors want to stay in their community even though their homes may not meet their curren

needs. According to the 2010 census, 20 percent of residents are 65 or older compared to 12 percent citywide.

There is one large potential site for new housing in Lower South that could provide both new suburban-style housing fo

families and new housing choices for seniors, including continuing care options in a campus setting. This is the forme

Naval Hospital site, west of the Nova Care Center, which is currently a surface parking lot used for sports complex

employee and overflow parking. It is currently owned by the PIDC. Developing this site with housing would better

connect the Parker Park neighborhood to FDR Park, potentially provide neighborhood retail, and retain or attract new

residents.

The property was transferred to PIDC by the Navy as a part of the base closure and realignment process after the hospita

was vacated in 1993. In order to acquire the 49-acre property from Navy, the City submitted a reuse plan and agreemen

that initially proposed reusing the site as hospital and nursing facility. However after detailed environmental and

structural analysis, the buildings were deemed too expensive to be reused and were demolished in 2001. Subsequently

the City submitted a new reuse plan that called for rowhouse residential development and new open space opportunities

In 2001, the NovaCare Rehabilitation complex was developed on the eastern end of the site. The remaining 25 acres are

fenced and have a landscaped buffer per an agreement between the Packer Park Civic Association and PIDC to separate

the residential areas from the parking lot. The surface lot provides parking that the City is contractually obligated to

provide to the sports complex operators.

Additional housing opportunities include the former Southern Home for Children site and vacant buildings at Holy SpiriRoman Catholic Church on the 1800 block of Hartranft Street, which previously had a residential proposal for its conven

and parking lot. Both properties can take advantage of their close proximity to the BSL and FDR Park. As discussed i

further length on pages 30 and 32, the sports complex and the Navy Yard are long-range potential sites for additiona

housing.

Goal 1.2:

Improve the quality and

diversity of new and

existing housing.

Philadelphia2035

Citywide Vision

The Reserve

Packer Park

Siena Place

Housing

Neighborhoods

28Philadelphia2035


THRIVE >


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Recommendations6. Provide a diversity of housing options in Lower South that meets the needs of seniors and reflects existing

neighborhood density and design (see RENEW p. 54).

> Implementing Agencies: PCPC, Streets, OHCD, PIDC, private developers | CW Objective: 1.2.2

7. Plan for the development of hotels and extended-stay housing options in appropriate locations to meet the

needs of the sports complex and the Navy Yard.

> Implementing Agencies: PCPC, City Council, PIDC, private developers | CW Objective: 2.1.2

8. Complete a Phase 2 Environmental Analysis of the Naval Hospital site to remediate any contamination on-site

from the previous hospital use and make the site development-ready.

> Implementing Agencies: PIDC | CW Objective: 2.2.2

9. Release a request for qualifications (RFQ) for the Naval Hospital site to test developer interest and market for

this site.> Implementing Agencies: PIDC, PCPC, Community | CW Objective: 2.2.2

10. Encourage any development at the Naval Hospital site to provide street connectivity while mitigating sports

complex traffic, include parking for sports complex employees, preserve mature trees, provide stormwater

management, provide new housing and retail options, and be respectful of the existing community,

> Implementing Agencies: PIDC, PCPC, City Council, Streets, Community, sports complex operators | CW

Objective: 9.1.2

11. Rezone the Naval Hospital site to allow future residential use at an appropriate density.

> Implementing Agencies: PIDC, PCPC, City Council | CW Objective: 2.2.2

[See FOCUS AREASp. 58]

Senior Citizen

Demographic Data

Citywide Lower South

Percentage of population 65+ 12.1% 20.0%

Future seniors (45 to 64) 23.4% 26.5%

Homeowner senior citizens 27.2% 35.4%

Households with retirement

income

15.7% 20.8%

Owner unit without mortgage 39.3% 44.7%

> Senior Citizen Demographic Analysis

The Philadelphia metropolitan region was ranked number 12 of the

50 best U.S. cities for seniors in 2011, with high marks for health

care, social environment, spiritual life, and transportation (Center

for a Secure Retirement, 2011). Demand for senior housing is high

throughout Philadelphia, with 1,500 seniors on the waiting list for

home modifications through the Senior Housing Assistance Repair

Program (SHARP), according to the Office of Housing and Community

DevelopmentsYear 37 Consolidated Plan. Currently, senior housingoptions are limited in Lower South but the need is especially great in

this district.

