Category: I-277

Here’s one list Charlotte isn’t on – and ought to be

Syracuse is yet another city where advocates are pushing to tear down a section of elevated interstate highway (in this case I-81) and turn it into a boulevard. “What we’ve done is take an incredibly important piece of this city off of the development map,” developer Robert Doucette tells Governing magazine. “This highway runs through the part of the city that should be some of the highest-producing parcels of land in the region.”  (See Why Would You Have a Highway Run Through a City?)
The article lists New Orleans, which got federal funds to study removing the Claiborne Expressway, Cleveland, New Haven and Detroit as either moving toward or studying urban highway removal. Among the comments, one mentions Buffalo as also discussing the fate of its skyway, which cuts through a waterfront area. (The whole comments section itself is an interesting pro-con discussion.)
The article notes that one factor in the teardown trend – or more accurately, the teardown wannabe trend – is the age of the highways. Most were built in the 1950s and 1960s and are aging out.  Charlotte’s uptown freeway loop

was planned in the 1950s, and many of its interchange designs are notoriously outdated. The first leg, the Brookshire Freeway, opened in 1971. The other leg, the Belk expressway, finally completed the loop in the 1980s.

City planners and uptown boosters have puzzled over creative ways to try to turn those bleak underpasses below I-277 into something more welcoming than the current concrete spaces. (The one near Johnson C. Smith University has some colored lights.) And the gulch where the Belk expressway goes below grade, between uptown and South End/Dilworth, cries out for a freeway cap.
Before anyone moans about there being no place for the traffic to go, remember that when cities tear down elevated freeways, they usually replace them with other high-volume streets, designed for use by pedestrians as well as motorists. In other words, folks, there WOULD still be streets to carry the traffic.
Despite intermittent grumbling among planners and a study by Charlotte’s DOT during the Center City 2020 Vision Plan process of whether the Brookshire section could be boulevard-ized (CDOT was dubious), there’s been little push to tear down the loop highway strangling uptown Charlotte. Too bad. That’s one list it would be great to get on.

When it comes to I-277 cap, bold Charlotte gets timid

I-77 is one side of the noose encircling uptown Charlotte.(Photo by Nancy Pierce)

If you think it’s too bold, too “out there” – too gutsy – to seriously plan to put a roof atop part of the freeway encircling uptown Charlotte, consider what’s up in St. Louis. As Eric Jaffe in The Atlantic Cities website describes in “Should We Be Thrilled Or Disappointed by St. Louis’ New Highway Park?” other cities think freeway capping is too timid. (Charlotteans might note the appearance of former Mayor Anthony Foxx, as transportation secretary, at the groundbreaking in St. Louis.)

The article notes that the “Park over the Highway” (aka “the lid”) is part of a $380 million project to connect the rest of downtown St. Louis to the Mississippi River, funded by a mixture of public money (federal grants and a voter-approved local sales tax) and private contributions (via the CityArchRiver foundation).

But in St. Louis, it seems, the local debate is not whether it’s a waste of money to build a park downtown on top of a freeway, but on whether the freeway itself should just, well, go away, and turn into a boulevard.

“On the contrary, some local observers see the ‘the lid’ as a bandage for the urban interstate, when what’s really needed is reconstructive surgery. Rather than toss a green carpet over I-70, they would prefer to knock down the highway completely and construct grade-level boulevards in its place — truly integrating city and riverfront.” Indeed, as Jaffe reports, “Writing at Next City in April, city alderman Scott Ogilvie pointed out that nearly every public comment about the current ‘Park over the Highway’ project supported further study of the I-70 demolition.”

What are we to make of this in the Queen City? We have a highway (Interstate 277, with a leg of I-77) that encircles our uptown, cutting it off from all the surrounding neighborhoods. This highway was planned in the 1950s! That was when Le Corbusier was envisioning cities of nothing but towers, lawns and highways (and apparently he never envisioned parking lots, but that’s a topic for another day), and when Robert Moses was gutting New York neighborhoods for highways, until opposition finally stopped him. But here in the QC our highway didn’t even get finished until the 1980s, by which time other cities were seriously questioning this technique of strangling their downtowns. And, yes, it gutted plenty of Charlotte neighborhoods as well, but they were mostly poor, so city fathers paid little heed to any protests they might have raised.

