Holy Cross Neighborhood, Planning District Eight

Table of Contents
A. Holy Cross Neighborhood
Location and Geographic Boundaries
Recovery Vision and Goals
Planning Process and Neighborhood Participation
Planning Efforts Pre-Hurricane Katrina

B. Pre-Hurricane Katrina Neighborhood Existing

Conditions
Population Characteristics
Land Use and Zoning
Transportation
Recreation and Open Space
Housing
Architecture and Historic Preservation

C. Hurricane Katrina Neighborhood Impacts

Extent of Flooding
Property Damage Assessment
Commercial Property Damage Assessment
Institutional Property Damage Assessment
Parks and Open Space Damage Assessment

D. Planning Approach
Key Issues
Opportunities
Basic Planning Assumptions

E. Plan Components
Principal Redevelopment Strategies
Rebuilding Scenarios
Housing
St. Claude Commercial Corridor
Waterfront Mixed-Use Zone
Light Industry

F. Project Priorities
Project Priority Phasing
Project Priority Assumptions
Project Priority Funding Matrix

G. Strategic Interventions

H. A Community Vision for the Future of the

Holy Cross Neighborhood

A. The Holy Cross
Neighborhood
Location and Geographic Boundaries
The Holy Cross Neighborhood is a subdistrict of
the Lower Ninth Ward (Planning District 8), a
community in the southeast quadrant of the City
of New Orleans on the northern bank of the
Mississippi River. In the initial community
meeting held at the Holy Angels Church the
residents in attendance made it clear to the
planning team that although distinctive in some
ways, Holy Cross was a part of the Lower Ninth
Ward and that the planning should reflect that
fact. The Lower Ninth Ward is bounded on the
west by the Inner Harbor Navigational Canal
(the Industrial Canal), the north by the
Viavant/Venetian Islands, the east by the
Louisiana National Guard’s Jackson Barracks and
St. Bernard Parish, and on the south by the
Mississippi River.
Although the Lower Ninth Ward is relatively
cohesive neighborhood, the Holy Cross
Neighborhood does have some distinct qualities
that distinguish it from the Lower Ninth Ward
Neighborhood. For that reason, this rebuilding
plan created two subdistricts north and south of
St. Claude Avenue, the commercial corridor of
the District. The Holy Cross Neighborhood is the
area south of St. Claude Avenue. The balance of
the Lower Ninth Ward will be included in the
Lower Ninth Ward Neighborhood component
(the north of St. Claude Avenue).
Settlement of the Holy Cross Neighborhood was
established on the natural levee of the
Mississippi River first as Indian settlements and
French fortifications and later as sugar
plantations. Development of this area dates to
the early 1800’s with the significant activities
including the establishment of the Louisiana
Sugar Refinery in 1831 and the Jackson Barracks
dating from 1833.
By 1834, large plantations had been subdivided
into narrower lots. The neighborhood’s isolation
from the downtown made it a mecca for Irish,
Germany and Italian immigrants as well as freed
African Americans who had worked the
plantations. These groups cultivated truck farms
growing produce that was sold to restaurants
and at markets in New Orleans. The catholic
population grew rapidly over this period leading
to the development of St. Maurice Chapel in the
mid-1800’s. The Brothers of the Holy Cross had
a long history in the area first taking over St.
Mary’s orphanage on the current site of the Holy
Cross School in 1849 and expanding the facilities
creating St. Isadore’s College by 1890. By 1912
much of the campus expansion, use and name
changes had been completed creating the Holy
Cross School as it currently exists.
Most of the historic residential development in
the Holy Cross Neighborhood was completed by
the late 1800’s with the exception of the truck
farms that continued in operation until they were
phased out in favor of ranch homes and
apartment houses in the 1950’s. By the 1980’s
all of the plantation structures had been
destroyed but enough of the neighborhood’s
historic fabric had been preserved to warrant the
listing of the Holy Cross Neighborhood on the
National Register in 1986.
Two events significantly impacted the physical
characteristics of the neighborhood Holy
Cross/Lower Ninth Ward neighborhoods. Erosion
along the Mississippi led to the construction of
the levee in 1912 and need to create a shipping
connection between the Mississippi and Lake