2Framing Our Future


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The three venues that comprise the sports complexCitizens Bank Park, Lincoln Financial Field, and the Wells FargoCentergenerate millions of visitors and vehicle trips each year. Venue capacities range from 20,000 to 68,000 and the

venues themselves directly employ between 1,000 and 3,000 people per event. Over 200 days a year, there are one o

more events at the sports complex, with approximately eight million visitors a year. This includes games hosted by th

four franchise sports teams, concerts, college games, international soccer matches, and other family friendly events

This confluence of visitors and employees makes the sports complex a part of a metropolitan subcenter.

These venues have significant economic impacts on the region in terms of wage taxes, sales taxes, parking revenues

and other direct revenue sources. In addition to the direct benefits from the events, there is great economic spin-off

potential from visitors. Many other cities have placed their sports venues downtown or in redeveloping districts to

take advantage of these economic benefits. This has not been the case in Philadelphia. However, it is noteworthy tha

Philadelphia is the only city or region with all four major sports franchises to have their venues colocated in the same

complex. This is made possible by the convergence of Philadelphias primary north-south and east-west highways, I-95

and I-76, and service by high-capacity fixed-rail subway, the BSL.

XFINITY Live!, a restaurant and shopping complex scheduled to open in spring 2012, is the first non-event venue to open

at the sports complex. It is the first phase of a larger development of approximately 350,000 square feet that will include

a music performance space, additional restaurants and shops, and a 300-room hotel. This development will create an

attraction on non-event days and at times when the sports complex currently feels empty and underutilized. Any future

development will enhance the sports complex by providing a mix of attractions, utilizing shared parking, and creating

lively seven-day-a-week activity.

The sports complex is surrounded by over 21,000 surface parking spaces. The City of Philadelphia, which owns all the

land at the sports complex, is obligated through leases with the sports franchises to supply parking. As a part of the

agreement to construct new facilties for the Eagles and Phillies in the early 2000s, the teams fund the SCSSD (see

sidebar on facing page), which provides services and funds improvements to the surrounding areas.

The vast amounts of parking at the sports complex seem excessive when there are not major events, such as an Eagle

game, or multiple events on the same day. However, like malls during the holiday shopping season, the spaces are

necessary for these peak occasions to accommodate visitors and prevent parking from flooding nearby neighborhoods.

Without improved highway interchanges, better mass transit service, an improved pedestrian experience, and new

roadways (as recommended in CONNECT and RENEW), additional development at the sports complex is not feasible

Structured parking is a longer-term solution to handle personal vehicles while making room for development sites

However, the cost of structured parking is relatively expensive here due to poor soil conditions and a high water table

Structured parking also requires more active management than surface parking and requires staggered usage to preven

traffic bottlenecks.

The sports complex is zoned SP-STA, a master planning district like those used for university and hospital campuses tha

allows for controlled, phased development. Using this zoning, the City and the sports franchises can create a thoughtfu

development plan for the sports complex that provides amenities for both visitors and residents, connects well to

highways and transit, and creates a new, vibrant, and urban destination. As described in the neighborhood centers

section, page 26, SP-STA currently does not permit residential development and has clearly defined requirements and

agreements regarding parking. Uses for XFinity Live! are defined by the 2004 Spectum II Master Plan while the develpmen

footprint and parking are controled by the 2009 Philly Live! master plan ammendment. Any new development or change

in parking would require changes to the zoning district language, triggering additional public outreach and hearings.

Definition | MetropolitanSubcenter

As defined by the Citywide Vision,Philadelphias metropolitan subcen-

ter is comprised of the Philadelphia

Navy Yard, sports complex, and PHL.

Metropolitan subcenters are major

destinations that serve the entire

metropolitan area and offer a mix of

economic activities.

The MetropolitanSubcenter:1. Navy Yard2. Sports Complex3. PHL

Goal 2.1:

Support the growth of

economic centers.

Philadelphia2035

Citywide Vision

Metropolitan Subcenter: Sports Complex

Economic Development

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I-76

I-95

Recommendations

12. Encourage transit ridership by improving the pedestrian experience along Pattison Avenue by limiting

automobile/pedestrian conflicts and enlivening Pattison Avenue from AT&T Station to 11th Street with

activities such as information booths, licensed vendors, and street entertainers.

> Implementing Agencies: SCSSD, Streets, City Council | CW Objective: 4.2.2, 9.2.2

13. Improve vehicular circulation through better traffic management, highway access improvements,

introducing a street grid, and improved mass transit service (see CONNECT,p. 38, and RENEW, p. 55).

