"In presenting the dissertation as a partial fulfillment

of the requirements for an advanced degree from the Georgia Institute

of Technology, I agree that the Library of the Institution shall make
it available for inspection and circulation in accordance with its
regulations governing materials of this type. I agree that permission
to copy from, or to publish from, this dissertation may be granted by
the professor under whose direction it was written, or, in his absence,
by the dean of the Graduate Division when such copying or publication
is solely for scholarly purposes and does not involve potential
financial gain. It is understood that any copying from, or publication
of, this dissertation which involves potential financial gain will not
be allowed without written permission.
 RIVERFRONT IAND-USE PLANNING IN

URBAN AREAS

A THESIS

Presented to

the Faculty of the Graduate Division

t>y

Frederick S. Kerpel

in Partial Fulfilljnent

of the Requirement for the Degree

Master of City Planning

Georgia Institute of Technology

May i960
 RIVERFRONT LAND-USE PLANNING IN

URBAN AREAS

Approved by:

^7 ^ ^
Malcolffl G. UVfiLe, Jr. ^
J5 Advisor

O
u

g Howard K. Menhinick
Reader
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Carl E. KLndsvater
^ Reader
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 ii

ACKNOWLEDGMENTS

The author wishes to thank Professors H. K. Menhinick and M. G.

Little, whose guidance and council concerning the organization and

writing of this thesis were invaluable. Thanks are also expressed to

Professor C. JS. Kindsvater for supervising this thesis.

Gratitude is also due to Mr. Aelred Gray of the Tennessee Valley

Authority, Knoxville, Tennessee; Mr. D. P. Billard of the U. S. Army

Corps of Engineers, Atlanta, Georgia; and the personnel of the Library

of the Georgia Institute of Technology for their aid in obtaining

information needed for this study.

A special note of gratitude is due to the author's wife, whose

effort and patience made this course of study and consequently this

thesis possible.
 ill

SUMMARY

Riverfront lands in urban areas which have been allowed to

deteriorate over the years have again become important because of a

demand for this waterfront land by water-related uses. These water-

related uses, particularly the ones that require deep-water frontage,

are often finding riverfront lands pre-empted by uses that do not

require the use of the river for their operations.

Since riverfront land in most cities is scarce, it would seem

advantageous for a city to reserve this land for those water-related

uses for which a riverfront location is necessary. Among these uses

are: industry that uses the river for shipping of finished goods and

raw materials; industry that requires large amounts of water that can­

not be pumped economically; recreation in the form of marinas and

swimming areas where water conditions permit; and utilities plants such

as water and sewage treatment and gas manufacturing. In addition,

there are certain riverfront lands subject to floods which preclude the

construction of buildings on such land. This land, however, can be put

to use for recreation and agriculture or other open type uses.

Planning a riverfront requires some special studies of physical

conditions, river transportation potential, recreation needs and land

use. All of these studies have a vital role in arriving at a future

plan for the riverfront. The tools with which to carry out the future

plan include zoning ordinance provisions, an industrial development

commission, a public-works program with Joint federal participation

that would include filling and dredging operations and construction of

protective works.

After many years of disuse, riverfront lands may again become

Important to many cities. It Is hoped that this study will aid in the

future development of riverfront land in a unified and orderly fashion

so that a city may take advantage of one of its most valuable and

natural assets.
 TABLE OF CONTENTS

Page

ACOOWIiEDGMBNTS ii

SUMMARY iii

LIST OF ILLUSTRATIONS vii

Chapter

I. INTRODUCTION 1

II. APPROPRIATE LAND USES ON RIVERFRONTS 6

Uses Utilizing Commercial Navigation 7
Terminals
Terminal Facilities
Recent Innovations in Cargo Handling
Rail and Highway Connections
Industrial Uses
Types of Industry
Site Requirements
Uses Utilizing large Quantities of Water 17
Industrial Uses
Agricultural Uses
Utilities Plants
Uses Utilizing Access to Water 20
Barks
Pacilities
Highway Access
Site Requirements
Marinas
Site Requirements
Facilities
Uses Utilizing Visual Access 2k
Residential Use
Parks and Recreation Use
Uses Subject to Only Minor Damage from Floods 26
Permissible Usee in Floodway
Commercial Uses
Barks and Recreation Uses
Agricultural Uses
Permissible Uses in Impounding Areas
Commercial Uses
Barks and Recreation
Summary • 29
Chapter Page

III. RIVERFRONT PLANNING PROGRAM 30

Physical Studies 30
Shoreline and Channel Study-
Flood Study
Pollution Study
Transportation Studies < 31
Railroads
Highways and Major Street Study
River Terminal Study
Other Planning Studies • 3^-
Park and Recreation Study
Land Use Study
Tools to Carry Out the Riverfront Plan 3T
Zoning
Subdivision Regulations
Industrial Development Commission
Urban Renewal
Public Works
Official Map
Capital Improvement Budgeting
Summary • K6

IV. CONCLUSIONS AND RECOMMENDATIONS kf

BIBLIOGRAPHY ^9
 vii

LIST OF ILLUSTRATIONS

Figure Page

1. Map of Inland Waterways 3

2. Drawing of Relationship of Pierhead and Bulkhead Lines .... 10

3. Contour Map of a Section of the Cincinnati Riverfront 38

4. Future Redevelopment of an Area Subject to Only Minor

Damage from Floods • 39
 CHAPTER I

INTRODUCTION

In the past decade, numerous cities lying on inland waterways of

the United States have taken a renewed interest in their riverfront

lands. This interest has been fostered by the increased demand of

water transportation and of industrial and recreational uses for river­

front lands. In many instances, large amounts of waterfront land have

been so haphazardly developed as to be virtually useless for such

purposes; in others, development has been neglected.

The revival of commercial navigation on inland waterways has

helped bring these problems into sharper focus. For many years, Inland

waterways were the major transportation routes because a network of

railroads and highways was not yet in existence. With the development

of the steam engine and the building of railroads, commercial naviga­

tion declined sharply. The development of the trucking industry and a

comprehensive system of highways also had a deleterious effect upon

commercial navigation. In recent years, however, commercial navigation

has been growing at a steady rate; the growth has resulted chiefly

from two new technological developments, dlesel power and radar (l).

The development of larger, more powerful dlesel engines has made

possible towboats capable of moving large numbers of fully loaded barges.

The development of radar has eliminated the need to anchor at nightfall

or during a heavy fog. These developments have enabled shipping

companies to offer faster service and much lower transportation rates

for certain commodities than rail or truck companies* Low water trans­

portation rates are possible chiefly because of the large amount of

cargo a tow of barges can carry at one time. For example, over three

million gallons of fuel oil—the equivalent of four hundred railroad

cars--have been transported in a single tow. Bulk cargo makes up the

majority of the tonnage shipped on the inland waterway system at

present; however, manufacturers of finished goods are also beginning to

take advantage of water transportation.

This interest in low-cost transportation and the realization

that the inland waterway system can provide access to many major indus­

trial and agricultural areas as well as access to areas providing raw

materials have helped accelerate the improvement of many navigable

channels. Large portions of many rivers, including the Cumberland,

Delaware, Hudson, Illinois, Mississippi, Missouri, Ohio, and Tennessee,

and sections of many lesser rivers are now navigable as a result of

improvements made during the course of the last few decades. With the

Atlantic and Gulf Intracoastal Waterway, these rivers form an inter­

connected system over 10,000 miles long with a minimum channel depth

of nine feet. The newly opened St. Lawrence Seaway is an important

addition to the system.

Accessibility by boat to many sources of raw materials and the

low cost of transporting these materials have caused certain types of

industry to seek locations on rlverfronts. Those industries which do

not use the river for transportation purposes but require large amounts

of water in their manufacturing processes have also been seeking river­

front locations. The former type of industry usually requires

 3

L E G E N D

• • • |4 ' « T ( *

COURTESY OF U.S. ARMY CORPS OF ENGINEERS

FIG. I MAP OF INLAND WATERWAYS

(WITH INTRACOASTAL SYSTEM)
 k

deep-water frontage while the latter requires only a waterfront

location to facilitate the pumping of water to plants. The combination

user, one that uses water for both transportation and manufacture,

makes fullest use of the river potential.