Pontchartrain led to the construction of the
Industrial Canal in 1920. While both actions led
to the creation of significant green space, the
canal also increased the neighborhood’s isolation
from the rest of the City.
Unlike the rest of the Lower Ninth Ward, the
Holy Cross Neighborhood has a more diverse
land-use pattern and architectural style. The
predominant architectural style is the shotgun
but there are also Creole cottages, side halls,
bungalows and brick Italianate structures.
Larger institutional structures also grace the
neighborhood including the Holy Cross Campus,
St. Maurice Catholic Church, the Semmes
City of New Orleans
Neighborhoods Rebuilding Plan
Excerpt from Norman’s Chart of Lower Mississippi - 1858 Holy Cross School
School, the Steam Boat Houses. It is the historic
quality of many of the structures that had kept
the Holy Cross neighborhood from experiencing
the levels of abandonment seen in the balance
of the Lower Ninth prior to Katrina. This unique
housing has drawn residents particularly artisans
to Holy Cross.
The diverse land uses of Holy Cross originally
referred to as “downtown”, is representative of
its separation from the rest of New Orleans.
This community had major commercial 3
enterprises include the Deslonde Plantation,
slaughterhouses, and the Jourdan Brickyard as
well as traditional nineteenth century
establishments such as farming, corner stores
and religious and educational institutions. By
the mid-twentieth century, the network of
corner stores had given way to the
concentration of commercial activity on St.
Claude Avenue. Industrial activity located along
the Mississippi River and the Norfolk Southern
rail lines diminished due to changes in shipping
and manufacturing operations resulting in job
loses and property abandonment.
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In recent years, the neighborhood survived by
attracting professionals to affordable urban
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result, the neighborhood was not as affected by
the decline of industrial activity during the mid
to late twentieth century as the balance of the
Lower Ninth Ward. The population did decline
but not as drastically as the balance of the
Lower Ninth Ward. There were a few pockets of
troubled housing including sections of Lazardi
and Forstall but for the most part the
neighborhood’s historic building stock was
maintained.
 Holy Cross Neighborhood, Planning District Eight
Recovery Vision and Goals
The principal objective for the city-wide
Rebuilding Plan is to “work with the
neighborhoods to develop revitalization plans
that are rational, thoughtful, can be
implemented, and formed into a citywide
recovery plan for submission to state and
federal funding agencies.” To this end, the
Rebuilding Plan established a vision for the
recovery and a series of goals that serve as the
4 foundation of the Plan.
Vision
Although the Holy Cross Neighborhood
experienced significant damage, its location on
the natural levee of the river spared it from the
levels of devastation from Hurricane Katrina
and the resultant storm surge that flattened
much of the rest of the Lower Ninth Ward.
Most of the Neighborhood's assets remain in
tact including a rich architectural history, intact
infrastructure and a balance of land uses that
are stable and sustainable. It also occupies a
prominent location on the Mississippi River with
viable industrial activity. A major arterial (St.
Claude) provides direct access to downtown to
the west and to St. Bernard Parish to the east.
Holy Cross is also a mixed income
neighborhood with housing that serves a wide
range of incomes. These factors make earlier
recovery more likely. Repopulation of the Holy
Cross Neighborhood should not be as long nor
should it require as many resources as other
areas of the Lower Ninth Ward. However, it
still will need substantial assistance to maintain
its rich cultural and economic diversity.
The early recovery of this neighborhood is
essential as a symbol of the impending rebirth
of the entire Lower Ninth Ward. And with a
high percentage of rental units, the Holy Cross
Neighborhood can provide more immediate
housing opportunities to former residents who
want to return to the Lower Ninth but will need
more time to rebuild in the more heavily
damaged areas to the north.
Several neighborhood groups are participating
,EGEND
    
