An Abstract of
Envisioning a Swan Creek Riverwalk for Urban Toledo:
Three Miles of Relative Tranquility
By
Eric Wagner
Submitted as partial fulfillment of the requirements for
The Master of Arts in Geography
The University of Toledo
May 2008
This research is focused on a proposed project. This project is a hike and bike
trail. The geographic location of this proposed trail is from the warehouse district near
downtown Toledo to the older part of the south end of Toledo. This hike and bike
riverwalk will stretch approximately 2.1 miles on both sides of Swan Creek. The total
combined mileage of the proposed project is 4.218 miles.
This portion of Swan Creek flows through one of the oldest and in portions
poorest sections of Toledo. There are also environmental issues with Swan Creek itself as
well as some of the adjacent land areas. This project while a hike and bike trail is not
intended to stop there. The project has a proposed overlay district greater than the area of
the trail itself. The overlay district is intended to guide future development. Funding
sources are identified for trail development as well as neighborhood economic
iii
revitalization. I have laid out a plan for potential redevelopment throughout the proposed
overlay district.
This plan for redevelopment includes mixed-use projects as well as additional
areas of housing and parkland. With Swan Creek being a linear feature there is a potential
for future expansion of the hike and bike trail. These future expansions would tie various
amenities around Toledo together and improve overall biking and walking transportation
options.
iv
Acknowledgements
I would like to thank the following individuals and institutions who contributed to
my ability to complete this Development Plan:
I would like to thank the University of Toledo Department of Geography and
Planning for allowing me the opportunity to earn a graduate degree, for which completion
of this thesis is my final requirement. I would like to thank the Lucas County Engineer’s
office, specifically Doug Parrish, Joe Shultz, and Kelly Forgette. I would like to thank
Steve Day with the City of Toledo for his assistance with landscaping materials. I also
would like to thank Lucas County LCIC and the Ohio Lake Erie Commission for their
excellent reference materials.
I am thankful for the support of my committee of Dr. Jim Nemeth; Dr. Dan
Hammel; and David Gstalder, AIA. Their encouragement and assistance is much
appreciated. I would like to thank Dr. Lawrence for all his helpful advice related to
finishing up all the issues regarding graduation. I would also like to thank Ms. Nadine
Hoffmann. Her help in tracking down people I needed to meet with and in registering for
my thesis credit (as well as her good advice in general) is much appreciated.
A well-deserved thanks goes to Jennifer Heckman for her assistance with G.I.S.
maps and Andrew Sager for his assistance in helping me locate historical maps. I would
like to thank Charles Sarabia of the LADC. I would like to thank my friend Ben
Krompak for looking over my rough draft and giving me helpful ideas, and my friend
Nate Smith for his assistance with setting up my PowerPoint presentation. I would like to
thank my friend Steve Hallock for joining me on my many bike rides to Swan Creek,
where I took pictures. I enjoyed the company. I would like to thank Dr. Andreas Luscher
v
for his good advice and also Jianshen Cai for his good ideas regarding visually presenting
my site plan. I would also like to thank Russ Sprinkle for his assistance with editing and
proofreading.
Finally, I am so grateful for the support of my parents, Hank and Cindy Wagner,
and my sister Kelly Wagner. Their support and love for all these years has meant very
much to me.
vi
Table of Contents
Abstract
iii
Acknowledgments
v
Table of Contents
vii
List of Figures
xi
Executive Summary
1
Chapter 1: Overview
5
A.
Background and History
5
B.
Site Characteristics and Land Use
8
C.
Goals and Objectives
9
Chapter 2: Methodology
11
A.
Data and Data Sources
11
B.
Local Community Development Corporation Interest
11
C.
Overlay Districts, Form Based Codes/ Urban/Architectural
12
Chapter 3: Existing Riverwalks
14
A.
London, England
14
B.
Venice, Italy
15
C.
San Antonio, Texas
16
D.
Naperville, Illinois
17
E.
Detroit, Michigan
19
F.
Chicago, Illinois
20
G.
Ottawa, Ontario
22
vii
Chapter 4: Economic Development
A.
23
Funding Sources
23
1.
Government Sources of Funding
23
2.
Non-Profit Sources of Funding
24
3.
Private-Sector Funding
24
B.
Economic Benefits of Riverwalks
24
C.
Marketing Riverwalks as Malls
24
Chapter 5: Site Analysis
26
A.
Land Use
26
B.
Flora
26
C.
Fauna
26
D.
Soils
27
1.
Udorthents (Uo)
27
2.
Urban Land (Ur)
27
3.
Sissan (SnB)
27
4.
Digby (Dgb)
28
E.
Hydrology
28
F.
Existing and Proposed Land Use
28
G.
Existing and Proposed Zoning
28
Chapter 6: Proposed Overlay District Text
A.
29
Overlay District
29
viii
Chapter 7: The Concept Plan
36
A.
Goals and Objectives
38
B.
Specific Funding Sources
41
1.
Clean Ohio Revitalization Fund (CORF)
41
2.
Clean Ohio Conservation Fund
41
3.
Metroparks Land Acquisition Levy Funds
41
C.
Proposed Cost of Project
41
D.
Proposed Ownership/Maintenance Responsibilities
42
E.
Recommendations for Further Studies
42
F.
Designing the Riverwalk for Safety
46
G.
Using the Riverwalk as a Boost to the Erie St. Market
47
H.
Supporting Green Technology and Energy Efficiency
48
I.
Benefits and Specific Recommendations for Certain
Areas of the Riverwalk
48
References
54
Appendix A: Area Maps of Riverwalk Overlay, Part 1
57
Appendix B: Area Maps of Riverwalk Overlay, Part 2
59
Appendix C: CDC Map
61
Appendix D: Zoning Map
62
Appendix E: Site Plan
63
Appendix F: Listing of Parcels
64
Appendix G: Photos and Miscellaneous
69
Appendix H: Potential Plant Species for Swan Creek Riverwalk Landscaping
71
ix
Appendix I: Proposed Specific Funding Sources
x
74
List of Figures
Figure
Page
1.
London Frost Fair, 1677
14
2.
Gondola on the Grand Canal near the Rialto Bridge
15
3.
Open-air view of San Antonio’s riverwalk
16
4.
Below a bridge on San Antonio’s riverwalk
16
5.
A calm afternoon on Naperville’s riverwalk
17
6.
Ducks at Naperville’s riverwalk
17
7.
On the river’s edge at Detroit’s riverwalk
19
8.
A lighthouse near the riverwalk in Detroit
19
9.
The winding river and tall buildings on Chicago’s riverwalk
20
10.
A spring day on Chicago’s riverwalk
20
11.
A clear winter day on the riverwalk in Ottawa
22
12.
A spring day on Ottawa’s riverwalk
22
xi
Executive Summary
The purpose of this thesis is to address the need for a plan to ensure the
environmentally and historically sensitive development of Swan Creek and its adjacent
riverbank. The study area starts at the Erie St. Market and ends at Libbey High School.
The intent of this land-use plan is to provide for far greater public access to Swan Creek
than is currently available. This endeavor would benefit local residents as well as
downtown workers.
This project offers a variety of potential benefits, such as tourism and community
improvement. Included in this land-use plan are a general overview of the surrounding
area, an analysis of the site, and planning and economic development recommendations.
Swan Creek lies between the Erie St. Market and Libbey High School. Its adjacent banks
are a narrow stretch of land held by multiple owners. A number of parcels are owned by
public entities while other parcels are controlled by numerous small-property owners.
The portion of the creek where the proposed riverwalk would be located is near
the mouth where the creek flows into the Maumee River. Swan Creek begins in Fulton
County and has a drainage area of approximately 203.9 square miles. This is more than
twice as large as the city of Toledo in square miles. The creek itself is approximately 40
miles long. The headwaters of Swan Creek originate in Western Lucas, Fulton, and
Henry counties. The creek has approximately 200 miles of tributaries and feeder streams.
Some of the more important streams that feed into Swan Creek include Blue Creek, Ai
1
Creek, and Blystone Ditch. The gradient of Swan Creek is similar to the Maumee River
with a drop of 2.1 feet per mile.
The creek has different characteristics based on what part of the creek is being
studied. The upper part of the river from the headwaters to river mile 19 in Monclova
Township is primarily low sloping to almost level. The banks are low with non-distinct
valleys and floodplains. The current use of this portion of the creek is primarily
agricultural. This is the part of the creek that flows through the Oak Openings Metropark.
The middle part of the creek is from river mile 19 to 6. This extends from
Monclova Township through Springfield Township to southwest portions of the city of
Toledo. This portion of the river is undergoing rapid urbanization in the western and
middle portions. In addition, Swan Creek Metropark is located within this middle region
in the southwest portion of the city of Toledo. This middle region has characteristic high
banks and steep topography. The banks rise as high as 35-45 feet.