Another waterfront use that has only recently become important

is recreation. The use of waterfront lands for marina development has

become a profitable venture because of the increasing number of boat

enthusiasts. Such marinas located in urban areas can be a decided

advantage for the city dweller who must otherwise drive many miles to

launch his boat* Swimming and water skiing are also becoming more

popular. On rivers where pollution is not a problem, these forms of

recreation are uses that require a waterfront location.

The demand for waterfront space by commercial navigation,

industry and recreation has presented cities with numerous problems.

Many cities have found that their available riverfront lands are

definitely limited and their deep-water frontage even more so. Further­

more, these lands, In many instances, have been taken over to a large

extent by inappropriate land uses which have no relation to or need for

a riverfront location. Many cities have found that the riverfront is

occupied chiefly by mixed land uses which are in a state of decay and

are of little value. In many such cases, only complete clearance and

planning can solve the problem. Even cities with less drastic river­

front problems and cities with virtually undeveloped riverfronts will

find it advantageous to study and plan for the future development of

their riverfront lands as a city's riverfront is a form of water

resource that should be utilized to its maximum extent.

 This study deals with appropriate land uses for urban riverfront

lands and a general program for urban riverfront land-use planning.

Some cities may find that they have space for all the principal types

of waterfront uses on their riverfronte, while others may find their

riverfront lands so limited that only one or two types of uses can be

considered. In any event, it is hoped that this work may serve as a

guide to local planning agencies.

 CHAPTER II

APPROPRIATE LAND USES ON RIVERFRONTS

Limited riverfront land in urban areas has in the past often

been monopolized by uses that do not require water frontage. To take

full advantage of the waterfront, planning for appropriate uses that

require a waterfront location should be undertaken. To facilitate the

planning for appropriate land uses on riverfronts in urban areas, the

classification of land uses and their water requirements should be con­

sidered, land available for waterfront development should then be

classified according to water depths and topography to determine where

river-related uses should be located. The classification of land uses

may be listed as follows:

1. Uses utilizing commercial navigation.

2. Uses utilizing large quantities of water.
3* Uses utilizing access to water.
k* Uses utilizing visual access.
5. Uses subject to only minor damage from floods.

Uses utilizing commercial navigation will require water depths at the

shoreline of 11 feet or more in order to accommodate fully-loaded

barges. Uses utilizing large quantities of water should be located

where shoreline water depths are at least five feet in order that in­

take equipment may be accommodated. Uses utilizing access to water

should have minimum water depths of five feet to accommodate small

craft. For uses that utilize the river for visual access, water depths

are unimportant so long as periods of low water do not leave exposed

mud flats. Uses subject to only minor damage from floods may be located
in the flood plain where water depths will vary with the severity

of floods.

Uses Utilizing Commercial Navigation

Terminals

Uses utilizing commercial navigation require deep-water frontage.

Terminals are used for loading and unloading cargo and for storage and

transfer of cargo to other means of transportation. Terminals fall

into two categories, those operated by water carriers or terminal

companies and those operated by and used solely by individual industries

along the river. The former usually handle general cargo; the latter,

usually handle only bulk commodities for use by the industries involved.

It should be pointed out that at present the majority of bulk commodity

shipments on the inland waterway system either originates or terminates

at industries along the waterways. The need for terminals, therefore,

is greatest where many industries are located on the river. Two

examples of this are found on the Tennessee River and the Illinois

Waterway. On the Tennessee River, there are five general cargo termin­

als available to all carriers as compared to 75 special purpose termin­

als (2). On the Illinois Waterway, there are 16 general cargo termin­

als available to all carriers as compared to 128 special purpose

terminals (3). It would appear that terminals operated for the trans­

fer of general cargo constitute a very limited use of the shoreline.

In order that a standard barge with a draft of nine feet may

anchor at a terminal, it is essential that water depth at that point

be 11 feet. Depths of up to at least 27 feet are necessary where

transfer to larger, deep-draft vessels Is desired, as on the St. Lawrence

waterway. In addition to adequate water depths, several facilities are

required for the operation of a terminal.

Terminal facilities.—The most important facility required in a termin­

al is the wharf from which ships will load or unload their cargoes.

Several types of wharf have been developed to meet differing shoreline

and channel conditions; they include the pier, the quay, and the dock*

Wharves generally extend into the water; the distance they extend will

depend upon the type of ships expected to dock, water depths, and other

channel conditions. However, there are restrictions on the distance a

wharf may extend into the water. The distance will depend upon the

location of bulkhead and pierhead lines established by the 0. S. Army

Corps of Engineers. The bulkhead line is the line to which any enclosed

or solid-walled wharf may be constructed; the pierhead line, which

usually extends farther into the water, is the line to which any open

wharf supported on piles or caissons may be constructed* The types of

wharves that may be constructed within these limits are numerous.

The most common type of wharf found in terminals is the pier.

It is particularly useful where shoreline frontage for wharves is

limited but the waterway is wide. The pier is simply an elongated

wharf which usually projects at a 90 degree angle from the shoreline to

a distance a little longer than the longest barge expected to use it.

The width of the pier may vary from 100 to 400 feet, depending upon the

facilities to be provided on the pier. The facilities on the pier us­

ually include a transit shed for the temporary storage of goods and the

apron. The apron extends from the transit shed to the edge of the pier
and may contain one or several railroad tracks in addition to space for

trucks. At a port terminus of an inland waterway, two piers are often

placed parallel to each other with water space between them. The water

space, known as the slip, should be wide enough to accommodate four

barges. This permits barges to load or unload on the off-pier side of

barges or ships anchored to the piers.

Another type of wharf is the quay which extends along the shore

parallel to the shoreline. This type of wharf is particularly useful

where the waterway is too narrow to permit the construction of a pier

or a series of piers (4).

Special types of wharves are usually constructed where there

are large fluctuations of water level caused by tidal action or flood

control. Along rivers where water-level fluctuation may be substantial

for extended periods of time, paved, sloping levees, wharf boats, and

multi-level transit sheds may be used (5).

A recent innovation utilizes caissons and covered barges. In

this system, two parallel rows of widely spaced caissons are sunk into

the river bed. Rings attached to the sides of a float slide up and

down on the caissons as the water level fluctuates. Such a float may

be a covered barge. The caissons thus serve as a vertical guide and

also prevent barges from floating away. This wharf may be made up of

a number of floats which serve the double purpose of providing storage

area and a place to load and unload boats. Boats anchored to the

wharf can be unloaded by a self-propelled, portable crane which trans­

ports the cargo to a storage area on land or places it directly on

 R IVER F R O N T LAND

QUAY ^ SHORELINE

PIER ^BULKHEAD LINE

^PIERHEAD LINE

LINE OF NAVIGABLE CHANNEL

FIG. 2 DRAWING OF RELATIONSHIP OF PIERHEAD AND BULKHEAD

L INES
o
another conveyance. In an article in the February, 1959, issue of

Civil Engineering such a wharf is dealt with, and an installation on

the Gironde River in France is described.

One other type of wharf deserves mention—the off-shore wharf.

This type of wharf is constructed perhaps several hundred feet, or

more, from shore to permit the loading or unloading of larger deep-

draft vessels where water depths at the shoreline are too shallow to

accommodate such vessels. Cargo is taken from the wharf to shore

either by a system of belts or an aerial tramway. An off-shore wharf

is particularly suitable where the river widths are great and where

the wharf will present no hindrance to navigation.

An off-shore wharf was recently constructed on the Mississippi

River near Baton Rouge, Louisiana as part of a new port development (6).