in restoration programs that utilize
contemporary green design standards.
Supplemented by an environmentally
sustainable infill housing strategy and
combined with the upgrading of the streets
and utilities, the rebuilding of the Holy Cross
Neighborhood will offer important examples
for the recovery of the entire Lower Ninth
Ward.
Some Common Goals for Holy
Cross/Lower Ninth Ward
• Develop a plan for a Sustainable Recovery
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• Establish a rational and equitable timetable
for re-building
• Incorporate the best ideas agreed upon in
previous studies, including the New Century
New Orleans Master Plan, that remain
relevant today.
• Acknowledge and build upon the
Neighborhood’s history and sense of
community.
• Develop a plan that not only addresses
problems created by Katrina but also those
identified before the storm.
• Establish a planning process that involves as
many neighborhood residents and
stakeholders as possible including former
residents that have been relocated.
• Implement infrastructure improvements that
provide residents and property with the
maximum possible protection from future
natural disasters.
• Create new economic and cultural activities
for neighborhood residents and visitors that
may be attracted to the Lower Ninth Ward.
• Strengthen the social, physical and economic
connections between the Lower Ninth Ward
and its neighboring communities
• Improve transit connections and service
reliability.
• Expand recreational opportunities for all age
groups.
• To the extent possible, restore and
preserve the Neighborhood’s historic and
cultural assets.
Planning Process and Neighborhood
Participation
generously given time and energy to the
Although prior to the storm the Holy Cross
Neighborhood had many established
community based organizations including the
Holy Cross Community Development
Corporation and the Holy Cross Neighborhood
Association among others, the forced
evacuation of the neighborhood and
subsequent long period of abandonment
limited the participation in the planning
process. The Holy Cross Neighborhood
Association noted that all but 60 of the
neighborhoods 6,000 residents fled the City
after Hurricane Katrina.
Those who have remained appear determined
to rebuild utilizing sustainable design and
restoration practices. The recovery plan
provides an overall framework for the
restoration of the Neighborhood. Within that
framework the Plan advocates for the infill and
new construction that is innovating, utilizes
sustainable design principles, is affordable and
is compatible with the historic scale and
character of the Neighborhood.
A series of highly publicized community
meetings beginning in early May at the Holy
Angels Church have been held with some
residents traveling hundreds of miles to
participate. In addition to the Holy Cross
Neighborhood Association and the HCCDC,
groups such as the Neighborhood
Empowerment Network Association have also
been involved in the planning process and have
been making residents aware of opportunities
to rebuild. The plan reflects input from these
residents and organizations that have
planning process.
-ETERS 

