Atlanta's BeltLine development could become a model for sustainable communities worldwide. But will it become a reality?
I once called the Atlanta BeltLine "the country's best smart growth project."
I still haven't seen one that is better in concept. But now, with a
few years of history, how is the implementation coming along? Is the
reality matching the vision?
The challenge with writing about the BeltLine is that the massive
public/private undertaking is so enormous, so multifaceted, so
ambitious and potentially transformative, and so complicated that it is
difficult to know where to start, how much to say, and what comments
are fair. I'll try to boil it down to a few impressions that I have
formed as a highly interested observer from afar:
1. The concept remains extraordinarily impressive.
To briefly review the basics, the city is seeking to invest some
$2.8 billion in a new, 22-mile public transit, trails, and parks loop
around the heart of the city of Atlanta on the site of an abandoned
rail and industrial corridor. Because the BeltLine passes through some
of the inner city's most distressed neighborhoods, the intent is for
this major public investment to leverage substantial private investment
in revitalization, particularly workforce housing. The
transit is to be either light rail or streetcars, connecting in several
places along the loop to the MARTA regional rail transit system.
Around 2,000 acres of new, expanded, and improved parks are involved,
all of which will be linked by a multi-use trail, itself a linear park,
along the BeltLine as well as by the transit loop. Many of the parks
are being designed to include significant green management features. The project will also involve the remediation of over a thousand acres
of brownfields.
The hoped-for economic impacts include 5,600 units of workforce
housing, 30,000 permanent jobs and 48,000 person-years of construction
jobs, and a $20 billion increase in the city's tax base over 25 years.
It's an incredible bundle of related public benefits if the city and
its partners can pull this off.
2. Visible benefits so far include but are largely limited to parks and trails.
Last week, a representative of the Atlanta Beltline Partnership, a
fundraising and outreach affiliate of the initiative, helpfully sent me
her organization's new annual report, along with the latest report from
Atlanta BeltLine, Inc. (ABI), the entity created by the city to oversee
the project's implementation. (The Partnership and ABI jointly sponsor
the BeltLine's web site.) Both point to some significant achievement in the development and improvement of parks as a result of the initiative.
From the Partnership's report:
All over the city, the Atlanta BeltLine is beginning to take
shape. In the West End, a multi-use trail is complete. Work is underway
on a walking and biking path on Atlanta's east side. And in the Old
Fourth Ward, in the heart of the city, a signature park is emerging.
Of the 20 pages of ABI's report allocated to substantive
accomplishment, 14 are devoted to parks and green space. Perhaps the
most impressive of the parks work to date is the new (if awkwardly
named) Historic Fourth Ward Park on the east side of the Beltline
(photo above, site plan below). Critic Jonathan Lerner writes of the park:
But I can say -- from the times I have slipped through an
opening in the fence to explore during the construction -- that this is
a transformative space. Its centerpiece is a sinuously shaped "lake"
sunk deep into the topography that does double duty. It provides a
focal point and -- edged by boardwalks, bridges and piers, terraces and
fountains, and a gracious amphitheater -- will be an inviting activity
center.
More mundanely, it functions as a stormwater detention device
for this historically flood-prone location. The artificial declivity
dug for the lake -- emphasized by soaring granite retaining walls --
along with the natural, gentler rise of the park's topography beyond it
toward the east, south
and west, creates long views up and down and lots of visual drama. The
descent into it and the soft, curvaceous shapes of its hardscape and
waterscape are a respite from the Historic Fourth Ward's sharp-edged
buildings and rectilinear street grid.
The park's 17 acres include some significant green technology, according to ABI's report:
"The purpose of the lake is to provide capacity relief to the
combined sewer system and is designed to integrate aesthetically with
the surrounding Historic Fourth Ward Park while meeting federal consent
decree requirements.
"Converts five acres of former contaminated industrial land into a clean, green public space.
"City of Atlanta's first water-neutral park: all irrigation
needs will be met by the storm water basin and no water will be drawn
from the City's water supply.
"Utilizes energy-efficient LED lighting to minimize energy costs and provide a secure environment."
The park also includes a nifty and quite sophisticated skate park.
Among additional green features in new BeltLine parks, the new eight-acre D.H. Stanton Park on the Beltline's south side is equipped with
solar panels that, ABI says, will generate enough electricity to
completely offset the park's energy costs. And the report dryly notes
that the BeltLine's new, five-acre Boulevard Crossing Park (really,
improve these names) was facilitated by an "innovative partnership with
Trees Atlanta [that] used 24 goats to clear 1.5 acres of invasive kudzu
over a three-week period in Fall 2010."
Work has also begun on several miles of trails (see above) in at
least three segments of the BeltLine. Some portions are finished and
open to the public, while other portions are sufficiently cleared for
"interim hiking."
3. The transit isn't coming for a while.
These accomplishments notwithstanding, for an urbanist like myself
the transit loop is the most important public-funded element of the
BeltLine by far. Experience in other cities demonstrates that, in
addition to improving transportation efficiency, fixed-route transit
can be a powerful catalyst for development and private investment. But, without it, the BeltLine's benefits will be limited at best.
Here's some of what the ABI report says about transit:
ABI and MARTA are partnering to finalize the Atlanta BeltLine's
Tier I Environmental Impact Statement (EIS) on behalf of the Federal
Transit Administration, a major milestone in the federal funding
process for transit. As part of the Atlanta BeltLine Corridor Design
project, transit is being conceptually designed and integrated
with the proposed trail and greenspace elements of the Atlanta
BeltLine; station locations and alignment are being refined; and cost estimates are being updated.