In addition to the wharf facilities required, numerous mechani­

cal devices to facilitate cargo handling are also needed. Hoists of

various sizes are found on many ships but additional hoisting equip­

ment is needed on the wharf. This equipment is generally a crane

operating on tracks placed on the apron of the wharf. Also very

common is the portable crane which may move from the dock apron to

land-based storage facilities perhaps several hundred feet from the

wharf. Stacking cargo on small raised platforms called pallets placed

on the dock apron makes it possible for fork lift trucks to easily

move cargo to warehouses or transshipment vehicles.

Special equipment for the handling of single commodities may

be found in both general cargo and special purpose terminals. Among

 12

the many commodities which require such equipment are oil and other

liquids, grain, coal, and sand and gravel. large sites are generally

required for such commodities because of their storage requirements.

Storage facilities for coal, sand and gravel may be simply the space to

stockpile them. Elevators may be required for the storage of grain.

Oil storage tanks must be so placed and diked that a fire in one tank

will not cause other tanks to ignite. If large sites are not avail­

able and storage space is severely limited, the terminal must provide

facilities for prompt transshipment.

Recent innovations in cargo handling.—The rising cost of conventional

methods of handling cargo has led to the development of roll-on-roll-

off, lift-on-lift-off, and container shipping.

Roll-on-roll-off shipping Is the transportation of loaded rail­

road cars or trailer trucks by barge or other water carrier. The trans­

portation of a fully loaded railroad car or trailer truck eliminates the

cost of unloading the cargo, transferring it to a ship, and possibly

reloading it into another railroad car or trailer truck at its destina­

tion. The barges used in roll-on-roll-off operations are so construct­

ed as to provide their own bridge between the hull and the wharf over

which trucks or railroad cars, or both, can be rolled on or off. A

recent development is a multitiered arrangement with interior ramps in

ships and a self-leveling bridge attached to the wharf. Since grades

should not exceed 12 per cent for trucks and six per cent for railroad

cars, many difficulties in wharf and ship design may be encountered

because of varying water levels (7).

 13

Railroad cars and trailer trucks may also be loaded on barges by

crane. In this case a bridge is not needed and the operation is

classified as lift-on-lift-off.

Since the storage of freight cars and trailers on barges or

ships entails a waste of space, e* g., space between the underside of

the carrier and the deck, research is being conducted on the use of

only the rail car or trailer body. In this system, bodies which, in

effect, become containers, are lifted on to the water carrier and

stacked atop each other utilizing the space formerly taken up by wheels*

The problem then becomes one of container research, since different

goods will have different requirements for containers.

Physical requirements for roll-on-roll-off and container termin­

als do not differ radically from those for other terminals. Rail and

road connections are essential, of course; the roll-on-roll-off will

probably require more rail sidings than other types of terminals.

There should be enough trackage to hold at least one boat load of cars.

One difference between roll-on-roll-off and container terminals and

conventional terminals is that enclosed warehousing is not essential

for the former types since goods are shipped in weathertight contain­

ers. If container shipment is fully developed, it could eventually

lead to terminals which would consist of only a wharf and portable

crane with a large paved area for the open storage of containers*

Rail and highway connections.—Rail connections to a terminal are of

great Importance. Desirable rail connections consist of sidings and

spurs at wharves and warehouses with connections to a belt railroad

system which may also serve industries near the riverfront. In

 14

addition, the belt system could also connect with rail classification

and marshalling yards located away from the riverfront.

Adequate road connections are essential since many goods are

hauled from the wharf to their destinations by truck. A road of ample

width with heavy-duty pavement should connect the terminal area with the

highway system. It would normally parallel at least a portion of the

shoreline. Its distance from the shoreline will depend to a large

extent upon the facilities to be provided in the terminal. It should

be so situated as to allow space for warehouses, rail facilities, park­

ing, and open storage. The points where the road meets the existing

major street system of the city should also be carefully studied to

minimize conflicts which may occur between heavy terminal-related

traffic and other traffic.

Industrial Uses

Only those industries that utilize commercial navigation should

be permitted to locate on limited deep-water frontage.

Types of Industry.—The types of industry that utilize commercial

navigation extensively are usually heavy industries. These industries

are the largest consumers and producers of commodities that can be

shipped economically by barge. Riverfront locations for such indus­

tries enable them to dispense with rail or truck transshipment of both

raw materials and finished products to and from their industrial sites

and the river. This, of course, means added savings on transportation

for such industries.

 The bulk commodities most frequently shipped on rivers

include:

1. Bituminous coal and lignite.

2. Sand, Gravel, and crushed rock.
3* Petroleum and petroleum products.
k. Grain and grain products,
5. Pulp, paper, and paper products.
6. Chemicals and chemical products.
7- Finished and semi-finished steel and scrap.
8. Lumber and lumber products.

The major types of Industries likely to use one or more of the

commodities listed include:

1. Food and kindred products industries, which

include grain mills, food processing plants,
and meat packing plants.
2. Lumber and wood industries, which include
sawmills, veneering mills, mi 11 work and ply­
wood plants, and prefabricated lumber
products plants.
3. Pulp, paper and products industries, which
Include pulp mills, paper mills, paperboard
and other paper products plants.
4. Chemicals and chemical products industries,
which include plants producing acids,
chlorine, plastics, paints and varnishes,
fertilizers and industrial chemicals.
5. Petroleum and coal products industries, which
include refining and lubricant plants*
6. Stone, clay and glass products industries,
which include glass, cement, structural clay,
brick and tile, and concrete and plastic
plants.
7. Primary metal products industries, which in­
clude metal furnaces and mills, and iron
and steel foundries.
8. Fabricated metal products industries, which
include hardware, heating and plumbing equip­
ment and structural metals plants.
9. Machinery industries, except electric, which
include farm and construction machinery plants.
10. Transportation equipment industries, which
include ship, boat, and barge yards, and motor
vehicle plants.
11. Utility industries, which include gas, electric
and steam plants.
 <

The primary metals products group serves as an example of a type

of Industry that may use commercial navigation advantageously to ship

its raw materials and finished products. A steel rolling mill could

have coal and scrap metal shipped to its site by barge; it could ship

its finished products, sheet ateel, reinforcing rods, etc., by barge.

Petroleum production plants are another example of an industry that may

use the river to advantage for commercial navigation. Crude oil may be

shipped to a refining plant for processing. The finished products,

gasoline, kerosene, or any by-product, can then be shipped again by

barge. Most of the other types of industries listed can use the river

for transportation of raw materials as veil as finished products. Some

plants, such as utilities, may make use of the river only to receive

materials such as coal. Others, such as ship building yards and automo­

bile assembly plants, may use the river only for shipment of finished

products. Many plants may, in addition, use the river as a source of

water for manufacturing processes.

Site requirements.--The site requirements of these types of industry

will vary, depending upon production capacities of the plants and the

production methods to be used. One requirement all have in common is

the need for deep-water frontage to accommodate barges that are to use

the terminal facilities. If the production capacity of a plant is to

be great, a large wharf area stretching over considerable river front­

age may be necessary to provide for the unloading and storage of raw

materials to eliminate extra handling of cargo. In addition, a site of

several hundred acres may be needed to accommodate all the required

structures, parking areas, etc. The production method of a plant is

 • ;

also Important in determining the size of the site and the amount of

land with deep-water frontage it will require. The terminal should be

so located as to form an integral part of the production process. It

would appear advisable to encourage the location of the remainder of the

structures needed back from the river rather than along the river in

order to conserve deep-water frontage. A minimum of 200 feet of water

frontage is necessary to accommodate most barges in use today.

Additional space may be required by industries that use the

river not only as a transportation medium but also as a source of water

in production processes. If the industry requires the addition of

purifying agents to raw water or if settling basins, or both, are need­

ed, space will be required for these facilities. If the effluent con­

tains impurities, such as dyes or poisons, or is very hot, large open

ponds would be required for the settlement of impurities or the cool­

ing of the effluent. An example of a plant in which raw water purifi­

cation is required is a steel rolling mill. Chemicals may have to be

added to the raw water to prevent the growth of algae in the water

distribution system. The need for cooling ponds is best illustrated

by the situation found in Youngstown, Ohio. There the effluent of

many steel mills is discharged into the Mahoning River with the result

that the temperature of the river has been known to rise as high as

140 degrees Fahrenheit (8).