There are also detached floodplains in places along this middle stretch. Overall,
Swan Creek Metropark is an ideal place to view some of this detached floodplain habitat.
The water quality is considered fair in this middle portion with quality decreasing from
west to east (Maumee RAP, 2005). The causes of this compromised water quality come
from erosion from various forms, including natural processes, residential development,
and agricultural processes as well as poorly working septic systems with related bacterial
issues (Osher, 1997).
The lower portions of Swan Creek from mile six to the mouth where the creek
joins the Maumee River is located entirely within the city of Toledo. This is the portion
with the most severe ecological problems. The banks are generally from 35-45 feet high
2
along with scattered floodplain areas. This area is actively accumulating silt in its
channel. There are severe pollution problems due to urbanization and the resulting
accompanying erosion modification of the original river channel and past industrial
activities that included dumping waste in Swan Creek. Also, discharges from the
combined sanitary/storm system and industrial discharges into the storm system
contribute to this low water quality.
Everything from heavy metals to creosote is found in these lower portions of
Swan Creek (Harvey, 1989). These pollutants contribute to the poor water quality
associated with this area. The area of study for the land-use plan includes floodplain areas
where there are also steep slopes and wooded areas with scrub/bramble/grapevine
vegetation. The surrounding land consists of a mixture of vacant lots and older buildings.
Some of these buildings are high quality brick/stone structures. Additionally, there is
currently no significant public access to Swan Creek.
This land-use plan addresses the conditions and circumstances this particular area
possesses. Some of the issues include fragmented ownership, environmental/brownfield
issues, low-level land uses, and lack of public access/recreational opportunities along
Swan Creek. Consideration is given to the fact that the area is not in a natural state and
that restoration to a natural state is not the anticipated outcome. The desired outcome is to
improve the area for the environmental, recreational, and economic benefits that would
accrue.
Planning recommendations for Swan Creek include a multi-purpose hike/bike
trail running from the back of the Erie St. Market to Libbey High School, improved
access to Swan Creek (including boat access), cleanup of creek banks as well as the creek
3
itself, the creation of economic development opportunities for waterfront dining/cafes as
well as revitalization of the surrounding historic buildings for entertainment/office and
residential use.
4
Chapter 1: Overview
This project thesis will consist of a comprehensive land-use plan for Swan Creek
from the back of the Erie St. Market to Libbey High School.
For many years, there has been talk of various riverwalks on Swan Creek. The
City of Toledo has currently constructed in pieces a Swan Creek Riverwalk from the
Maumee River to the middle of the Erie St. Market parking lot.
This area has many vacant and underutilized parcels of land that could be put to a
higher and better use (please see Appendix E). Also, a potentially great natural asset in
Swan Creek is under appreciated and under utilized. An overlay district would protect
against continued piecemeal development of the area and contribute to coordinated and
efficient use of the area. This land-use plan details a model for facilitating such
coordinated development.
Background and History
Swan Creek is technically a river that starts from sources in western Fulton
County and is fed into by over 200 miles of ditches and feeder streams. The total
watershed of Swan Creek is 203.9 miles and includes portions of Fulton, Henry and
Lucas counties (Maumee RAP, 2005). In its journey towards the Maumee River, Swan
Creek, including its tributaries and watershed area, flows through 23 different
jurisdictions. This area goes from very rural areas that are primarily farming through
suburban areas right into the warehouse district/downtown Toledo.
5
The creek was formed by the actions of the glaciers during the last Ice Age. It
begins its journey flowing through Oak Openings. This area is the ancient beach ridges
and low areas left behind when the glacial era Lake Erie began to contract after having
been recently formed out of the grinding actions of the glaciers and filled with the meltwater of the glaciers. The earliest known inhabitants of the Swan Creek Watershed were
the Erie Indians, who were eventually driven out of the area by the Iroquois. In 1701, the
Iroquois made peace with the French, allowing French explorers and fur traders access to
the area (Gunckel, 1902). During the 1700s, various Indian tribes used the Swan Creek
area for hunting and fishing. The area was not actively involved in the Revolutionary
War. Following the battle of Fallen Timbers in 1794, white settlers started to move into
the region. Several grist mills along with farms were established. Indian violence during
the War of 1812 caused these early American settlers to leave. The area had to be
resettled from scratch after the war.
During the 1800s, the Swan Creek watershed filled up with farms. Many of the
farmers were immigrants from the various German states. Towards the mouth of the
river, breweries and other small businesses sprang up (please see Appendix F). There was
also a small group of fishermen and roustabouts that made their living on the river
(Strong, 1913). From the late 1800s through the early 1900s, concerns about the
deteriorating condition of the river led to talks about channelizing the river and
redirecting the flow to empty into the Maumee near Delaware Creek. In 1908, a group
calling itself the South Side Improvement Association demanded the elimination of the
rest of the canal bed and Swan Creek within Toledo’s city limits.
6
Around the same time, early plans were made for a waterfront park partially
covering the same study area as this study. The man behind this plan was John Strong, an
advocate of playgrounds and conservation. During this time, raw sewage was openly
dumped into the creek with no treatment. This was the reason that talk was in the air to
channelize and culvert Swan Creek. According Strong (1913), the cost at the time to
eliminate Swan Creek would have been $4 million dollars. In today’s money, that is
$85,284,848.48 (Consumer Price Index, 2008). Between unregulated industrial use,
squatters, shacks, and sewage, Swan Creek and its valley was a very sad place. The
process at that time to think about the future of Swan Creek began in 1910. That was the
year the city council appointed a commission to issue recommendations regarding the
future of Swan Creek. The commission worked at their task for a year. During this time,
the State of Ohio also stepped in and compelled the City to quit allowing Swan Creek to
be used as an open sewer.
The State of Ohio required that an intercepting sewer be built within 2 years. Two
prominent members of that commission were G.W. Tonson, city engineer, and architect
E.O. Fallis. Both endorsed the project. Before learning of the park idea, Mr. Fallis had
independently conceived of a park running about half a mile from Cushing St. to Newton
St. (Strong, 1913). At this time, the south side of the creek was almost entirely in a
towpath easement controlled by the State of Ohio, a situation that would have helped
immensely with land acquisition. The proposed plan was a mixture of passive and active
uses. All major sports, from baseball to ice hockey, were included. There were also
provisions for swimming and canoeing and even for community gardening plots for
children. The territory of the plan stretched from slightly west of the Erie St. Market to
7
the site of the present-day Highland Park. Libbey High School and Sterling Field are both
located on pieces of this site. Sterling Field and Highland Park were both established in
the period between 1910 through 1920 (Hawkins, 1965).
Throughout the 1900s, most major engineering work on the creek involved flood
control (Tanber, 1985). Commercial development towards downtown and residential
development to the west impacted the creek as well, and there was some realignment of
streets near downtown. The last two decades of the 20th century saw some renewed
interest in Swan Creek as well as in providing some form of public access to the water.
There were some trail developments along nearby banks of the Maumee River in
the 1980s as well as development of a condominium project in the middlegrounds that
later became the site of the new Owens Corning corporate headquarters. Later, a pontoon
boat for tours of the creek was established. Some trails were established in the early
2000s that linked the Owens Corning Middlegrounds campus to the Erie St. Market albeit
with some breaks in the trail. This brings us to today.
Site Characteristics and Land Use
The land that is included in this study is the Valley of Swan Creek. The study area
starts at the Erie St. Market and ends at Libbey High School. I have established a
boundary of 200 ft. inland from the centerline for each side of the creek. The land is
occupied by a mix of actively used buildings for various small-scale industrial activities
as well as buildings with institutional uses. There are some unused buildings in the
corridor. The corridor is not completely occupied by buildings. There is a moderate
amount of open land. Some of these parcels along with some of the parcels with buildings
on them could have brownfield issues.
8
The corridor is bisected by a number of overhead road crossings. This fact brings
land controlled by various governmental entities into the picture. The land is generally
quite steep with some drop-off into the water. Many of the steep slopes are densely
vegetated with grapes or brambles. There are some spots where there is level land up to
the banks. These are floodplain areas. Most of the land above the banks is outside of the
floodplain. The water is generally muddy with low visibility. There are pollution issues
with the water, including debris (such as tires and shopping carts) as well as chemical
pollution and siltation (Maumee RAP, 2005).
Goals and Objectives
This project seeks to evaluate land-use options for the Swan Creek Valley
between the Erie St. Market and Libbey High School and to propose alternatives that
better integrate this portion of Swan Creek into the surrounding community. The proposal
increases recreational opportunities as well as economic opportunities while preserving
and enhancing the natural landscape. The end result of this project will be a
comprehensive land-use plan. The goals of this project include the following:
Ensure that future land-use projects respect the natural and historic landscape of
Swan Creek.