It was the mid- to late 1990s when I first heard the idea to cap a part of I-277, the part that’s below grade from about Church Street to Caldwell or Davidson streets,  So … why is St. Louis so far ahead of Charlotte on this endeavor?  OK, maybe it’s that giant, extraordinary river just beyond their freeway. Nevertheless, it’s past time for Charlotte to get its act in gear on this. We may not have the Mighty Mississippi and the Gateway Arch, but we have a wonderfully reviving uptown, surrounded by some great neighborhoods. We have Little Sugar Creek, and its greenway is pretty much blocked by the I-277-U.S. 74 spaghetti-bowl junction.  Is a cap better than boulevard-ization? I don’t know, but I do know either would be better than what we have now. Since when has Charlotte become so timid?

A new look for South Tryon Street

It’s little things like this project that will add up, over time, into a much more pleasant experience for people walking into and out of uptown Charlotte from South End and Morehead Street. Here’s a photo of the newly widened sidewalk on South Tryon Street on the bridge over the I-277 freeway.

It used to be a stark, back-of-curb concrete sidewalk where you had to choose whether to get uncomfortably close to traffic or uncomfortably close to the railing where you could look down and see where your body would splat if you leaned too far. (Technically, the railing would have protected you from falling, but the place still felt dangerous.)

The city of Charlotte oversaw a project to shrink the number of travel lanes, widen the sidewalks from 5 feet to 12 feet and add bike lanes. A few cosmetic improvements include changing the railing and adding pedestrian-scale street lights.

The project cost, including design, was $2 million. The bridge over I-277 is state-owned, so the Charlotte Department of Transportation worked with the state DOT, which had to approve the changes.

Here’s a piece I did in 2010 about the project. You can decide for yourself whether the reality looks like the drawing that envisioned the project then.

A ribbon-cutting will be at 10 a.m. Tuesday (June 19).

Photo: Courtesy of City of Charlotte

What’s next for new greenway? Consider this …

I popped in Tuesday to the public workshop on possible changes to the Interstate 77-Interstate 277 uptown freeway loop. (See “Changes ahead for uptown Charlotte freeway.”)  As I looked over the maps and nosily read other folks’ comments on various sticky notes, I spotted this scrawled on a large flip chart set up for written comments:

“PLEASE put greenway connecting under Independence to connect new CPCC expansion w/Cordelia Park.”
 

A few feet away, I spotted Gwen Cook, the Mecklenburg County Park and Recreation Department’s greenway planner. I asked if that was her suggestion, I asked. She chuckled and confessed..

The issue is a thorny one. You can walk on the greenway all the way from behind Park Road Shopping Center through Freedom Park, past Central Piedmont Community College and up to East Seventh Street. There, the greenway is halted by a tangle of freeway ramps going under-over-around-and-through, as I-277 meets with U.S. 74 (Independence Boulevard), forcing both Seventh Street and Central Avenue onto bridges over the freeway traffic. From the Seventh Street bridge you can see Little Sugar Creek far below, except where it’s been forced into culverts.

But as the crow flies it’s just a few hundred yards (well, maybe a little more) to where the greenway picks up again at 12th Street and heads north to Cordelia Park at North Davidson Street and Parkwood Avenue. (Here’s a link to the park department’s greenways page, with maps.)

From what Ive been told, there’s no official plan at this point for how to connect the segments.  So, I asked Cook, what would you really like to see? Her idea: Build an iconic bridge that would weave over and under the highway ramps and lanes.

I can almost see it now – a visually splendid bridge soaring and swooping across the chasm of highway, with bright colors and sharp design. Other cities have found donors or tourism tax dollars to build one-of-a-kind bridges. (Click here to see the Greenville, S.C., pedestrian bridge) Below is the Santiago Calatrava-designed Sundial Bridge at Turtle Bay in Redding, Calif., built with help from a local foundation. (Photo courtesy of Wikimedia Commons.)

Why Charlotte needs that ‘noose’ study

As expected, the Charlotte City Council on Monday approved the measure to allow a study of the uptown loop and all its interchanges. As I wrote in Time to neuter that noose around uptown Charlotte? the idea to put a cap onto part of Interstate 277 (leaving the highway there, but creating usable space above it) has been proposed since at least 1997.