Uses Utilizing Large Quantities of Water

Many industrial, agricultural and utility operations that re­

quire large quantities of water for production purposes should be

 18

considered for location on the riverfront. Some of them also utilize

water transportation. If commercial navigation is not a requirement,

water depths may be approximately five feet or more.

Industrial Uses

Industries that require large quantities of water that cannot be

economically pumped over long distances or taken from the city's water

system may appropriately be located on the waterfront. After some

purification, water is used by industries for one or more of the follow­

ing: processing, cooling and air conditioning, boiler feeding, and

sanitary services. The effluent may require some form of treatment be­

fore it can be released into the river.

Among the industries that may seek a location accessible to large

quantities of water are:

1, Chemicals and chemical products industries,

which include acid, chlorine, paint and
varnish manufacturers and plastics plants.
2. Primary metal products industries, which
include iron and steel foundries and furnaces.
3* Petroleum and coal products industries, which
include petroleum refineries.
4. Pulp, paper and products industries, which
include paper mills, paper coating and
glazing products plants.
5. Food and kindred products industries, which
include canned and frozen food plants, grain
products plants, sugar refineries, meat
packing and beverage plants.

The exact amount of water each industry will require will depend upon

the capacity of the plant and its production method. Generally, each

of the industries listed above would use more than one million gallons

per day* Riverfront locations are essential for such plants as few

municipal systems can supply water in such volume at a cost the industry

can afford.
 10.

Agricultural Uses

Toe use of riverfront land at the edge of an urban area for truck

farms should he considered. In recent years, the increased need for

irrigation has made access to large quantities of water more important

to the farmer. A farm irrigation system might necessitate only the

placement of one or more pumps at the shoreline. If the amount of

water to be drawn from the river is considerable in relation to the

supply, riverfront land reserved for agriculture should be so located

that downstream uses will not be adversely affected. Another problem

to be considered is the extent, source, and type of pollution of the

river. Pollution may be detrimental to crops and may preclude or

severely limit the use of riverfront land for agriculture.

Utility Plants

Access to large quantities of water is a necessity for municipal

water-supply systems. Since water-treatment plants require large sites,

the use of limited riverfront lands for water-treatment plants should

not be considered. However, one or more small areas must be provided

for intakes and perhaps pump houses to supply the treatment plant lo­

cated farther inland. Such an area would require in addition to pump

houses, only a road and parking space for several vehicles.

Sewage disposal plants also need access to large quantities of

water for the dilution of the effluent. The location of the outlet

for the effluent requires careful consideration in order that down­

stream uses will not be adversely affected* In addition, sewage dis­

posal plants need Large sites to provide space for settling basins,
 20

filters, sludge beds, several small buildings and parking area for a

few cars and trucks. The latter facilities need not be located direct­

ly on the waterfront.

Steam plants for the production of electricity require very large

amounts of condensed cooling water. Since the water is used in con­

denser tubes, some treatment of the water may be required to prevent the

formation of deposits in the tubes. Space would be needed for water

treatment with the size dependent upon the condition of the raw water.

In certain cases a small settling pond might be needed, while in other

cases water could be pumped directly from the river to the tubes. In

addition to water-treatment facilities, a steam plant also requires a

large, open area for the storage of coal. If the coal is transported

by rail, facilities such as lead-in tracks and spurs for hopper car

storage would be needed. The number of spurs and their lengths would

be determined by the steam-generating capacity of the plant.

The structure housing the tubes and other concomitants will be

of considerable size. When water treatment facilities, rail facili­

ties, coal storage facilities and parking areas are added to the

structure the total area will encompass several acres.

Uses Utilizing Access to Water

Riverfront lands that are suitable for usee requiring water

access need water depths of at least five feet at the shoreline. Such

lands are suitable for parks and recreation purposes, a use some

cities have overlooked in the past development of their riverfront

 21

lands (9)* The recent interest in boating may make a marina an import­

ant concomitant of a park and recreation area.

Parks

In many cities, a river crossing is the main point of entry.

For such cities, the development of a park at a bridge crossing the

river could be scenic and make a favorable impression upon visitors. A

fine example of such planning is the city of Guntersvllle, Alabama,

which has developed a small park where the highway enters the city (lO).

Facilities.--The facilities that may be provided in a riverfront park

will depend upon the amount of land available and the need for recrea­

tion facilities. The amount of riverfront land available for parks and

recreation may be very limited. Some cities may find their riverfront

land so limited that only a small green area with walks, benches, and

parking space can be developed. If the pollution of the river is not

a problem, one Important facility that should be considered for a

riverfront location Is a bathing beach. For the city dweller removed

from Lakes or the seashore, who must otherwise rely on swimming pools,

a large, clean bathing beach would be a distinct boon. A bathing

beach would also need large parking lots, dressing rooms, refreshment

stands, and protection for the swimmers from passing boats.

The extent to which these facilities are provided will depend

upon the city's need for certain facilities in the overall parks and

recreation program. It is the rare city that has enough parks to

meet the needs of its population at the present time. If such a situa­

tion does exist, however, land for future parks along the riverfront

should be reserved while it is still available.

 22

Highway access.—Highway access to the park and recreation area will

require careful study, particularly if it is to contain facilities such

as a bathing beach which will tend to make it a regional attraction to

and from which traffic will be heavy. A highway paralleling the river

but so located that it will not divide the recreation area is desir­

able. This highway could extend the entire length of the park and pro­

vide a scenic drive. Where a highway crosses a river, the bridge could

be a convenient buffer between different uses, especially if it Is lo­

cated where there is a decisive change in water depth. Access to the

various recreation facilities could be from a service road located

parallel to the highway and connected to the highway by one or more

interchanges. In addition to the highway and service road, drives for

access to the various facilities within the park should be so located

as to take advantage of the scenery*

Marinas

The increase in the number of boating enthusiasts has made the

development of marinas an Important feature of many waterfronts.

During the last few years, substantial sales of pleasure boats of all

kinds have been reported (11). A large part of the increase in sales

is attributable to urban dwellers for whom a marina located along the

city's riverfront would be a decided advantage.

Site requirements. —There are two types of marinas: the waterfront

marina and the harbor marina. The waterfront marina may require a

breakwater wall to protect the mooring area from wave action caused by

passing boats and winds. Pierhead and bulkhead lines may restrict the
 23

size of the marina if insufficient land is available to extend the

marina parallel to the shoreline. The harbor marina is usually in a

small, protected cove. Since it is protected naturally by land, a

breakwater wall is not required and at least three sides of the harbor

can be used for mooring space* The natural land protection lessens

possible damage from storms.

Fluctuation of water levels is a factor that could restrict the

location of a marina. On rivers where fluctuation is considerable be­

cause of draw-down for flood control, the marina mooring facilities and

boats may be left on mud flats if not properly located and designed.

Mooring facilities are sometimes so constructed that they can be moved

as the waterline recedes. Where water levels fluctuate less than four

feet, with a minimum depth that permit boats to remain afloat, fixed

piers may be constructed. However, if fluctuation of more than four

feet is common, floating piers should be constructed. This would apply

particularly on large, main streams such as the Mississippi, Missouri,

or Ohio Rivers and to flood control lakes along the Tennessee River

where considerable variations in water level occur (12).

Facilities.—The required marina facilities can be separated into off­

shore and on-shore facilities. Off-shore facilities include:

1. Breakwater wall, If needed.

2. Piers on piles or floating wharves with
sufficient room for maneuvering.
On-shore facilities that may be provided include:

1. Bulkhead or stone rip-rap for shore protection.

2. Launching ramps large enough to accommodate
several boats at once.
 2k

3. Vertical lift hoists capable of lifting boats

from trailers and lowering them into water.
4. Repair and storage sheds, preferably enclosed,
with mono-rail from the storage sheds to
vertical lift hoist which lowers and raises
boats into and out of the water and lockers for
storage of motors, life preservers, etc.
5. Sales facilities, including gasoline, fishing
supplies, and ice.
6. Restaurant and snack bar.
7- Parking areas for automobiles and boat trailers.