Increase public access to Swan Creek. Provide recreational opportunities for area
residents and downtown office workers.
Provide for increased economic opportunities for the project area.
Improve the water quality of Swan Creek and improve habitat for urban wildlife.
9
The objectives of the project include the following:
To ensure future land use respects the natural and historic landscape of Swan
Creek. This includes having buffers between the creek and any new construction
to allow for a walking/bike trail and for landscaping requirements that will not
only improve the beauty of the area but also provide food and a habitat for urban
wildlife. Historic preservation is an additional objective this plan seeks. New
structures or additions/renovations should match the historical context of the area.
This would include use of natural materials, such as stone or brick.
To construct the hike/bike trail from the Erie St. Market to Libbey High School.
To mitigate the impact of negative land-use activities.
To provide specific economic benefits that derive from a destination that is unique
within a several-hundred-mile radius.
10
Chapter 2: Methodology
Data and Data Sources
In developing the comprehensive land-use plan for the Swan Creek Riverwalk, a
number of methodological approaches were used to gather and analyze information and
to propose a vision for the area of study. The techniques that were used were informal
gathering of information from various sources, including websites, field work, and
literature reviews.
Planning techniques used in the study include overlay zoning, watershed
planning, and economic development planning. Other techniques involved the use of
G.I.S. technology. Maps presenting data were shown. Also, tables to present various data
are part of this project as well.
Data sources used in the study include relevant literature on riverwalks as well as
books on the Swan Creek region. Internet websites for various riverwalk projects in the
U.S. and Canada were consulted as well.
Local Community Development Corporation Interest
The area covered by the riverwalk project is in the working area of three
community development corporations (CDCs). These CDCs include the Warehouse
District CDC, Viva South, and ONYX. The riverwalk would serve as a neighborhood
recreational amenity and could be used to promote economic development for the CDC
service areas. Examples of ways CDCs could aid in the development of the riverwalk
11
include hosting planning charettes and neighborhood meetings as well as facilitating the
disbursement of facade grants and other economic development incentives in the area of
the riverwalk (please see Appendix B).
Overlay Districts, Form Based Codes, Urban/Architectural
Overlay districts are a form of special zoning district used in both municipalities
and unincorporated areas. These are special districts that do not change the zoning of a
particular area; rather, they add additional controls. In overlay districts, certain
architectural standards can be applied. Also, additional restrictions can be placed on
permitted uses above and beyond what is allowed in the underlying zoning district. The
City of Toledo code allows for and currently includes overlay districts.
Urban codes are visually-based codes that show the correct relationship of
buildings to the surrounding environment. Elements of such codes include the height of
buildings, the number of street trees, the width of sidewalks build-to versus setback lines,
and other related issues. Urban codes help define and harmonize whatever buildings will
be constructed with the street and the surrounding built environment and the larger
neighborhood context. They do not specify a particular architectural style for individual
buildings or specify specific building materials (Kunstler, 1996).
Architectural codes are also visually-based codes. These codes deal more with
individual buildings. The purpose of these codes is to help buildings harmonize with their
environment. Architectural codes deal with such issues as the materials buildings are
constructed with as well as the specific style and finish of buildings. Examples of where
both sets of codes can work together are where porticos and arcades are constructed. The
urban code may mandate porticos in front of buildings to protect pedestrians as well as
12
provide basic drawings, but the Architectural drawings are where specific examples of
permitted styles are shown (Kunstler, 1996).
13
Chapter 3: Existing Riverwalks
Toledo will by no means be the first city in the world or the U.S. to have a
riverwalk. For hundreds of years, cities have looked to the recreational potential of their
rivers. As far back as the 1600s, the City of London, England, held a Winter Frost Fair on
the banks as well as the ice of the Thames (“London Frost Fair,” 2008).
London, England
Fig. 1. London Frost Fair, 1677.
14
Venice, Italy
The city of Venice, founded by refugees from the barbarian invasions of Roman
Italy, is a city of artificial rivers called canals. This is due to the swampy nature of the
area. Also, the canals and islands created a city of hundreds of small fortresses that were
nearly impossible to be captured or seriously harassed by the land-based barbarian armies
of the time (“History of Venice,” 2008).
Fig. 2. Gondola on the Grand Canal near the Rialto Bridge.
15
San Antonio, Texas
Fig. 3. Open-air view of San
Antonio’s riverwalk.
Fig. 4. Below a bridge on San
Antonio’s riverwalk.
The archetype for my riverwalk as well as many others in the United States is the
San Antonio Riverwalk. This riverwalk was started in the 1930s to control flooding as
well as rehabilitate a part of downtown San Antonio that had become the city’s “skid
row” (Garvin, 1996). San Antonio is an old city that was originally founded by the
Spanish. It is the home of the famous Alamo. In September 1921, the city fell victim to a
severe flood that killed more than 50 people and caused millions of dollars in property
damage. While the River had flooded many times, this flood was by far the most severe.
Following the flooding, local Architect Robert H.H. Hugman put forth a plan to
turn the eyesore into an amenity. He proposed an urban riverwalk with apartments and
various shops and restaurants. There would be boat rides and old-fashioned street lamps.
Modeling his plan after Venice, Italy, he worked with various business groups and the
government to get his project constructed (“San Antonio Riverwalk,” 2008). Throughout
the 1930s, there were river cleanup campaigns by local civic associations proceeding
along with construction of the project.
The original project was essentially finished by the 1940s. However, it largely sat
empty, and the area continued to suffer from high crime. In the 1960s, there was renewed
16
interest in the Riverwalk, and the Paseo Del Rio Association was formed to promote its
continued improvement (“San Antonio Riverwalk,” 2008). Since the 1960s, there have
been regular expansions of the Riverwalk, and today it covers 2 ½ miles with business
activity contributing nearly $800 million a year to the local economy.
Future expansions of the riverwalk are planned. A section is planned going north
out of the downtown area through an industrial area and south where the quality of river
experience currently drops to that of little more than a drainage ditch. This expansion in
total will add 14 miles to the existing 2.5 mile riverwalk (Robbins, 2006).
Naperville, Illinois
Fig. 6. Ducks at Naperville’s
riverwalk.
Fig. 5. A calm afternoon on
Naperville’s riverwalk.
Naperville, Illinois, also has a riverwalk project that began in 1981. The
foundations of the riverwalk go back much farther to 1931. Thirty-two Naperville
citizens pooled their money together to purchase land for a park to commemorate the
100-year anniversary of the founding of Naperville (“Naperville Riverwalk,” 2008). This
park was in the heart of downtown Naperville and along the banks of the Des Plains
River. The park had unique features, including an old quarry, which became known as
Centennial Beach.
17
Naperville was going to have a sesquicentennial celebration in 1981, and in the early
stages of planning, a riverwalk was selected to be a living memory of the city founders.
The project was to be completed in sections.
The funding for this original section came from a variety of sources. There was a
public participation campaign with the City of Naperville offering to match up to
$200,000. This campaign raised $588,000. Local businesses contributed another $30,000
in labor and materials. Local citizens contributed scores of hours including in laying brick
pavers
Beginning in 1982, the riverwalk expanded westward. This went behind
Centennial Beach and the local VFW. During this time period, both the City of
Naperville and the Park District set aside annual appropriations of $100,000 in most
years. The Park District assumed primary responsibility for maintenance of the riverwalk.
In 1995, there was an ambitious plan to expand the riverwalk to Hillsdale Rd. The project
proposed that $500,000 be raised by the community and matched by City funds and Park
District funds over a total of five years for a total of $1,500,000. The public campaign
raised over $650,000, generating a total of $1,650,000 in funds. An acre of prime real
estate was donated as well.
18
Detroit, Michigan
Fig. 7. On the river’s edge at
Detroit’s riverwalk.
Fig. 8. A lighthouse near the
riverwalk in Detroit.
Detroit, Michigan, has begun construction of a very ambitious riverwalk project
on the Detroit River. The project currently is a 3 ½ mile riverwalk, with some
interruptions, that stretches from Hart Plaza, which south of the Renaissance Center, to
Gabriel Richard Park, which is just east of Belle Isle. Future extensions will extend the
riverwalk to Riverside Park west of the Ambassador Bridge, which will be a total
distance of more than five miles.
The riverwalk began with a concerted effort by Detroit-area citizens determined
to improve the city’s riverfront and, by extension, overall image. This effort began in the
late 1990s with a core group that included neighborhood activists, business professionals,
government partners and environmentally-minded individuals. A nonprofit corporation,
the Detroit RiverFront Conservancy (DRFC), was established in 2002 to raise funds.