> Implementing Agencies: Streets, PennDOT, PRPA, SEPTA, PATCO, PPD | CW Objective: 4.3.1

14. Support the full build-out of XFINITY Live! in a manner that enhances pedestrian and vehicular circulation

and provides a mix of shopping, restaurant, entertainment, and hotel uses.

> Implementing Agencies: PCPC, Commerce | CW Objective: 1.1.3

15. Encourage any additional development at the sports complex to be transit-oriented, provide structured

parking, hold the street lines of Pattison Avenue and Broad Street, and provide a mix of uses that appeal

to both visitors and residents.

> Implementing Agencies: PCPC,PIDC, sports complex operators, SCSSD, City Council, private

developers | CW Objective: 1.1.3

16. Identify and acquire new sites for sports complex parking, such as the current location of Jetro Cash &

Carry at 700 Pattison Avenue, as current surface parking lots near AT&T Station are developed.

> Implementing Agencies: PIDC, SCSSD | CW Objective: 2.1.2

17. Refine the language of the sports stadium zoning district to support the phased development of the sports

complex as recommended by this plan.

> Implementing Agencies: PCPC, City Council, sports complex operators, Community | CW

Objective: 1.1.3

18. Further study soils, water table, and costs for constructing structured parking at the sports complex to

allow for development while meeting parking demand and honoring the leases with the teams.

> Implementing Agencies: PCPC, SCSSD, Commerce, PIDC | CW Objective:1.1.3

19. Commission a market study to examine the financial feasibility for hotels and residential development atthe sports complex.

> Implementing Agencies: PCPC, SCSSD, Commerce | CW Objective: 2.1.2


Municipal (JFK)Stadium

The Spectrum

Veterans Stadium

Historic Entertainment Venuesin Lower South

Broad

South CityDrive-In

PhiladelphiaDriving Park

Aquarama &Stadium Theatre

SesquicentennialExhibition Area

Toppi Stadium

Pattison

1890 1930

1926

1970 2010Packer

Penros

e

Definition | Sports ComplexSpecial Services District

The Sports Complex Special Ser-

vices District (SCSSD) is a nonprofitthat serves households surrounding

the sports complex. The SCSSD was

established in 2002 and is funded

by an annual combined $1 million

contribution by Comcast-Spectacor,

the Philadelphia Phillies, and the

Philadelphia Eagles. The mission of

the SCSSD is to protect community

interests, improve neighborhood

quality of life, and promote efficient

operation of adjacent sports venues.

SesquicentennialExhibition

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With over 8,000 employees, the Navy Yard has transitioned from a U.S. Navy base and shipbuilding facility to includea growing number of office and light industrial activities with six million square feet of occupied space in a campus-

style environment in addition to traditional shipbuiling and industral activities. Its large size, current success as an

employment center (115 companies and three Navy activities), and anticipated growth make it a part of Philadelphia

metropolitan subcenter.

Throughout its history, the location of the Navy Yard has worked to its advantage, allowing activities that could not

occur elsewhere. The subsequent construction of PHL, I-95, and the Port of Philadelphia has enhanced the Navy Yards

location.

The countrys first naval shipyard was located in Philadelphia on the Delaware River near Washington Avenue. In 1801

this Southwark site (at present day Columbus Boulevard and Washington Avenue) came under the U.S. Navys control

During the Civil War, expanding Navy operations and a fire made relocation necessary and the Navy Yard moved to its

current location at League Island. In 1995 the U.S. Navy officially closed the Philadelphia Navy Yard as an active militarybase, turning the base over to the City of Philadelphia and its economic development agency, the PIDC.

In 2004 the Philadelphia Navy Yard Master Planwas released. It envisioned many of the developments seen today

including the adaptive reuse of historic buildings, an improved street network, construction of a corporate center, and

continued shipbuilding and industrial use on the western end. Unrealized recommendations include residential and

mixed-use development, extension of the BSL, and development of the East End.

The Navy Yard continues to grow with the expansion of current companies (Urban Outfitters and Iroko Pharmaceuticals

relocating companies (GlaxoSmithKline and Tasty Baking), and new enterprises (Greater Philadelphia Innovation Cluster)

The PRPA has acquired the East End for the Southport Expansion.

Navy Yard, office interior

CommerceCenterFlex Buildings

Industrial

Historic Core

Corporate CenterSouthport Expansion

Delaware River

ReserveBasin

Navy Yard Districts

Metropolitan Subcenter: Navy Yard

Economic Development

Navy Yard, vista

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Recommendations

20. Update the Navy Yard Master Plan to reflect recent development, sale of the East End to the PRPA for theSouthport expansion, and opportunities for future development, infrastructure, and environmental mitigation.