Additional facilities that may be included are:

1. Club houses for yacht clubs, sea scouts, and
the like.
2. Related recreational facilities such as a
swimming pool, a model boat pool, small play
area for children, picnic area.
3* Fishing pier at the outer boundary of the marina.
4. Boat sales and display areas.
5. Motels for tourists.

It can readily be seen from the above lists that a marina can

be a sizeable operation and that the size of the site depends entirely

upon the number and size of the facilities to be provided.

Uses Utilizing Visual Access

Extremely hilly terrain or steep bluffs adjacent to a river

usually afford a scenic view of the river and other surrounding areas.

Physical access to the river from such sites is often impossible or

impracticable and such land may, therefore, be classified as land

suitable for visual access. Because of the hilly terrain and lack of

physical access to water, land uses other than residential and park

uses may be precluded. The development of these two uses in such

areas, however, may be limited by the types of adjacent land use.

 25

Residential Use

If the uses immediately adjacent to the bluffs or hilly area are

not noise- or smoke-producing and do not present an unsightly view, the

area may well be suitable for high-value residential development. If

this is the case, a riverfront highway, if it is needed, should be

routed in this area in such a way that passing traffic will not disturb

the view or detract from the area by reason of noise and fumes. Where

a two-level scheme can be developed, however, with the highway on the

lower level and residences on the upper level, very little, if any,

noise or fumes will be evident in the residential area. The direction

of the prevailing winds would also have to be considered to avoid

having smoke and fumes that may originate in other areas along the

riverfront drift over the residential area. One additional point that

must be considered is the proximity of a marina. The noise from a

marina caused by outboard and other boat motors could make an area

adjacent to the marina highly undesirable for residences.

Parks and Recreation Use

In areas with visual access that are not suitable for resi­

dential subdivision because of rugged terrain, park areas may consti­

tute a suitable use. Since the terrain may be hilly and often heavily

wooded, the land may be appropriate for passive recreation. Walks,

benches, and picnic areas placed in locations that take advantage of

the view would be desirable. A riverside highway in this area should

be routed where traffic noise and fumes will least affect the activi­

ties in the park.

 26

Uses Subject to Only Minor Damage from Floods

Riverfront land in the flood plain may be utilized by uses sub­

ject to only minor damage from floods* Such land is almost flat, pro­

tective works may not be feasible, and it is subject to periodic

flooding. The flood plain consists of the floodway and the impounding

areas. The floodway is that part of the channel and the adjacent flood

plain needed to permit flood waters to pass naturally. Generally water

depths exceed two feet and water velocities are high in the flood-

way (13). To prevent flood damage and to facilitate the flow of flood

waters, enclosed structures should not be permitted in the floodway.

The prohibition of enclosed structures, however, does not preclude the

utilization of this land for productive use. Impounding areas are

areas in which floodwaters are temporarily stored. Although water

depths and velocities are generally low, extensive silt and water

damage may occur in impounding areas.

Permissible Uses in Floodways

Cowm»»rcial uses. —The provision of parking facilities for customers

in the downtown area is a necessity common to most cities. The fringe

areas of the central business district of cities on rivers may be sub­

ject to inundation. In order to utilize this land properly, open

uses such as parking lots and parking decks, which are open structures,

and used car lots have been suggested (l4). The only damage done in

this case would be the deposit of silt and debris which could quickly

be removed after the flood.

Park and recreation uses. —Parks and recreation areas are additional

uses that are suitable for location in the floodway. In the floodway,

land nay be set aside for transient amusements such as carnivals and

circuses which could make use of the land during the flood-free seasons.

In addition to circus and carnival grounds, space could be provided for

such sports as football, baseball, and golf, as well as necessary park­

ing space.

Another facility that could be provided in this area is a boat

launching ramp. This launching ramp could be particularly useful as a

supplement to a marina. If a marina is not to be provided, launching

ramps will be a necessity. Launching ramps may be located at the end

of an access road or on any hard surface in the area; since they would

be used for small boats brought on trailers or on top of cars, they

would not require any structures or other equipment. Supplies, such

as gasoline, food, etc., would have to be brought in unless they

could be Bold from portable concession stands which could be removed

in the event of flood danger.

An air strip for single-engined sport planes is another facili­

ty that could be provided on the flood plain since enclosed structures

of any kind would not be required. The air strip should be so located

that it will not interfere with recreational facilities. In the event

of a flood, planes could be flown out of the area or rolled to higher

ground not subject to flooding. Since buried gasoline storage tanks

could be lifted out of the ground by hydrostatic pressure of flood

 28

waters, gasoline should be stored in truck trailers which could also be

moved in the event of a flood.

Agricultural use.--The use of the floodway for agriculture should also

be considered for the edge of an urban area. Very often the soil in

the flood plain is very rich because of soil deposited there by previous

floods. The construction of any structure, however, would have to be

prohibited. The use of this land for agriculture will depend entirely

upon the risks the farmer is willing to take with his crops. Informa­

tion about the frequency and time of floods is generally available, and

crops can be planted that can be harvested before the flood season.

The risk entailed, however, Is the chance than an unexpected flood

might cause the loss of the crop that year. The floodway might also

be used for pasture land.

Permissible Uses in Impounding Areas

Since the uses which may be permitted to locate in the floodway

are those that do not suffer extensive or frequent damage from floods,

they may also be considered for location in impounding areas.

Although silt damage may be severe in impounding areas, the water

damage will generally be minor; since all are open uses, silt deposits

could be quickly removed. In addition certain other open type uses

may be permitted in impounding areas.

CAHim^rcial uses. --Commercial uses that could be located In impounding

areas include drive-in theaters. Some protection from water seepage

would be required for buildings. The alternative would be to place

structures on higher ground. Sewage lines with self-closing valves

 29

should be provided to prevent the backing up of sewage. Since the

screen and speakers in drive-in theaters are mounted on posts several

feet from the ground, little, if any, damage to them is likely to

result if they are properly constructed.

Park and recreation uses.—In conjunction with a football or baseball

field, a stadium could be provided with Its long dimension parallel to

the direction of the flood flow to minimize the piling up of silt and

debris. Since the stadium may be designed as an open structure, silt

and debris would be able to pass through it leaving a minimum deposit

which could be easily removed.

Summary

The demand for riverfront lands by such uses as commercial

navigation, industry, and recreation has increased steadily. It would

appear, therefore, to be advantageous for a community to plan for

appropriate land uses on its riverfront land. Appropriate land uses

and their requirements have been presented in this chapter. The

presentation does not imply that all of these uses must necessarily be

located on the waterfront. Some cities may find that all these uses

can be located on the waterfront in a unified development harmonious

with the development of adjacent land in the remainder of the city.

Other cities may find that only a few of the uses can be considered

because of topographical conditions, river conditions, and other con­

comitants. The extent to which riverfront land can be utilized for

such uses as have been discussed can best be determined by a group of

special studies necessary to a riverfront planning program.

 CHAPTER III

RIVERFRONT PLANNING PROGRAM

The previous chapter presented the appropriate water-related

land uses that should be permitted to locate on the riverfront. This

chapter will deal with the means by which riverfront lands can be

planned and developed within the framework of a planning program.

Physical Studies

Shoreline and channel study.—Hie first study that should be conducted

is a study of the physical condition of the shoreline and the river.

This study is needed to determine the classification of land as

previously outlined. A topographical map of the shoreline and the

river bed and channel cross-sections would also be required. If the

velocity of the channel flow is high or if wave action is a problem,

shoreline erosion is likely to result. This could be a limitation on

the utilization of the shoreline unless bulkheads are to be provided.

Water-level fluctuation is another item that would have to be examined

in this study. If severe fluctuation occurs, the location and design

of waterfront facilities will have to take this fluctuation into

account.