Their vision was a five-mile riverwalk from Hart Plaza to Riverside Park (Detroit
RiverFront Conservancy, 2006). This riverwalk would incorporate many interesting
features.
The riverfront of Detroit was already graced by a number of parks and plazas.
New pavilions and plazas will add to the atmosphere. A water feature has also been
19
added. This is a fountain that kids can play in that shoots water up into the air (Kelly,
2007). The total cost of the project is expected to be in the $100 million range. The
DRFC will build, operate, and maintain the project. The DRFC is soliciting funding from
a variety of sources, including the corporate community, government, and the public at
large.
One way they have conceived for the public to participate is to buy bricks for the
riverwalk while another way is to purchase memberships in the DRFC. These range from
low-cost senior and student memberships to sponsorship-level memberships in the range
of thousands of dollars. These memberships are also a way to get the public involved in
various events throughout the year that occur in conjunction with the riverwalk.
Chicago, Illinois
Fig. 9. The winding river and tall
buildings on Chicago’s riverwalk.
Fig. 10. A spring day
on Chicago’s riverwalk.
Chicago, Illinois, has a combined riverwalk and lakefront path system that is a
model for communities around the globe. Chicago has a group, Friends of the Chicago
River, which is currently working towards projects that improve the health of the Chicago
River and surrounding land areas. This group is working with the City of Chicago on
cleanup and improvement projects. Active since 1979, they are focused on the entire 15620
mile length of the Chicago River as well as the surrounding watershed. Their efforts have
led to the new downtown Chicago Riverwalk plan (“Friends of the Chicago River,”
2006).
Interest in the Chicago River dates back to the 1800s, when its flow was directed
away from Lake Michigan in order not to pollute Chicago’s water supply. The
improvement of the lakefront for public use began with the 1909 Plan of Chicago. This
was the first comprehensive plan adopted for any American city. The idea for the plan
was launched in 1906 by the Merchants Club and continued by its successor, the
Commercial Club (Garvin, 1997). The plan was for a moral and physical “building-up”
of the city. Elements of the plan included reclaiming the lakefront from industrial uses
and giving it to the people, increasing park areas and playgrounds and modern scientific
traffic management. In 1909, the plan was published. On July 6, 1909, the city council of
Chicago granted the mayor permission to appoint members to a newly formed planning
commission. In all, 328 members were originally appointed. Charles Wacker was named
the commission’s permanent chairman. Many features of the plan, such as reclaiming the
lakefront for public use, a forest preserve system, and straightening of the Chicago River,
were accomplished.
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Ottawa, Ontario
Fig. 12. A spring day on Ottawa’s
riverwalk.
Fig. 11. A clear winter day on the
riverwalk in Ottawa.
Ottawa, Ontario, the capital of Canada, has the Rideau Canal. This was opened in
1832 and is the oldest continuously operated canal system in North America. Most of the
original structures of the canal are still intact. The cost when complete was £822,000. The
canal system is a total of 125 miles with a total of 12 miles manmade. The rest connects
existing lakes and rivers. A 4.8-mile section of the canal passing through central Ottawa
is known as the world’s longest skating rink (LaVert, 1991). There are associated bike
paths along the banks of the Rideau Canal as well. The beautiful natural setting includes
flowers and the lush greenery of trees (Mackie, 1991).
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Chapter 4: Economic Development
Funding Sources
Much of the struggle in getting a riverwalk project actually built will have to do
with funding issues. Today, both government and private industry are very frugal with
financial resources, and finding money for new projects is not an easy proposition. I have
outlined possible sources of funding as well as a proposed budget for the riverwalk.
This project will require multiple sources of funding. Government, private
industry, and the non-profit sector will have important roles to play in bringing it to
fruition. Directly appealing to the public should also play a part in the process. This is a
civic improvement, and public buy-in is crucial (Paumier, 2004).
Government sources of funding.
Government sources of funding can be from the most local branch of government
right up to federal funding. Much of the funding that cities can provide comes through
Community Development Block Grant CDBG funds. These are federal funds that cities
can use at their discretion. Cities also receive block grants from agencies such as the EPA
for specific projects. Assistance with land acquisition and maintenance of a project once
it is completed are additional important services cities can provide.
County government can provide money through a grant process for projects that
benefit county residents. Partnering with a county agency, such as the Metroparks, can be
a way to increase the funding stream for a project as well as aid in land acquisition and
23
maintenance. State funding can help with some projects. There are various pools of
money, the Clean Ohio Fund is one example, that can be used for such projects. Federal
money is a possibility for a project like the riverwalk. Various federal agencies have
money available for specific projects.
Non-profit sources of funding.
There are a variety of non-profit foundations that provide funding for community
development as well as environmental remediation projects.
Private-sector funding.
The private sector will be an important component of a successful riverwalk
project. The private sector includes large corporations as well as local small businesses.
Also included in “private sector” contributions would be individual donations by citizens.
Economic Benefits of Riverwalks
Riverwalks contribute economically to the communities in which they are located.
In San Antonio, for example, their riverwalk contributes approximately $800 million a
year to the local economy (“San Antonio Riverwalk,” 2008).
Marketing Riverwalks as Malls
Much has been written in recent years regarding managing and marketing “Main
Street” districts in a similar fashion to shopping malls. This integrated management is
meant to encourage diversity rather than hinder it. Malls encourage a mix of stores that
will cater to diverse groups of people and their needs. A well-managed mall will include
stores that sell wrapping paper and greeting cards for the gift customers may have
recently purchased at the anchor department store. The mall will also have dining
facilities for the hungry busy shopper. This kind of common-sense clever marketing does
24
not always occur with independent stores on main streets. Witness the phenomenon of tshirt stores that spring up by the dozen in tourist areas or the pawnshop/storefront
church/social service agency setup that is common in urban main street areas.
Community and economic development professionals in recent years have been taking a
cue from suburban mall management. The idea that managing all the stores as a unit,
along with year-round “festival” programming, can be a key to a successful commercial
district. This approach, also utilized in San Antonio on the riverwalk, is a good strategy to
consider.
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Chapter 5: Site Analysis
Land Use
Currently, the land in the study area is under a variety of uses. There are some
industrial uses still in the corridor. Some of the corridor is paved and used for parking for
a variety of businesses. Parts of the corridor have vacant buildings. These could have
possible brownfield issues. There are also vacant land parcels in the corridor. These could
have possible environmental issues as well.
Flora
The plant life in the area is mostly regrowth. The area was cleared long ago and
multiple times. Much of the banks are covered in common wild grape. There are also
some honeysuckle vines and patches of bramble as well. Where trees are present, there
are common species of oaks and maples. There are no endangered plants known to be
present in the study area.
Fauna
The animal life in the corridor is standard northwest Ohio wildlife. Particular
species of mammals include squirrels, chipmunks, field mice, rats, possums, and
muskrats (Pollick, 1998). Bats do visit the area. Also escaped house pets, i.e., cats and
dogs, make the rounds of the area as well. Common area birds find a home in the area.
Robins, cardinals, sparrows, various finches and hummingbirds make a home in the area.
It would be safe to say that larger birds of prey, including owls, hawks and occasional
26
falcons and bald eagles, visit to take advantage of the abundance of small mammals.
Visiting water birds including egrets, cranes and seagulls occasionally stop by the area as
well. Aquatic life includes pike, minnows, walleye and perch. There are various
invertebrates, including muscles and various species of insects and spiders.
Soils
Soils in the proposed Swan Creek overlay include the following: (United States
Department of Agriculture, Soil Survey of Lucas County, 1980)
Udorthents (Uo).
These soils are loamy nearly level to gently sloping. The soils have mixed organic
and inorganic material overlain by a layer of loamy soil about 2 feet thick. This type of
soil is good for construction or roads and good for trees. These soils have some alkaline
tendencies.
Urban Land (Ur).
This is disturbed soil usually covered by structures and streets.
SnB Sissan: This is an urban land complex with 2-12% slopes gently and moderately
sloping. This soil is well drained sisson loam soil and areas of urban land. The color of
the soil is dark grayish brown. The depth of the soil is to around 9 inches with subsoil to a
depth of 40 inches. This soil complex is good for plants and erodes easily. Sissan soils
have a limited strength for building.
Sissan (SnB).
This is an urban land complex with 2-12% slopes gently and moderately sloping.
This soil is well drained sisson loam soil and areas of urban land. The color of the soil is
dark grayish brown. The depth of the soil is to around 9 inches with subsoil to a depth of
27
40 inches. This soil complex is good for plants and erodes easily. Sissan soils have a
limited strength for building.
Digby (Dgb).
These soils are sandy loam with 2-6 percent slopes. These soils are found in areas
that are gently sloping with somewhat poorly drained soil. The soil color is dark grayish
brown around 8 inches thick. The subsoil extends about 40 inches deep. Digby soils are
.good for cropland and woods. It has a medium building potential.