> Implementing Agencies: PIDC, SEPTA, PCPC | CW Objective: 2.1.2

21. Increase awareness through marketing and advertising of the Navy Yards assets including its public amenities,

development sites, green campus, and new projects.

> Implementing Agencies: PIDC, Commerce | CW Objective: 2.1.2

22. Improve transit access to the Navy Yard by increasing the frequency of and extending transit service, improving

Broad Street for pedestrian and bicycle access, and creating better access to southbound I-95 at Broad Street

(see CONNECT, p. 42).

> Implementing Agencies: PCPC, Streets, PennDOT, SEPTA, DVRPC | CW Objectives: 4.1.2, 4.2.2

23. Continue to renew and raise the image of the Navy Yard as a 24/7 location by improving and opening the

gateway at Broad Street, completing the waterfront trail, encouraging mixed-use development, and hostingmore events such as concerts, sporting leagues, and races, such as the Broad Street Run (see RENEW, p. 55 ).

> Implementing Agencies: PIDC, private organizations, Commerce | CW Objective:9.2.2

24. Resolve parcel and street ownership, right-of-way, and subdivision issues that remain from the time the Navy

Yard was a military base.

> Implementing Agencies: PIDC, Records, PCPC, PWD | CW Objective: 2.2.2

25. Work with FEMA and the Navy to resolve residential development issues by providing adequate evacuation

routes and removing deed restrictions regarding residential uses at the Navy Yard.

> Implementing Agencies: PIDC | CW Objective: 3.2.1

26. Attract more retail, restaurants, and personal services to the Navy Yard in order to serve its growing workforce,

hotel patrons, and potential residential community.

> Implementing Agencies: PIDC, private developers | CW Objective: 4.1.3

27. Expand municipal police and fire service to meet the Navy Yards needs.

> Implementing Agencies: PIDC, PCPC, PPD, PFD | CW Objective: 1.1.1

28. Ensure that utility infrastructure is in good repair and meets the needs of current and future development (see

CONNECT, p. 46).

> Implementing Agencies: PIDC, GPIC, PECO, PGW | CW Objective: 5.1.4


Historical Navy Yard Photographs, courtesy of PhillyHistory.org, a project of the Philadelphia Department of Records

Navy Yard, UGI Company Plant, 1919 Navy Yard, sea dogs in storage, 1923 Navy Yard, 1969

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Industrial Land: Port

The Lower South District has a long shoreline and is known for its maritime functions. Current port activities include

shipbuilding enterprises, Navy ship storage, container shipping along the Delaware River and tug, tanker, and barge

operations along the Schuylkill River.

Despite these activities, the city and region face hurdles in maintaining and expanding port uses. For cargo, ports in

Maryland, Virginia, and northern New Jersey have grown faster than local ports on the Delaware River. Other ports have

deeper channels for larger ships and some have more direct ocean and inland access. Investments in dredging, containe

terminals, highway improvements, and freight rail infrastructure will make Philadelphias ports more competitive by

attracting more activity and creating efficiencies.

Currently, the Philadelphia Regional Port Authority (PRPA) facilities in and near Lower South are growing. The Packer

Avenue Marine Terminal, Whiskey Yard, North Port and adjacent piers have experienced growth with deliveries of

containers. The PRPA recently purchased 120 acres of land at the Navy Yard (East End) for their Southport project.

Southport will be a container terminal developed in three phases. Each phase will include a new ship berth, cranes, ancontainer yard. Southport will also require the construction of a new access road that will be limited to port users fo

security reasons. The Port Authority projects increases of at least 200 percent in container movements in this area ove

the next ten years. This projection relies on an expanded port area, increased international freight volumes, congestio

at competing ports, and dredging of the Delaware River shipping channel.

The Aker Philadelphia Shipyard at the western end of the Navy Yard is also expected to have an increase in workers as

they have an agreement with the shipping subsidiary of Exxon Mobil to construct two oil product tankers. Port activity

on the Schuylkill may decrease with the sale and possible closure of Sunoco.

Definition | Freight Village

A Freight Village is an industrial

intermodal transportation hub where

distribution and logistical servicesare provided to tenant firms and their

operations. Freight villages are typically

located on the outskirts of a city in

proximity to major highways, freight

rail lines, and airports. The intent is to

support an efficient and cost-effective

flow of freight through and into an urban

area while

Lower South District Plan

Documents

Transcript of Lower South District Plan