Flood study. —Generally, a flood study should be undertaken to deter­

mine the extent and location of periodic floods and the feasibility

of constructing such protective works as levees, reservoirs, etc to

 31

control floode. If protective works prove infeasible, a plan should he

prepared in which land subject to periodic flooding would be reserved

for uses which are subject to only minor damage from floods. The flood

study will determine the floodway and the impounding areas which will

influence the location of the various uses subject to only minor damage

from floods. If protective works prove feasible, a second plan should

be prepared for the development of the riverfront based on conditions

expected to prevail when the protective works are completed. Uses

allowed to locate in such a protected area may be any water-related

uses which can most effectively make use of the shoreline, topographi­

cal, and water conditions which will prevail after the completion of

protective works.

Pollution study.—A river-pollution study which includes not only in­

formation on local river pollution but also on the causes of pollution

and the possibilities of eliminating it by up-stream uses is necessary

because severe pollution will restrict riverfront development. If in­

dustrial and municipal wastes are properly treated before being dis­

charged, pollution can be minimized and fuller use of riverfront land

can be made by industry and recreation. It should be noted that few,

if any, municipal planning agencies have the necessary engineering

staff capable of conducting flood and pollution studies.

Transportation Studies

Railroads.—In order to properly plan for commercial navigation and

industry In the waterfront area, an inventory of existing rail facili­

ties in the area and their location within the area is a necessity.
Frequently, rail facilities are already located in a riverfront area

because rail lines in the past have taken advantage of the flat terrain

in many such areas (15)* This has been instrumental in the development

of industrial areas to which industries were attracted because of good

rail facilities. The combination of rail and commercial navigation

facilities is likely to create a demand for industrial sites along the

riverfront.

An important part of a railroad study would be an investigation

of the number of individual rail lines presently serving the waterfront

area. If future rail traffic is expected to increase substantially,

recommendations might be made to establish a belt line to assure more

efficient service and eliminate duplication of rail facilities. Such

a study may also make recommendations regarding the ownership of such

a belt line. Hie city might wish to retain ownership or Joint owner­

ship by two or more railroads already serving the waterfront might be

considered. A third possibility is ownership of the belt system by

one rail line which would charge other lines a switching rate for the

use of its facilities.

It is essential that additional facilities, if they are needed,

be so planned that they will not be blocked by future development of

industry. For although railroads have the power of eminent domain,

acquiring a developed area in order to gain additional space for rail

facilities may be too costly and may preclude the possibility of pro­

viding rail facilities where they may be needed. As was pointed out

earlier, the riverfront rail connections should be a part of a belt

 3*

between uses along the waterfront. If a highway is to be provided

parallel to the shoreline, it may serve as a buffer between riverfront

uses and adjacent uses in the remainder of the city. The location of

the riverfront highway will depend to a large extent upon land-use

studies*

River terminals study*—Since a cargo terminal usually represents a

large capital investment, the development of general cargo facilities

should be preceded by a study of the present river traffic and exten­

sive interviews with manufacturers in the area* The interviews would

be needed to help determine the amount and type of cargo likely to be

shipped through the terminal by Individual concerns* Such a study

would also take into account regional and local resources as well as

existing industries and terminal facilities* A preponderance of

certain resources may be among the determining factors that will decide

the amount and kind of commercial navigation that may be expected.

Another important point that should be considered is that most commer­

cial navigation originates and terminates at special purpose terminals

maintained by specific industries* Few municipal agencies have the

staff needed to conduct the origin and destination studies necessary

to determining the need for terminal facilities* A special consultant

can be called in to conduct this study*

Other Planning Studies

Park and recreation study,—A study of existing parks and recreation

facilities will be essential in determining future park and recreation

needs* If a city finds that It has need of water-related recreation

 35

facilities, it is possible that the riverfront nay be utilized to pro­

vide such facilities* If pleasure boating on the river is not preclu­

ded by pollution, this study should also include an analysis of the type,

size, number, and condition of boating facilities in the immediate

region* The type and size of boats that may reasonably be expected to

use a future marina should also be determined* Population trends and

boat sales in the area may help in determining marina needs*

Land-use study*—The land-use study is perhaps the most important study

that must be conducted* To plan the riverfront properly requires a de­

tailed land-use study of the riverfront as veil as a land-use study of

the city as a whole* Such a detailed riverfront study should include

information concerning:

1* All existing land uses in the riverfront area*

2* Structural condition of existing uses in the
riverfront area that are not water-related*
3* Areas of extensive blight in the riverfront
area*
4* Assessed value of existing land and structures
in the riverfront area*
5* Land uses In the areas adjoining the riverfront
area*

The portion of the study involving existing land uses in the

riverfront areas should Indicate all present uses that are water-related

in order to determine where the riverfront is being used to greatest

advantage* The existing water-related uses might form the nucleus for

future riverfront planning* For example, if a steel mill is already

located on the riverfront, it might very well attract a small shipyard

which manufactures barges* This portion of the study should also

indicate present uses which are not water-related and which should be

eventually removed from the riverfront area*

 36

The structural condition of existing uses which are not water-

related will be helpful to know in order to determine whether continued

use of these structures may be expected* This information may also

help determine whether alteration of existing structures for water-

related uses is feasible*

Extensive blight in riverfront areas is a problem common to many

cities* These areas of blight should be carefully delineated and con­

sidered for future urban renewal projects.

The assessed value of all land and structures in the riverfront

area also should be known* This information will be especially useful

if the city must acquire land in the area in order to realize its pro­

posed development scheme*

A study of uses in areas adjoining the riverfront should be

undertaken to determine whether they will be compatible with proposed

riverfront uses* If not. a buffer must be provided between such areas

and the riverfront* A landscaped riverfront highway with a wide

right-of-way might provide such a buffer as well as access to various

areas along the riverfront*

With the information provided by the physical and land-use

studies, land may be classified for the uses outlined in Chapter II*

To repeat, they are;

1* Uses utilizing commercial navigation*

2. Uses utilizing large quantities of water.
3* Uses utilizing water access*
4* Uses utilizing visual access*
5. Uses subject to only minor damage from floods.

•Die classification of land within the riverfront area could be indica­

ted on contour maps of the area as shown in Fig. 3* The limits of the
 ; i

various use areas within the riverfront area can then be refined on

detailed maps which would also indicate possible future development*

The example. Fig* k, shows part of the redevelopment plan of the

Cincinnati Riverfront which might possibly be classified as an area for

uses subject to only minor damage from floods*

One final point that should be mentioned in connection with de­

tailed riverfront land-use planning is public access to the various

areas of riverfront activity* A river terminal, for example, would be

of particular public interest since there is an interesting activity

involved in the maneuvering of barges and handling of cargo* Public

access to such areas could be designed so that the public would not

interfere with terminal operations* Elevated walkways and promenades

could be constructed for this purpose.

Since the riverfront is likely to be a main point of entry to

many cities, it is essential that the area be developed so that it Is

a pleasant place through which to drive or walk. The provision of

parks and recreation areas will help provide the atmosphere and

attractiveness needed to make such an area pleasant. The landscaping

of industrial sites along the riverfront would also help in making

the riverfront a more attractive area.

Tools to Carry Out the Riverfront Plan

The tools which a city uses to carry out its proposed river­

front plan depend upon a number of factors. Foremost among the fac­

tors is the amount of waterfront land involved and whether the city

can afford the financial strain of acquiring the land. If the city
 5EVEM i

J-T-^-^r *M^n»,

IfOR USES S U B J E C T TO ONLY MINOR DAMAGE FROM FLOOD f}^\V

'I. ..J
1

FIG. 3 CONTOUR MAP OF A SECTION OF THE CINCINNATI RIVERFRONT

FIG. 4 FUTURE REDEVELOPMENT OF AN AREA SUBJECT TO ONLY MINOR
DAMAGE FROM FLOODS
 4o

cannot afford this, then it will be left up to private enterprise to

develop the riverfront land; in such a case, the police powers of zon­

ing and subdivision regulations would have to be employed. Additional

tools are discussed in subsequent pages.