Hydrology.
The Hydrology of the area is a small river channel along with the associated
floodplain.
Existing and Proposed Land Use
The existing land use is a mix of underutilized warehouse/building structures with
some land owned by the government and some used for infrastructure uses, such as the
overpass for Collingwood Blvd. There is also some open land in the corridor as well.
Brownfield issues could be possible for some of the land in the corridor.
Existing and Proposed Zoning
The 40’ park strip along with any additional park areas are proposed to be zoned
POS, Parks and Open Space zoning district. The rest of the proposed overlay area is
proposed to be zoned CM, Mixed Commercial-Residential zoning district (please see
Appendix C).
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Chapter 6: Proposed Overlay District Text
Overlay districts are tools used in zoning and land-use planning. An overlay
district consists of additional controls used to guide future development of an area.
Overlay districts can prohibit or allow uses different than the underlying zoning of the
property. Overlay districts can be used to protect or enhance the character of an area
(Toledo City Council, 2004). Things such as architectural and urban form details can be
regulated by an overlay district. The overlay district I propose here for the Swan Creek
study area follows the form and format of overlay districts as they are used in the Toledo
zoning code. The numbering scheme and paragraph layout all conform to the Toledo
zoning code. The rationale for presenting the overlay district in this format is that if my
project is taken up by the City of Toledo, then this language could be adopted with very
few changes to the Toledo zoning code.
Overlay District
1103.0801 Purpose
A. The Swan Creek Riverfront district is of special and substantial public interest
because of its location along the lower reaches of Swan Creek. The creek is a visual,
environmental, and historic resource affecting substantial areas of the city, including
many neighborhoods, the central business district, a metro and city park, and several
areas with the potential for redevelopment.
B. It is the general purpose and intent of these regulations to provide for maximum
public benefit from the further development of the Swan Creek riverfront area, Delete
through a sharing of the – Delete SWA district land by different types of uses that are
developed with a river orientation and with an emphasis on the opportunity for enjoyment
of river vistas and access by a maximum number of citizens.
29
C. It is further the intent of this section to provide for public access to the waterfront; to
eliminate or minimize negative environmental impact; and to provide for improved
scenic and aesthetic controls, improved transportation coordination and capability, and
the coordination of residential, recreational, and commercial land uses.
D. It is further the intent of this section to implement the comprehensive plan by
requiring public review of proposed development within the –SWA district.
E. It is further the intent of this section to foster development and redevelopment that is
compatible with the scale and physical character of original buildings in an area through
the use of development/design standards and guidelines.
F. It is further the intent of this section to conserve cultural resources, historic
resources, and property values within an identified area.
G. It is further the intent of this section to establish development/design standards
including landscaping to implement an adopted area plan that establishes physical design
goals.
1103.802 Definitions
A. “Demolition” For the purpose of the Swan Creek overlay provisions, “demolition”
means the removal or tearing down of all or part of a structure.
B. “Physical Change” For the purpose of the Swan Creek overlay provisions,
“physical change” means any work such as alteration, remodeling, new construction, or
renovation of the exterior of a structure for which the total cost would be more than
$250,000 or 25% of the appraised value of the building, as listed by the County Auditor,
whichever is the lesser amount. In computing the total cost, the cost of any such work
accumulated in any three-year period shall be considered.
C. “Reasonable economic use” For the purpose of the Swan Creek overlay provisions,
“reasonable economic use” means a use for a structure or property that will produce a
reasonable return that is economically viable. In a situation involving a property or
structure that is not income producing, reasonable economic use means that the property
structure can be put to a reasonable beneficial use in a reasonable amount of time based
on all relevant criteria set forth in section 1111.0904.
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1103.803 Creation of District and boundaries
The -SWA, Swan Creek Riverfront Overlay district is hereby created as an overlay
district to be applied to such lands related to and adjacent to Swan Creek and its
associated watershed as City Council may designate by ordinance.
A. The -SWA district and its sub districts, after designation by City Council, must be
shown on the official zoning map as an overlay zoning designation so that the underlying
zoning district designation will remain legible.
B. A map of the boundaries and boundary description of the -SWA district will be
presented
Toledo | Zoning Code 19 Chapter 1103 | Overlay Zoning Districts Sec. 1103.0804 | SWA, Swan creek Riverfront Overlay District
1103.0804 Effect of District
The -SWA district modifies the requirements, regulations, and procedures that apply in
the underlying zoning districts pursuant to the regulations of this section.
1103.0805 Uses
The -SWA district does not regulate the use of land, buildings, or structures. The use
regulations of the underlying base zoning district control.
Design Guidelines
In establishing an -SWA district, the Plan Commission is authorized to propose, and the
City Council is authorized to adopt, by ordinance, district-specific development and
design standards to guide development and redevelopment within -SWA districts.
A. When development/design standards have been approved, each building permit
application for new construction or exterior alteration within the designated -SWA
district must comply with those standards.
B. When there are conflicts between the development/design standards of the underlying
base zoning district and adopted -SWA district development/design standards, the -SWA
development/design standards will govern.
C. The Board of Zoning Appeals has no authority to grant interpretations, exceptions, or
variances from the adopted development/design standards.
D.
The enforcement provisions of Chapter 1115 apply.
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Rehabilitation of existing structures
A. Wherever possible, examples of the city’s traditional commercial, civic, and
residential architecture should be preserved, renovated and, where appropriate, adaptively
reused. Specifically, the following guidelines should be observed:
B. 1. Where removed, a cornice or fascia should be restored to reemphasize the original
design intent of the structure and should be designed in proportion to the overall mass of
the building.
C. 2. The building’s original wall surface and detailing should be restored whenever
possible, and all exposed mechanical equipment, unused electrical apparatus, or sign
supports should be removed.
D. 3. Special attention should be given to the removal of storefront surface materials
that will extend onto the piers and walls of the upper façade.
E. 4.If new materials are to be used for buildings that are architecturally
undistinguished, they should be selected to coordinate with neighboring structures and to
complement the design of the storefront.
F. 5. The proportions of restored windows and the rhythm of the window pattern should
replicate the original façade design as closely as possible.
G. 6. Display windows of a storefront should never be filled or covered except where
there are residential uses abutting the sidewalk on the ground floor.
H. 7. On traditional buildings, recessed entrances are encouraged, and where entrances
are flush with display windows, awnings can be used to give greater definition to the
storefront and provide overhead protection. Awnings should be attached directly to the
building without requiring a support column on the sidewalk, have a minimum clearance
of 8 feet and a maximum clearance of 12 feet above the sidewalk.
I. 8. Loading and service entrances should be located at the rear and side of the
building.
J. 9. Trash containers, service areas, and storage areas should be screened and
maintained. In larger developments, trash collection, service areas, and loading areas
should be separated from main circulation and parking areas.
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New Development Infill
A. 1. The creek setback of new development should replicate the setback of existing
buildings to create a consistently developed edge, reinforce the city center’s urban
development pattern, and enhance pedestrian orientation.
B. 2. There should be no spacing between buildings, except a mid-block pedestrian
walkway would be allowed.
C. 3. Building height and massing should be compatible with existing development. The
building mass should be broken into increments that correspond to the scale and massing
of existing buildings through the use of such devices as setbacks and variable roof
heights.
D. 4. The location and articulation of building entrances should complement those of
existing buildings and should be oriented to street frontages.
E. 5. Street facades of new infill development should be organized into the following: a.
ground-level pedestrian presentation, and b. the upper architecture, with strong horizontal
elements separating the two.
Major New Development Over 25,000 square feet
The principal challenge in designing major new downtown development projects is the
successful incorporation of large-scale and/or high-rise structures into the existing
context of smaller-scale buildings.
A. 1. Unarticulated forms and masses should be avoided in new larger-scale
development. Instead, the building should be broken into increments that relate to the
human scale by using such devices as fenestration, architectural detailing, variable
setbacks, and rooflines to define a sequence of bays and provide transitions in height and
scale. Multi-block mega-structures that erase the street grid and weaken the basic urban
block structure are discouraged.
B. 2. Blank wall areas at the sidewalk edge may not extend for more than 25 horizontal
feet without articulation, such as a window, glass-covered display area, entryway, or
recessed area.
C. 3. To counter high-rise impacts, the use of reflective glass at ground level should be
avoided so that the building base meets the ground in a manner that is more inviting to
the public.
33
Controls designed to preserve solar access to streets and public spaces and measures
that help minimize wind tunnel and down draft effects may also be considered.
D. 4. Maintain pedestrian connections and view corridors along traditional street rights of
way when a project spans several blocks (mega-structures) providing for a sequence of
public spaces and walkways that are linked to the street grid
Façade Materials and Colors
See Sec. 1109.0500 for building facade material and color standards.