During discussions for the Center City 2020 Vision Plan, the idea was broached of converting the section of the loop at the north end of uptown into a boulevard, although the final plan only recommended further study.

I checked with Charlotte Department of Transportation’s manager of planning and design, Norm Steinman, about the I-277/I-77 study. He pointed out that the study – which might or might not end up making recommendations for a freeway cap or boulevardization – is needed for a more essential reason. It’s been at least 40 years since the I-277 loop was designed, with its early alignment concepts more than 50 years old. “Obviously,” he said in an email, “a lot of growth has happened since then.” The NCDOT and the Federal Highway Administration essentially have said no more changes can happen to any of the I-277 interchanges without a study.

“For the first time in 50 years we’re taking a look at what should be done,” Steinman told me.

I have in my possession a copy of the 1960 master highway transportation plan for the city of Charlotte, prepared by Wilbur Smith and Associates. It shows the route for I-77 and for a loop around uptown a lot like what eventually opened in the 1980s. (It also shows the Independence Boulevard Freeway, which remains unfinished. Gee.)

Atop this blog is a not-great-quality cellphone photo of that map. Notice how similar it looks to today’s configuration. The study is dated April 1960, so the designs for I-277 must be more than 50 years old. Goodness knows how old the original concept is.

Another highway-street design tidbit: Monday night the council also OK’d a “roadway classification study” for the Brookshire Boulevard and W.T. Harris Boulevard. This is deep in the weeds of transportation policy, but it could be potentially significant. The classification for roadways affects lane widths, speed limits and whether, for instance, they’d have bicycle lanes and sidewalks, which aren’t appropriate along a freeway. The study is necessary, the agenda says, because these two roadways today contain a variety of different roadway classifications, and “are being affected by discrete land development and transportation investment decisions.”


And, let me add, both are high-volume city corridors that, today, look like highways but cut through neighborhood and commercial areas that maybe would be healthier if they weren’t next to freeway-style highways?  But that’s just me ….

Time to neuter that noose around uptown Charlotte?

Is Charlotte finally making a move toward taming the uptown noose – I mean, the uptown loop? The freeway encircling uptown, made up of Interstate 277 and a section of Interstate 77, strangles uptown, eliminating easy pedestrian and bicycle connections and creating bottlenecks for traffic flow into and out of the center city.

It was Feb. 15, 1997, (but who’s counting?) when I first heard the idea to cap the below-grade section of I-277 between South End and the south part of the center city. The idea keeps being proposed, and being dismissed as too expensive, or too difficult. But it’s a great idea that deserves serious study.

Now, at last, something may be happening. The Charlotte City Council tonight is supposed to vote on an agreement with the N.C. Department of Transportation to launch a study of the whole uptown freeway loop. Here’s a link to the city council agenda. Go to agenda page 19.

Despite misgivings, capping a freeway, or more precisely, sending it through a tunnel, is comparatively inexpensive and has been done in many other cities. It’s neither revolutionary nor extreme.  It is NOT as expensive as digging a tunnel, a la Big Dig in Boston. The digging took place years ago, before I-277 opened in the 1980s.

Other cities are going further, pushing to turn old freeways into high-volume boulevards, which can move plenty of traffic but are designed so that shops, restaurants, housing and workplaces can grow along their sidewalks. The classic example of a high-volume boulevard is the Champs Elysees in Paris. Here’s a list of other projects, some still in planning phases.


Uptown needs better connections to neighborhoods around it, and this includes street connections. If you ever drive in from south Charlotte on a weekday morning you’ll probably hit a tie-up on Providence Road as it nears uptown, and on Third-Fourth streets  or Seventh Street. You may wish longingly for more connecting streets into uptown, which would divert some of the traffic load onto those other streets. (Morehead usually isn’t as crowded, nor is Stonewall, but they apparently are too far from the center of uptown to get as much of the traffic load.) We could use more connections via Second (MLK Boulevard), Fifth, Sixth, Eighth and Ninth streets, but I-277 and its spaghetti bowl interchanges block those possibilities.