Zoning.—Zoning for industry along the riverfront is one way in which

the limited deep-water frontage could be reserved for thoee industries

most likely to utilize commercial navigation. In addition to satisfy­

ing the usual requirements regarding smoke, odor, glare, etc., an in­

dustry might be required to demonstrate its need for deep-water front­

age for commercial navigation before it is allowed to locate In the

deep-water frontage area. If the deep-water district were to be desig­

nated as RI-1, the requirements might be as follows:

RI-1 Riverfront Industrial District

The RI-1 riverfront district is established

to meet the needs of industries requiring commercial
navigation. Since the lands bordering on deep-water
frontage are limited, only those industries that
demonstrate a need for commercial navigation and
those that will not be offensive by reason of
emission of smoke, noise,.... will be permitted.
Uses permitted The following uses are
permitted subject to the above requirements:

1. Industries utilizing commercial

navigation.
2. Boat and shipyards, including
repair facilities.
3* Wharves and other terminal facili­
ties required for commercial
navigation.

A similar industrial district designated as RI-2 could be

established for uses utilizing access to large quantities of water.

Within this district, any industry would be allowed subject to the

 kl

usual requirements but with the added proviso that it use a minimum of 2

to 3 million gallons of water each day in its manufacturing process.

The commercial navigation requirement for the RI-1 district and

the water usage requirement for the RI-2 district do not appear to be

unreasonable. Since waterfront space is limited, it would be to the

advantage of the general public if this land is developed for the pur­

pose to which it is best suited.

Zoning has also been used to regulate development of floodway and

Impounding areas. A notable example of such regulation may be found in

the addition to the Lewi sourg, Tennessee ordinance approved by the City

Commission on April 13, 1957 (17).

Residential zoning along the riverfront presents the additional

problem of esthetics. If the bluffs upon which residential development

is planned are low, apartment houses several stories high may not be

desirable because they would dwarf the bluffs. If such were the case,

the natural scenic beauty of the area would be impaired. A restric­

tion of building heights might be used to prevent such an occurrence.

The determination of the proportion of structures to bluffs would have

to be made by persons qualified in the field of esthetics who, after a

study, would make recommendations to the planning commission.

Subdivision regulations. --Another police-power tool that could be

advantageously used in the development of the riverfront is subdivision

regulations. The regulations could provide for public access to the

river where such land is suitable for access points. Access could be

needed for drainage or water lines or for other public purposes in

which case only an easement and an access point would be needed. If

some form of development which would decrease public access were to

take place, the developer could be required to provide usable public

access space by keeping his development a certain distance from the

river.

Subdivision regulations could also be instrumental in the de­

sign of subdivisions in areas suitable for visual access. The layout

of streets could be so regulated as to provide for lots between the

edge of the bluffs and the first street to assure the maximum view

for residences with no distraction by traffic.

Industrial development commission.—In some cities, it may be finan­

cially possible to encourage development of industrial sites by pro­

viding land, streets, and utilities on such sites. Development of

such sites may attract industries of the kind that can make the most

use of the riverfront. It would appear that such lands can be more

efficiently developed if they remain in the city's control. As

Willbern stated: (l8)

. • ."an integrated, efficient, economical use of

limited waterfront areas is more likely if the public
owns and allocates the space than if growth is left
to haphazard development controlled only by zoning
and similar ordinances."

In cities where large-scale public-land acquisition of river­

front land is possible, an industrial development commission under the

control of the city government could be established to assure proper

development. Such a commission could acquire, plan, develop, and

lease or sell sites to industry in accordance with the planning

program. Leases could run from 25 to 99 years. A fifty-year lease

would Justify construction of a plant while still assuring some

 43

flexibility to the future development of the area. Thus, if land

presently suitable for access to large quantities of water were in the

future to be reclassified for uses requiring commercial navigation, as a

result of large-scale dredging operations, the land would be available

eventually for such uses. The industrial development commission might

also undertake the construction of a general cargo terminal if a study

showed such a terminal to be necessary and private enterprise to be un­

willing to build one. The problem of what to do with land reserved for

industrial development until such time as industries locate there can

best be solved by permitting uses which require small capital invest­

ments in structures. Such uses might include drive-in theaters and

restaurants or, on the edge of the urban area, agriculture.

Urban Renewal.--Public land acquisition for development by an industrial

development commission may sometimes be handled most expeditiously by

urban renewal. Since the land along many riverfronts is blighted be­

cause of disuse and disrepair, cities may have the opportunity to

acquire large tracts of land with financial aid from the federal govern­

ment. With the areas of blight delineated on the detailed, existing

riverfront land use plan, urban renewal plans could be formulated so

that successive areas along the riverfront could be acquired as time

and money permit.

An example of a city which is using urban renewal as a means for

acquiring riverfront land is Nashville, Tennessee. In this project,

several acres of riverfront land are being acquired as part of a large

renewal and redevelopment project.

Public works.—A public-works program carried out in joint participation

with the Federal government can also aid in the development of river­

front land. Such a program could consist of construction of protective

works, draining or filling of Lands, channel dredging and shoreline im­

provement. Because of the large expenditures involved in such projects,

they are usually executed with the help of the Federal government. In

such joint participation projects the city as well as the government

benefits. The city benefits by being provided the improvement and the

government benefits by the improvement of the system of navigable

channels. The construction of protective works as a means to acquiring

riverfront land is demonstrated by the program in Memphis, Tennessee.

The Federal government is to bear the expense of constructing protect­

ive works while Memphis is to bear the cost of extending roads and

utilities and acquiring land subject to floods. Under construction for

several years, the project is now about 72 per cent complete. Approxi­

mately $60 acres have been turned over to Memphis for industrial re­

development (19). Through this project Memphis is able to develop

riverfront land for uses utilizing commercial navigation.

Official map.—Another useful planning tool that can be employed to

carry out a riverfront development plan is the official map. On this

map would be shown existing as well as future streets that will be need­

ed to accomplish the intended plan of the riverfront. The lines of

these streets must be plotted accurately. After adoption by the local

governing body, the map, which then becomes the official map, is a

tool to guide future development by not permitting the construction of

 h5

any buildings within the boundaries of a mapped street. Only in the case

of extreme hardship to a property owner would any development be allowed

to overlap the lines of a mapped street. In such cases a permit to build

might be granted subject to requirements governing the location on the

properly, the height of the building, the kind of materials, the per cent

of lot coverage and the duration of the life of the building. The reason

for such requirements is to permit the later acquisition of the structure

at less expense to the city than if the buildings were constructed with­

out the requirements.

Capital improvement budgeting.—Most of the planning tools that can be

used to develop a city's riverfront will require the expenditure of large

sums of public funds. Outstanding among these tools that require large

expenditures are the city's l/3 share of urban renewal costs; the city's

share of the cost of public-works programs in which the city partici­

pates jointly with the Federal government in projects such as land

reclamation, protective works and so forth; non-federally assisted

public-works projects such as the construction of new streets and utili­

ties and acquisition of riverfront property.

To expedite development of the riverfront after a plan has been

made it would seem advisable to determine which of the aforementioned

tools should be employed to carry out the plan. The cost estimates

should then be included in a Capital Improvement Budget.

If financial conditions of a city permit, a riverfront fund

might be established to acquire distressed or tax delinquent property

 k6

as it appears on the market. Such a fund would be particularly useful

if the property is in an area designated for park purposes and park

funds are not immediately available.

Summary

There are numerous ways in which a city can control the develop­

ment of its riverfront lands. Before any plans are made, however,

certain studies are required that will have a bearing on these plans.

After these studies have been completed and the plans drawn, the tools

discussed in this chapter can be used in combination as an individual

city may see fit.

 CHAPTER IV

CONCLUSIONS AND RECOMMENDATIONS

A city can make the best use of its limited waterfront area by

reserving the space for water-related uses. Among these uses are

certain types of industries: those that use commercial navigation

and those that require large quantities of water. Recreation uses

such as marinas and bathing beaches also require waterfront space.