Parking
Parking should be limited to structured facilities and on-street parking. Parking structures
located on pedestrian routes should accommodate streetscape-related improvements, such
as, entertainment, storefronts/retail and/or landscaped treatments, to soften the structure.
Additional surface parking lots are are to be discouraged outside of several small
municipal lots to service the needs of trail users.
Streetscape
A. 1. Street trees to the satisfaction of the Department of Parks, Recreation and Forestry;
light standards; street signs; etc. should be placed so that the trees are between the street
lanes and any pedestrian walkway. Moveable seating is preferred to seating that is
permanently anchored to the sidewalk.
B. 2. Trees should be spaced at distances so that each tree can attain the appropriate form
and shape at maturity. This could range between 30- and 40-foot spacing for large trees
and 15 to 25 feet for smaller trees. Trees should not be planted directly in front of
entrances or other significant architectural features.
C. 3. Any walkway or public spaces specially designed to enhance pedestrian movement
should not use plain asphaltic pavements for the walking surface or use tiles or similar
surfaces that can become slippery when wet.
D. 4. Existing and future transit stop locations should have ample space for patron
amenities and waiting.
Exemptions
The Plan Commission may exempt all or parts of the design standards in this section for
commissioned buildings by an architect for a site when, in the opinion of the Plan
Commission, the design constitutes a unique, one-of-a-kind building that meets the intent
of these design standards.
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1103.806 Relationship to Comprehensive plan
Review of proposals for physical change or demolition must be based on the
Comprehensive Plan and any other additions and amendments thereto as may be
approved by the Plan Commission and City Council.
Review and Approval Procedures
See Sec 1111.0900
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Chapter 7: The Concept Plan
The concept plan is for a riverwalk project in the Swan Creek corridor that will
encompass the land between the Erie St. Market and Libbey High School. (Please see
Appendices A and D) The Riverwalk would be on both banks of Swan Creek. The
riverwalk, at its most basic level, is a multi-purpose hike/bike path. The path itself will be
twelve feet wide for the section designed to be actively used for moving people. This will
allow seven feet for people moving in both directions. There would be an approximately
twenty-eight-foot open area easement directly off the walking path. This would be set
aside for picnicking, sidewalk dining, etc. This area could be punctuated by plazas,
bandstands, garden areas, etc. The idea is to have active-use areas directly adjacent to
passive-use areas. The sidewalk dining would directly service the needs of active users of
the trail as well as provide extra eyes and ears, which will improve safety. The active-use
areas would be paved with concrete or asphalt depending on hydrologic conditions. The
passive-use areas would be grass or paved with pavers, preferably brick or cobblestone
but possible cement “brick” pavers, depending on availability of funds. This difference in
textures would help delineate the different uses occurring adjacent to each other. Suitable
street trees would be planted to provide shade and give a sense of atmosphere in the
passive-use areas. Various passive and active recreation areas would be planned to add
vitality and activities to the trail.
Theme gardens would be planned. Such themes could include a natural garden, an
old-fashioned herb garden, a rose garden, a children’s adventure garden, a subtropical
36
garden, and a Japanese garden. Children’s play lots would be part of the project. They
would be small in scale and geared towards younger children. A skate park, featuring half
pipes and other features, could be a part of the project. Appropriately placed park benches
and other features would be installed for the comfort of the users of the trail. All publicly
owned areas of the trail would be heavily landscaped. The overlay would also provide for
elaborate landscaping of all adjacent publicly owned areas. Existing bridges would have
to be reconfigured along Swan Creek. New pedestrian bridges would need to be installed
at various locations to allow easier crossing of the creek.
The idea is that a mix of uses is permitted along the edges of the riverwalk
project. Mixed-use design would increase the number of people using the riverwalk at
any one time. This gathering of people will facilitate and improve the safety of the
project. By mixed use, I am suggesting various retail uses for the buildings on the ground
floor (i.e., cafés, pubs, etc.), office/live-work units on the second floor, and finally
residential units on a third and possibly fourth floor.
A possibility should be considered for the installation of a small marina for the
use of a live/work complex. The idea that everyone who lives fronting the riverwalk
should have some right of access for docking is an important concept. It makes this
project truly unique and without parallel in this part of the country.
There would also be dock space for water taxis as well as river/cruise/touring
boats. Ideally the riverwalk would be marketed as a unit along with the Docks and the
Marina District as part of Toledo’s downtown waterfront. People could arrive via the
marina at the Marina District from as far away as Windsor or Sandusky, eat at the Docks,
and then explore the riverwalk via a water taxi from the Docks.
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Goals and Objectives
To ensure future land use respects the natural and historic landscape of Swan
Creek.
To increase public access to Swan Creek.
To provide recreational opportunities for area residents and downtown office
workers.
To realize increased economic opportunities for the project area.
To improve the water quality of Swan Creek and improve habitat for urban
wildlife.
The objectives of the project are as follows:
To ensure future land use respects the natural and historic landscape of Swan
Creek. This includes having buffers between the creek and any new construction
to allow for a walking/bike trail and landscaping requirements that will not only
improve the beauty of the area but also provide food and habitat for urban
wildlife. Historic preservation is an additional objective this plan seeks. New
structures or additions/renovations should match the historical context of the area.
This would include use of natural materials such as stone or brick. In constructing
the riverwalk, dredging and cleaning of Swan Creek would occur throughout the
project area. This is required for boating purposes and would result in improved
water quality for Swan Creek. The proposed overlay district as well as the
architectural and urban codes would be additional enforcement mechanisms to
ensure preservation and improvement of the built and natural environment.
38
To construct the hike/bike trail from the Erie St. Market to Libbey High School.
The hike/bike trail is the essence of the riverwalk. All other activities derive from
the trail. Everything from gardens and skate parks to new economic development
activities comes from the riverwalk base.
To mitigate the impact of negative land-use activities. There are many negative
land uses occurring in the study area of the riverwalk. These include but are not
limited to brownfields and buildings not meeting current code requirements.
Illegal dumping and underutilized/abandoned properties are issues as well. The
proposed overlay and architectural and urban codes would be tools to clean up
these problems.
To provide specific economic benefits that derive from a destination that is
without compare within a several-hundred-mile radius. The riverwalk will be a
destination attraction along the same lines as Cedar Point or Put in Bay. In fact,
marketing this project as a Lake Erie West attraction would be a good idea. Many
of the visitors arriving at the riverwalk would be from outside Toledo and Lucas
County, and thus new money would be flowing into the region. Couple this with
the fact that the intricate scale of the riverwalk would encourage many small and
local businesses to locate here would be a powerful economic engine. Tax
revenue from property as well as sales and payroll/income taxes would be a boost
to the economy of the region.
While admittedly the riverwalk would probably receive its heaviest usage in the
summer months, it would be marketed as a year-round attraction. The idea of unified
39
marketing similar to a mall would help with this concept. Of course in the summer there
would be plenty of activities to pursue. Every weekend would produce a festival
atmosphere. Activities from the Fourth of July weekend to hanging out after Mudhens’
games would be a natural fit for the riverwalk. Art shows, summer concerts, and other
planned events will keep the area busy. During the fall season, people could visit the
riverwalk for fall color from purposely-colorful tree plantings. The area could come alive
for the Halloween season as well with a “haunted riverwalk,” including the possibility of
putting dry ice grindings in the River for fog, During the Christmas season, lighting up
the riverwalk could provide a third opportunity for community Christmas light viewing in
addition to the Toledo Zoo and International Park.
A possible winter carnival with ice carving and skating races down Swan Creek,
weather permitting, could be an additional draw. In late winter, the riverwalk could host a
St. Patrick’s Day party. This could even include dyeing Swan Creek emerald green. In
springtime, watching the cherries bloom could become a popular activity. The riverwalk
could be alive with color. A traditional May Day celebration, along with a late spring
outdoor book fair, could attract additional people for area businesses. The fact that this
would be a live/work community would provide additional business to proprietors during
the slower times in the off-months of the year.
40
Specific Funding Sources
Clean Ohio Revitalization Fund (CORF).
$1,000,000 (25% Local Match $750,000)
Clean Ohio Conservation Fund.
$6,250,000
Metroparks Land Acquisition Levy Funds.
$1,000,000
Total: $8,000,000
Proposed Cost of Project
The proposed cost of the project is broken down into several subcategories. The
mileage of the riverwalk is a total of 2.162 on the north side of Swan Creek and 2.119 on
the south side of Swan Creek. A paved 12’-wide riverwalk will cost approximately
$500,000 per mile. The total mileage of the riverwalk is 4.218 feet miles. This works out
to a total cost of pavement at approximately $2,100,000.00. For installation of the
pedestrian bridges, the cost works out to approximately $500,000 per bridge for a total of
$3,000,000. The estimated cost of right-of-way acquisition is approximately $50,000 per
acre. This works out to approximately $1,000,000.00. A one-acre parking lot placed at
the end of the trail on Hawley St. would cost approximately $150,000. Landscaping
costs for the project are estimated at $1,000,442 (please see Appendix G).