In the upcoming year, ABI will create a Transit Implementation Strategy,
initiate a Tier 2 EIS for a portion of the corridor and continue
transit design and engineering through the Corridor Design and other
planned projects. ... The Transit Implementation Strategy is anticipated
to identify at least two specific segments of transit to be moved into
design and/or construction in the next five years. These segments may connect the redevelopment corridor along the Atlanta BeltLine to activity centers in the core of the city.
Hmmm, there's a lot of deliberate uncertainty written into those
paragraphs. Even the near-term projects are described as "moved into
design" in the next five years. I suspect that, put another way,
the city doesn't believe it is in a position to make promises. But,
meanwhile, there are apparently some things it can do - things that are
going to have to be done anyway - while it continues to search for
funding (and perhaps more political support?).
One can't help but wonder why the "transit implementation strategy"
was still in the future as of the end of 2010 when the report was
prepared. I also wonder if there has been internal competition among
worthy transit projects for funding: when the federal Department of
Transportation's TIGER grants were being handed out last year, the
money for Atlanta went for the downtown streetcar, not the BeltLine.
I am certainly not going to argue which project was a better
candidate; presumably city officials made an informed decision about which
was more likely to attract funds, and I have no reason to doubt their
judgment. I don't know how advanced the planning for the streetcar was
at the time, for example, but surely it was more advanced than that for
the BeltLine. That said, if a project of the BeltLine's massive
ambition is to succeed, sooner or later it is going to have to become
the top transit priority for the city. It's just too complicated to
get done otherwise.
In the meantime, I suppose it made sense to lead with parks and
green space rather than with transit. As challenging as the land
acquisition, remediation, design, public engagement, and funding can be
for parks, that bundle becomes far more formidable when it comes to a
rail line. The public is at least getting to see some near-term
accomplishment in the parks and trails.
But a case can also be made for going all-out at least for a
segment, however short, of the transit line right from the start, even
if they had to begin with a bus line. This would have sent an
immediate signal to the public as well as to private investors that
this project is fundamentally about transit. The unfortunate
experience here in the D.C. area is that, once a community comes to love
a parks-and-trail corridor, some of them will actually oppose the transit intended in the corridor (facts notwithstanding) because they want their park to remain as it is.
4. A decent start has been made on revitalization and workforce housing.
There is already some significant development along the BeltLine. As I have written before,
I'm a big fan of the Glenwood Park project, although even that
well-conceived and -designed project won't realize its full potential
until the transit is in place.
In addition, ABI reports that $8.8 million has been capitalized into
the Atlanta BeltLine Affordable Housing Trust Fund, which is
administered by The Atlanta Development Authority. These funds,
according to the report, can be applied to incentives for new and
rehabilitated housing, down payment assistance for homebuyers, and
property acquisition for future affordable housing development. ABI
has set up a website
to help promote new affordable housing developments (example shown above)
along the BeltLine and to facilitate the down payment assistance to
qualifying prospects.
On the land use side, the city has divided the complicated planning process along the BeltLine into ten segments; master
plans have already been completed and adopted for seven of those
segments, and the process was advanced for the remaining three as of
the time of the ABI report. I took a look at a presentation
on zoning changes needed for redevelopment along the BeltLine, and it
is clear that planners are working with the right concepts, at least
for streetscapes and parking.
ABI's report also includes sections on community benefits (the city
has identified a daunting 45 neighborhoods affected by the project),
job training, and public art.
5. Some intriguing proposals have been put forward to speed the BeltLine's implementation.
Thomas Wheatley is an Atlanta journalist who covers transportation and land use for the publication Creative Loafing. Wheatley believes that the BeltLine's prospects for success need to be
boosted by "big, bold ideas" that will be highly visible and can
restore public confidence in the project. He offers five, including one in each of the city's four quadrants.
In addition, a collaborative project
born of architects, a writer, and an artist have proposed what they
call a "humanist model" that would plant places of inspiration along
the BeltLine, including a "mind garden," "sound field," and "circus
politicus," among others:
A humanist model for the Atlanta Beltline envisions more than a
belt that girdles the city. It must include supportive connections to
neighborhoods along the way and a pathway filled with wonder.
Institutions provide substantial support and inspiration to city
inhabitants, in concert with dwelling and infrastructure. It is these
Institutional Belt Loops that form the nexus of our reconstruction,
encircling ten stops on the Beltline to invigorate strategic
communities.
As a visionary collaborative model, we have constructed an
idealized world in the representational form of a comic book. We were
motivated to select a form of communication that would provide a
platform for a writer, two artists and a gaggle of architects. We were
able to work together by carrying forward our individual strengths to
form a new synthetic vision. Though we are also aware of the comic
nature of all idealized vision, this did not prevent us from joyful and
serious forward progress.
I am not a local and won't judge the specifics of these concepts,
but I like the idea of doing highly visible demonstrations that can
show more of the BeltLine's incredible potential than one senses
Atlantans have been able to see so far.
*
I am rooting hard for this massive, incredibly complex project. You
should, too: If it succeeds, it will create an incredible model not
just for Atlanta, but for cities around the world. But it has a long
way to go. (The annual reports of the Atlanta BeltLine Partnership and
ABI - cited extensively above - must be online, but I was unable to
find either. My sense is that the two entities would benefit greatly
from some communications help.)
This post also appears on NRDC's Switchboard. Images: Angel Luis Poventud, ABI, HDR Inc., ABI, ABI, Lord Aeck and Sargent Architecture