Back to the freeway cap: I know the date was Feb. 15, 1997, because I first heard the idea at an all-day workshop organized by the old Charlotte Urban Forum public interest group. Open to the public, the event was to draw up possibilities for redesigning uptown. The impetus was an ill-considered plan to build a new arena uptown (that part was OK) and “development,” drawings for which resembled a suburban shopping mall plopped into the city.

The workshop had no official purpose, but we did get then-Mayor Pat McCrory to drop by, as well as some planning commission officials (the commission was one of the sponsors) and some of the developers and uptown boosters calling themselves 24-Uptown Partners. The Partners’ goal was to build that arena and shopping center-esque “entertainment complex” – well-intended but clumsily suburban in its proposed execution.
 In order to write the preceding paragraph, I looked back at the 1997 articles I wrote for the Charlotte Observer and spotted some interesting notes of what had been proposed at that workshop. How about the idea of a NASCAR museum? Hmmm. That may fall in the category of “be careful what you wish for., because you may get it.” The list contains so many projects that were built in the next 10 years that in hindsight I wonder how many of the architects and developers there already knew what they were planning?

Among the other discussion topics were, and I warn you that these will sound familiar:
• Put more housing uptown.
• Mix uses, not just on the same block, but within a building, so that the vacant areas of uptown fill with five- or six-story buildings with retail space on the street, offices above, and housing above that.
• Expand the trolley system.

But here’s a list of some of the ideas that, at the time, I characterized as not among the predictable ones:

• Bury I-277 where it crosses South Tryon and fill the land created atop it with mixed-use, five-or six-story buildings.
• A NASCAR Museum next to the NFL stadium, with condos topping the museum. [The NASCAR Hall of Fame opened on Brevard Street in 2010, and has drawn far fewer visitors than projected, losing money.]

• Put housing back into Second Ward, where the old Brooklyn neighborhood was demolished for urban renewal. [A development deal to do this stalled after the crash of 2008.]
• Move the Amtrak station from North Tryon to West Trade. [This is in N.C. DOT rail plans.]• Put a convention hotel next to I-277. [Done.]
• Convert the old convention center to a museum or city market. [Old convention center was demolished to build the EpiCentre, a slightly more urban-style entertainment complex than was envisioned in 1997. It’s tied up in an acrimonious bankruptcy case.]• Rehabilitate the Carolina Theatre.[Not done. But not demolished, either.]
• Concentrate retail on South Tryon Street. [Other than art museum gift shops, little retail beyond restaurants has come to South Tryon Street.]
• Build a zoo. [Insert quip of your choice here.]

In looking at my 1997 articles I noticed that other sponsors of the workshop were the UNC Charlotte College of Architecture, the Charlotte chapter of the American Institute of Architects, and the UNC Charlotte Urban Institute, my current employer.

Less highway, less congestion – no, really

Uptown thinking, Part 2:

Some counterintuitive thinking comes in this blog item (link) about three cities (Seoul, South Korea; San Francisco; Portland, Ore.) that tore down four mid-century freeways and found congestion didn’t get worse.

I’ve heard one highly placed uptown executive muse privately about the prospect of tearing down the Interstate 277 loop that encircles (and isolates) uptown Charlotte and replacing it with a boulevard. I think it’s a great – albeit very expensive – idea. (And of course you’d recycle the concrete.) Maybe it’s a public-private partnership kind of proposition, as it would create more on-the-tax-rolls land for development. Witness the city/state deal reconfiguring the Brevard Street/I-277 interchange into a smaller ROW footprint and selling the land to private owners. A smaller I-277 footprint puts land back on the tax rolls. Just as important it removes those vastly overbuilt, Robert-Moses-woulda-loved-’em interchanges, designed for the middle of farmland, from the heart of the city’s most pricey real estate.

If you agree, please make sure the idea emerges during the upcoming Center City 2020 Plan process. After all, it was a remark at a Center City 2010 public workshop by the late Dave Ritch – picked up and championed by then-City Council member Lynn Wheeler among others – that led to the uncapping of Little Sugar Creek and the greenway along Kings Drive. Ideas with champions really do make a difference sometimes.

Uptown thinking, Part 1 is yesterday’s item (link) about Rome, the Pantheon, and Charlotte.