Landscaping = $1,000,442
Land Acquisition = $1,000,000
New Parking lot on Hawley = $150,000
Trail Installation = $2,100,000
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Bridges = $ 3,000,000
Total Projected Cost = $7,250,442
Proposed Ownership/Maintenance Responsibilities
I am proposing that the land needed for the Riverwalk be acquired by the City of
Toledo and held in trust by the Metroparks. The City of Toledo is well acquainted with
acquiring land for various projects. The Metroparks would hold title to the land and
would build the improvements necessary with help from the City of Toledo and Lucas
County Engineer. Patrolling of the area could be a joint Toledo Police Department (TPD)
and Metroparks responsibility. I would propose that day-to-day cleaning/light
maintenance be the responsibility of the City of Toledo until such time as a specific
Riverwalk Authority would be able to provide for such routine maintenance. Major
maintenance would be the responsibility of the Metroparks.
Recommendations for Further Studies
I recommend developing a specific form-based architectural and urban code for
the study area. There are many places where good resources can be found regarding
form-based architectural and urban codes. These codes provide a level of predictability to
an area that can’t be achieved by zoning alone. The idea behind form-based codes is
achieving a harmony of design.
Any project in this study area will require environmental studies. A phase I/II
environmental study is recommended for the study area. This would include elements
such as floodplain/wetlands issues as well as hydrologic issues dealing with the creek bed
itself. This study would also include a survey to identify any threatened or endangered
plant or animal species that might reside in the study area.
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A non-profit corporation called “Friends of the Swan Creek Riverwalk” should be
formed. This organization would pursue the development of the Swan Creek Riverwalk
and would be the day-to-day motivator ensuring the project is completed. The board of
such an entity should include members of the local business community, area non-profit
community activists, members of the public, one member from the City of Toledo, one
representative from the Metroparks, and one representative from Lucas County. Once
financially able, this organization would hire an executive director to lead its day-to-day
activities.
A Swan Creek Riverwalk Charette could be held in the summer of 2008. The Erie
St. Market would be a natural location to hold such an event. Invitations could be sent out
to area institutions of higher education, including the University of Toledo, Bowling
Green State University, Owens Community College, the University of Michigan, Wayne
State University, and The Ohio State University. Local high schools could also be
engaged. This would be an intensive 1 ½-day event. An arrangement could likely be
made to have a discount on a block of downtown hotel rooms for out-of-town students.
The great hall would be set up with aerial photos as well as ground pictures of the Swan
Creek study area. On Friday, the students and other participants would gather in the
evening to listen to a presentation explaining the nature of the project. The participants
would view a slide show of the study area.
Then a dinner (to be donated by local businesses as per the Walk Westgate
Charette) would take place at the Market. Participants will be grouped off in units of five
or six. Each group will have an experienced local facilitator. These groups will each be
given a section of the creek to investigate. They will go out with their facilitator to
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personally inspect each area. They will then have an intensive brainstorming session to
plan the future of each section. Depending on how many participants arrive, multiple
groups could investigate the same areas. The Westgate Village shopping center had a
similar charette in 2000 (DeBoer, 2000).
At the end of the Charette, the groups will each present their particular vision for
their portion of the creek. Finally, a group of computer design professionals will work
alongside all the groups, incorporating their ideas into an area-wide plan showing the
whole study area. Finally, in the weeks following the group presentations, the technology
team will scan and collate the projects into a website viewable format. This will be posted
so that all can see the results of the Charette.
A future area of study could involve the extension of the riverwalk down to
Highland Park. The main reason I did not pursue extension of the riverwalk to Highland
Park in this project is the fact that going west beyond the study area of the project
housing comes into the picture. The banks of Swan Creek become residential west of
Libbey High School. This residential setting involves different issues as opposed to
economic redevelopment of a depressed former industrial area with no housing stock to
speak of.
There are, however, several very good reasons for future research to pursue
extension of the Riverwalk to Highland Park. The number-one reason is the high-quality
nature of the facilities located at Highland Park. Highland Park has a large in-ground
swimming pool as well as a skate park. These facilities are real assets. If they can be
located at Highland Park, they do not have to be duplicated elsewhere such as Sterling
Field. Additionally, Highland Park has a baseball diamond and practice football fields as
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well as areas for passive recreation. Another reason to include Highland Park in the
Riverwalk system is that it would help tie in the riverwalk with this residential section of
South Toledo.
Highland Park was part of the original 1913 plan for a Swan Creek park. It, along
with Sterling Field, were the only pieces of that plan actually built. Finally, including
Highland Park within the Riverwalk system could provide justification for opening it up
for county Metroparks funding. It would be an important part of the riverwalk system,
even though it is owned entirely by the City of Toledo. This funding would help assure
that amenities such as Highland Park’s swimming pool could stay open for a new
generation of Toledoans and visitors to the riverwalk. Without going into specifics, any
connector between the currently proposed Swan Creek Riverwalk and Highland Park
would have to respect the existing housing stock of the area with as little appropriation of
residential land as possible.
This connector portion would be a simple hike/bike path heavily landscaped and
without any corresponding amenities or commercial areas adjacent.
The idea would be to connect the parts without disturbing neighbors any more than
necessary. It would be similar to the University Hike/Bike trail at this point. This trail
was also built through an existing residential neighborhood.
There is an existing Riverwalk in pieces from under the Martin Luther King
Bridge to the east edge of the Erie St. Market. This riverwalk could be improved and
connected to the proposed Swan Creek Riverwalk. This would provide a seamless path
along the Maumee River from the heart of downtown to the heart of South Toledo. A
related amenity that could be tied into the riverwalk is the proposed new Maumee River
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Metropark that would be adjacent to the High Level Bridge. A connector to the riverwalk
would help improve the accessibility to the new park. Also this would provide one more
connection between the Metroparks system and the riverwalk.
Designing the Riverwalk for Safety
It is anticipated that the hike/bike trail will be the first feature built. During this
time when there are no additional attractions to visit, the riverwalk should operate on a
dawn-to-dusk basis. Under the plan of joint management with the Metroparks, rangers
and bike/mounted police would regularly patrol the riverwalk. When the surrounding area
starts to fill up with businesses, appropriate lighting for safety as well as atmosphere
should be installed. The addition of businesses as well as residential units will provide the
much-touted eyes on the street (Zielinka & Dean, 2001).
The Riverwalk itself, along with any future accompanying commercial or
residential development, will be designed with safety in mind. The idea of a mix of uses
itself puts eyes on the street (Jacobs, 2007). The shops and restaurants in a mixed-use
development provide extra eyes and ears. Small shopkeepers are very protective of their
turf. Their business and the little bit of sidewalk or street or in this case Riverwalk that
they occupy. Also, the idea of programmed activities such as concerts and recreational
activities for children in the playgrounds is important. People gathering together fosters
safety and having activities they can look forward to increases this sense of safety even
more (Zielinka & Brennan 2001). The idea of public art is an important idea for fostering
a good urban environment. Also the public interaction fostered by the opportunities for
casual interaction could help foster an increase in social capital for our region as a whole
(Calthorp & Fulton, 2001).
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Public art can transform places such as the pillars of an overpass, which otherwise
would be a prime target for graffiti, into a source of community pride. The idea of
landscaping along the edge of the riverwalk adjacent to future commercial businesses can
improve people’s perception of an area. Giving adjacent businesses some responsibility
and input into the patch of landscaping adjoining their business could improve on this
concept. The pushcart vendors proposed for parts of the Riverwalk also contribute to a
sense of community and safety. These people are eyes and ears, and they also provide
welcome services to patrons of the riverwalk.
The hosting of book fairs, food festivals, etc. is an important way to contribute to
a sense of community ownership and pride in the riverwalk. These types of events bring
in people who might not normally use the riverwalk and allow them to discover it. They
can also be a welcome source of outside money. Finally, the idea of aggressive code
enforcement along with police/ranger/security presence is a very strong way of showing
that the community is interested and cares about the riverwalk. This will send a strong
message to possible criminals to move on.
Using the Riverwalk as a Boost to the Erie St. Market
The main parking area for the proposed riverwalk is the current Erie St. Market
parking lot. The Erie St. Market in the scope of this project is between the proposed
riverwalk and crowds leaving the ballpark or coming from Seagate Center or the new
arena. The Erie St. Market currently suffers from a lack of business, which in turn is
requiring the City of Toledo to subsidize part of its operating cost. It is outside the scope
of this project to make a judgment whether public markets should be self-supporting or if
they are justified as a public amenity and deserve some taxpayer support.