In addition, certain utility plants and agricultural uses may also

find a riverfront location desirable. Many cities will find at least

a part of their shoreline subject to periodic flooding. In such

areas, only uses that will neither suffer major damage from floods

nor hinder flood flow should be permitted.

To facilitate planning of the riverfront for such uses re­

quires several studies related to the waterfront. A detailed exist­

ing land-use study of the riverfront area is of major importance in

formulating the future land-use plan of the riverfront* To control

development of the future land use, zoning and subdivision regula­

tions are perhaps the most effective tools. Zoning ordinance pro­

visions may contain the requirements that commercial navigation be

needed and used by an industry before it is permitted to locate in a

district bordering deep-water frontage. A similar requirement can

be made in districts designated for uses requiring large quantities

of water. In such districts, the need for a specified amount of

 48

water could be made a requirement. Zoning may also control the uses

permitted in areas subject to flooding. Subdivision regulations could

be particularly useful in assuring public access to the river where

needed.

It would be desirable for a city to acquire its waterfront

property whenever possible. Such property can then be developed and

suitable sites leased or sold to industries by an industrial develop­

ment commission under the control of the city and working within the

framework of a planning program.

The city could also aid further in the development of its river­

front by draining and filling land, improving its shoreline, dredging

to provide more deep-water frontage, constructing roads and utilities

and by cooperation with federal agencies in the construction of pro­

tective works when they are needed*

The development of many American cities began at their river-

fronts. Because of the decline in river traffic with the development

of rail and truck transport, the riverfront, once the focal point of

the city, fell into disuse and disrepair. It is hoped that this study

will aid cities to make their riverfronts orderly, efficient, and at­

tractive areas once again.

BIBLIOGRAPHY
 BIBLIOGRAPHY

Literature Cited

1. Barloon, H. J., "The Second Transportation Revolution",

Harper's Magazine, 214, (March 1957). P.41,

2. Barker, C. T., T. V. A. River Traffic and Industrial Growth.

Knoxville, Tennessee: Tennessee Valey Authority, 1958, P.4.

3. Becht, J. E., Commodity Origins, Traffic and Markets Accessible

to Chicago Via the Illinois Waterway* Chicago, Illinois, Hie
Illinois River Carriers Association, 1952, P.32.

4. Local Planning Administration. 2nd Edition, Chicago, Illinois;

The International City Manager's Association, 1948, P.53.

5. Ibid., P.153.
6. Luttman-Johnson, John D. M., "Louisiana's New Ocean-River Fort
225 Miles from the Gulf", Civil Engineering 28, (January 1958) P.
This informative article contains a discussion of the details
involved in the development of a new port to be used by deep-
draft vessels and barges.

7. Marsden, H. J«, "Shoreside Facilities for Special Purpose Ships",

Journal of the Waterways and Harbor Division, 83, (May 1957).
P.1246-3*
8. Planning Advisory Service, Municipal Waterfronts; Planning
for Commercial and Industrial Use, Report No.45* Chicago,
Illinois: American Society of Planning Officials, 1952, P.4.

9. Willbem, York, Cities and Riverfront Lands. Tuscaloosa,

Alabama: University of Alabama Bureau of Public Administration,
1947, P.4.
10. Gray, Aelred J., "Local Planning in the Tennessee Valley",
Horizons, 20, (Winter 1948) P.4.
11. Wright, George C , "Jersey Prepares for Record Fleet in Months
Ahead", The New York Times, 17, (May 10, 1959). *M Section P.12.
 50

12. Chaney, Charles A., "How to Design and Build Marinas",

Wood Preserving News, 36, (December 1958), P.12.
This article contains valuable information regarding the
engineering aspects of marina design.

13. Moore, J. A., Factors to be Evaluated in Planning for Flood

Damage Prevention. Atlanta, Georgia: Georgia Institute of
Technology, 1958, P.38.

14. Ibid., P.48.

15. Riverfront Study. Detroit, Michigan: Detroit City Plan

Commission, July 1957* P.15*

16. Fair, Marvin L., Port Administration in the United States.

Cambridge, Maryland! Cornell Maritime Press, 1954. P. 124.
This book contains detailed analysis of management and
financing of ports in addition to explanations of the
functions of different types of ports.

17. Planning for Flood Damage Prevention. Lewisburg, Tennesse

State Planning Commission, June 1956, P.39.

18. Willbern, op. cit., P.22.

19. Water Resources Development in Tennessee. Cincinnati, Ohio:

U. S. Army Corps of Engineers, January 1959> P.12.
 51

Other References

Bruan, P. and John M. DeGrove, Bay fill and Bulkhead Line Problems -
Engineering and Management Considerations, university of Florida,
Public Administration and Clearing Service, 1959.

Chaney, Charles A., "How to Design and Build Marinas", Wood

Preserving Hews, 37, (January 1959), PP.6-9.

Cleveland Today...Tomorrow. Cleveland, Ohio: Cleveland City

Planning Commission, 1950.

Elizabethton Flood Study. Elizabethton, Tennessee: Elizabethton

Planning Commission, 1957-

Flood Problems in Santa Clara County. San Jose, California; Santa

Clara County Planning Commission, 1952.

Fugl-Meyer, H., The Modem Port; Its Facilities and Cargo Handling
Problems. Copenhagen, Denmark: Danish Technical Press, 19JT«
This book gives a detailed description of facilities found in
several European and American Ports. Of particular interest is the
description of cargo handling equipment.

Gray, Aelred J., "Planning for Local Flood Damage Prevention",

Journal of the American Institute of Planners, 22, (1956), PP.ll-17.

Howard, Edith Foster, Riverfront: The Protection of Municipal

waterfronts in Tennessee. Khoxville, Tennessee: University of
Tennessee, Bureau of Public Administration, 19^9.

Jackson, Douglas W. A., Htiladelphia Waterfront Industry; Industrial

land and its Potentials on the Delaware River. Philadelphia,
Pennsylvania: Department of Commerce, 1955*

Menhinick, H. K., "Local Riverfront Development", The American City,

65, (November 1950) P.83-85.

Murphey, Francis C , Regulating Flood Plain Development. Chicago,

Illinois: University of Chicago Press, 1958.

Permits for Work in Navigable Waters. Washington, D. C :

U. S. Government Printing Office, 1951.
Planning Advisory Service, Waterfronts, Planning for Resort and
Residential Areas, Report No.116. Chicago, Illinois: American
Society of Planning Officials, 1959.

Program for Reducing the National Flood Damage Potential,A.

Khoxville, Tennessee: Tennessee Valley Authority, 1958.

Reservoir Shoreline Development in Tennessee; A study of Problems

and Opportunities. Nashville, Tennessee: Tennessee State
Planning Commission, 1958.

Rhode Island Shore; A Regional Guide Plan Study 1955-1970.

Providence, Rhode Island: Rhode Island Development Council,1956.

Riverfront Development. Cincinnati, Ohio: City Planning Commission,

This report contains a good analysis of existing conditions and

equally good ideas for future development.

Schad, Harry G., "Why Delaware Valley Spells Home for Industry",
Ports of Philadelphia, 2, (January 1959).

Shoreline Development. Oakland, California: Oakland City Planning

Commission: 1951*

Slier, Robert W. Jr., Flood Problems and Their Solution through

Urban Planning Programs. Nashville, Tennessee: Tennessee State
Planning Commission, 1955*

Waterfronts. Buffalo, New York: Common Council, 1952.

Hie emphasis upon planning for water-related recreation facilities
is of particular interest.

Waterfront Plan. Demopolls, Alabama: Alabama State Planning and

Industrial Development Board, 1957.

Waterfront Flan. Eufaula, Alabama: Alabama State Planning and

Industrial Development Board, 1957*
These two reports demonstrate how smaller cities are planning their
limited waterfronts.

White, Gilbert F. and Others, Changes in Urban Occupance of Flood

Plains in the United States. Chicago, Illinois: University of
Chicago Press, 1958.