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Supporting Green Technology and Energy Efficiency
The riverwalk is a “green” project. The ideas of cleaning and dredging Swan
Creek, replanting the banks, and also encouraging people to use the riverwalk via hiking
and biking are all green ideas. Requiring as part of the overlay district that new
construction meet strong environmental standards is a good first step. Also, attempting to
produce at least a portion of the power required to operate the riverwalk system locally
should be a goal as well. Solar technology would be the obvious choice. Solar technology
is already used to power lights and traffic signs in a number of situations.
Benefits and Specific Recommendations for Certain Areas of the Riverwalk
The Swan Creek Riverwalk will benefit all the neighborhoods that it passes
through. It can be used by neighborhood children to bike ride as well as residents of the
warehouse district to bike and jog on. Also, people from around the Toledo area will be
able to drive to the parking areas and bike or jog. Because it’s in the Toledo Area
Regional Transit Authority (TARTA) service area, this project will be served by bus,
allowing citizens who do not have access to a vehicle the ability to enjoy this amenity.
Fishing and kayaking could be enjoyed as well.
The area near the Erie St. Market would be the first section of the Swan Creek
Riverwalk to be built. The actual riverwalk would start on the west side of the Erie St.
Bridge over Swan Creek. However, it could be started at Hawley Street and extended east
to the Erie Street Market if funding conditions warrant. The river would be dredged, and
the banks of the river would be cleaned up of any litter and then replanted with plants to
control erosion, provide wildlife habitat, and also provide beauty and visual interest. This
area would have an asphalt bike path 12’ wide on both sides of the river and then a
48
passive-use area 20’ wide immediately off the bike path (Fogg, 1981). The whole public
use area would have sensitive placement of trees and landscape materials. The trees
would shade the Riverwalk as well as providing a sense of enclosure (Duany, 2000).
On the Erie St. Market side, pushcart vendors would be allowed to sell food and
drinks. Being on the Market property, they would be responsible to and pay rent to the
Erie St. Market. The current parking area would double as a parking area for the walking
trail. Also, the current parking area could be used for block party-type events. An allweather kiosk would be set up near the trail and would offer maps, information, etc. This
kiosk would be staffed with personnel, possibly volunteers, during daytime hours. These
personnel would answer questions, help with minor issues, etc. The kiosk would also be
stocked with literature promoting downtown, in particular, and Toledo/Lucas County in
general, along with Metroparks and Toledo Parks literature.
The beginning of the trailhead, being more accessible to young children, would
have a water garden feature located here. Chicago has installed similar water features in
Millennium Park in Chicago (Wiland, Bell, & D’Abnese, 2006). This opening area also
would be an ideal spot for several pieces of public art. The current boat launch would
still be used for public pontoon boat tours as well as canoe rentals. The banks would be
landscaped, and the first of a number of pedestrian bridges would cross going north from
Clayton St. This would also be where the children’s garden would be located. This site on
the south side would be ideal for a mixed-use development when/if market conditions
permit. It is close to the market and the beginning of the riverwalk, is near downtown
business and social attractions, and is close to the Maumee for personal watercraft. This
site could possibly be workable for a small Marina or boathouse. There have been some
49
similar plans advanced for Berkeley California to open up some of their culverted
downtown creeks for mixed use development (Register, 1987).
Continuing upstream, the bike path on the south side of the creek would still
continue following the contours of the creek. This stretch is from St. Clair west to St.
Clair again. One of the theme gardens could be in this area. Towards the center of this
area, a pedestrian bridge would facilitate access. On the north side of Swan Creek from
the Erie St. Market west to Erie St., there are some fairly large parcels of land. This could
be ideal for redevelopment into a mixed-use commercial/residential area. An additional
small marina could be a possible addition as well. This area would be a good place for
another of the theme gardens.
On the south side of the river going west from the proposed mixed-use area, the
riverbank is relatively narrow and would only have room for the bike path/pedestrian
area. There is a little island of land on the south side. This could be one of the larger
theme gardens, possibly a rose garden. Being surrounded by the overpass, it would be a
small island of tranquility. Speaking of the bridges/overpass, there could be public murals
painted on the overhang and under the bridge as well as the pillars. This would not be
visible (and therefore not distracting) to traffic above, but would improve the river area.
The area directly to the west of Erie St. on the north side of Swan Creek could also be a
good candidate for a mixed use center/marina.
This is owned by the Lucas County Commissioners and the City of Toledo. Going
under the overpass for the expressway and having the walking path with lowmaintenance landscaping surrounding it would work for the best. Also, the area between
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the expressway and Anthony Wayne Trail on the north side of Swan Creek would be a
mostly natural area with a bike path cutting through it.
There is a fairly big parcel of land on the south side of the creek between the
expressway and the trail just north of Collingwood. This is owned by the City of Toledo
and would be a good place for a park. There would be some noise issues, which would
limit the use of this land for housing. Also, the amount of parking required for
commercial use would be hard to accommodate in this location. This park could have
many features. One feature is one or more high-quality shelter houses similar to Ottawa
Park in character. There could also possibly be a year-round small
police/substation/rangers office with attached indoor bathroom facilities. This area also
could have the Japanese garden mentioned previously. This park could also have a
children’s play area as well. This play area would have standard play equipment and
could have summer recreation programs for the children as well.
The area just west of the Anthony Wayne Trail is currently wooded with scrub
and is unkempt. This area would be planted with high-quality trees, including pine for
year-round interest, and would be a part of the previously mentioned park. The area
between the Anthony Wayne Trail and Collingwood on the north side of Swan Creek is
currently in private ownership and has a light industrial use. At this time, the plan for this
area would include a hike/bike path along the associated passive use strip. Long-term
plans could include development of a high-quality mixed-use destination/employment
center. This could include multi-level buildings to take advantage of the view from this
area. The area south of the creek west of Collingwood is an older mobile home park with
older mobile home units. This property is approximately 7.42 acres. Short-term plans for
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this area would include installation of the bike path and associated passive use area.
Long-term plans could include a mix of high-quality 3-to-4-story brick apartment/condo
housing.
The area could be redeveloped in a way as to have a number of units available for
low- to moderate-income residents as to avoid displacement of the existing population.
The rest of the units could be market rate. There could be 90-100 units, based on market
demand, with ample green space and landscaping. The area on the north side of Swan
Creek from Collingwood to City Park is well maintained light industrial. Short-term
plans would include a bike path and associated passive-use area and the herb garden.
Long term, this would be a good area for an employment center that could specialize in
call center or other computer-related fields.
Having a large housing area across the street would make this a convenient
employment center. One of the mentioned pedestrian bridges would cross at the bend of
the river. The poorly maintained junkyard on the south side of Swan Creek should be
cleaned up and replaced by the subtropical garden. This is currently an eyesore, and the
greenhouses would bring year-round visual interest and activity to the area.
A standard bike path would continue behind the greenhouses. The area on the north side
of the field is currently industrial and then there is some housing towards the west end of
the park. At this time, I would propose the bike path/passive use area and also some
cleanup/code enforcement on surrounding properties for aesthetic/environmental reasons.
For the park itself, I would build the walking/bike trail and heavily landscape the
perimeter. There is an old existing park maintenance building on-site. This building
52
should be razed and a multi-purpose maintenance building/visitors center be built as a
replacement.
This park is the single largest piece of open space in the riverwalk, and it should
be utilized to the greatest extent possible. To increase the accessibility of Sterling Field, I
would propose pedestrian bridges on both the north and park sides. On the south side of
the park, there is a very poorly maintained industrial area. Besides the standard trail
installation, this area should be acquired and Sterling Park extended to this area. It
appears to be an area that could have environmental issues. Once cleaned up, a passive
walking area/dog run would be a good complement to the active-use aspect of sterling
field. The area south of the railroad tracks and south of Swan Creek is already used for
industrial purposes and currently could be planned for a bike trail/passive strip use. There
are no recommendations to change the use of this area at this time. On the north side,
extending the bike trail/passive use area would be the prime recommendation along with
the cleanup of the junkyard in back of Whittier.
Whittier is a low socio-economic yet very neighborly street. A Model Block-type
program, along with improving the street infrastructure of Whittier itself, would be a wise
decision. Long term, after installation of the riverwalk, Whittier could be extended
another block with market-rate housing installed. This housing would be in demand due
to the vibrancy of the riverwalk. This could be as long as ten years after installation of the
riverwalk. Coming to Hawley Street, we near the end of the riverwalk. The riverwalk
from this point west would be a nature trail. It would extend about a block westward from
Hawley on both sides of the creek. Future studies could extend this to Highland Park.
53
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