Planning Efforts Pre-Hurricane
Katrina
Although the Lower Ninth Ward as a whole had
been in decline prior to Hurricane Katrina, the
Holy Cross Neighborhood had been making
progress toward reversing that trend. Reasons
for the physical decline included the 1980’s real
estate bust,federal repeal of the renovation tax
credits and impacts from the widening of the
Inner Harbor Navigational Canal. The
Neighborhood’s proactive measures including
aggressive mitigation planning with the Army
Corp of Engineers regarding the canal widening,
discussions with the Port of New Orleans
regarding the long term use of the riverfront and
implementation of a infill housing program by
the HCCDC were starting to have a positive
impact.
In addition to the actions referenced above,
several other planning and revitalization efforts
were already in place. These initiatives include
the 1999 Land Use Plan, the New Century New
Orleans 2002 Parks, Recreation and Open Space
Master Plan, the 2004 Transportation Plan, and
the 2005 Lower 9th Ward Strategic
Improvement Zone Plan. In addition, the City
Planning Commission initiated the Riverfront
Vision 2005 Planning process and the University
Source: 2002 Parks Master Plan
of New Orleans College of Urban and Public
Affairs Citizen based planning effort of 1995
provided valuable insight into the residents’
specific concerns and goals.
The 1999 Land Use Plan summarized community
concerns by proposing a series of modifications
to existing land use categories. Perhaps the
most significant component of the Plan is
recognition of the changing economics related to
use of the riverfront. The decline of industrial
activity on the levee offers an opportunity to
introduce a mixed-use zoning category allowing
for a flexible mix of residential, commercial,
office and light manufacturing uses. This urban
mixed-use zone would allow for more intensive
development along the River providing stimulus
to redevelop abandoned buildings and
deteriorating wharves.
Retail uses supporting both neighborhood and
regional demands, would be focused on the
major arterials, St. Claude and N. Claiborne.
The long term use of Jackson Barracks in the
institutional use category envisions its
continuation as a National Guard station with a
vocational training facility and light industry as
additional optional uses. The presence of
numerous neighborhood churches was cited in
the 1999 Plan and the need for restrictions on
this use to ensure harmonious co-existence with
residential neighbors was articulated.
The Parks Master Plan of 2002 evaluated the
existing open space opportunities in the Lower
Ninth Ward against the (then) current
population trends. It was determined that the
neighborhood parks were overburdened and in
need of upgrading and expansion, particularly in
the eastern section of the neighborhood.
The Parks Master Plan recommendations
include:
• Another park in the Holy Cross Neighborhood
so children would not have to cross a major
roadway to find a playspot.
• Expanded green space and recreational
opportunities
along the riverfront
• Improved landscaping to the neutral grounds
and other major corridors,
• Expansion of the Delery Street Riverfront
Playground.
The 2004 Transportation Plan acknowledged the
general perception that the Lower Ninth Ward is
somewhat isolated from the rest of the City and
poorly served by mass transit. This situation is
exacerbated by operations of the St. Claude and
N. Claiborne Bridges over the Industrial Canal
that continually frustrate drivers and lengthen
commuting times. The neighborhood streets
are also deteriorating and many areas do not
have sidewalks.
As a result several recommendations were
proposed:
• Extend the Desire trolley line along St. Claude
to St. Bernard Parish and expand bus service
to the neighborhood.
• Proceed with the high level bridge at Florida
Street and develop a mitigation plan for the
Industrial Canal lock and bridge reconstruction
projects.
• Extend a pedestrian and bicycle path
(incorporated in the new St. Claude bridge)
through Holy Cross to St. Bernard’s Parish
• Address parking waivers for institutional uses
in the neighborhood. Improve and expand
mass transit services to the community and
extend dedicated bike path.
The Lower 9th Ward Strategic Improvement
Zone is part of a City wide neighborhood
revitalization strategy applying multiple planning
and funding resources would be applied to
distressed and blighted neighborhoods. This
Zone is bounded by the Industrial Canal to the
west, Dauphine Street to the south, Tupelo
Street to the east and N. Claiborne Avenue to
the north, and focuses on revitalization
opportunities along the St. Claude Avenue
corridor in both the Lower Ninth Ward and Hoy
City of New Orleans
Neighborhoods Rebuilding Plan
Cross Neighborhoods. The objective is to
“employ strategies of land acquisition,
rehabilitation, development, code enforcement,
land banking, community engagement,
transparent tracking technology and
partnerships” to revitalize targeted
neighborhoods in transition or decline.
The City’s Strategic Improvement Plan
recognizes a series of existing conditions that
provide opportunities for revitalization including
vacant and abandoned properties and
underutilitzed commercial property. Potential
government interventions including increased
police surveillance and code enforcement, and
expanded service such as healthcare.
The Riverfront Vision 2005 addresses
opportunities created by fundamental changes
in the maritime industry and the resultant
restructuring and consolidation of port
operations. The adaptive reuse of facilities no-
longer needed for industry makes possible the
development of less intrusive non-maritime
uses that could improve the residential quality
of the Neighborhood. The Riverfront Vision
advances several ideas including the
continuation of the Riverfront Promenade and
increased accessibility to the river’s edge. It
also proposes the renovation of existing 5
maritime facilities for residential and
commercial development
Specific recommendations include:
• Maintaining the existing viable industrial
component of the neighborhood.
• Change zoning of the area from the Industrial
Canal to Flood Street to Park and Recreation
use.
• Re-evaluate zoning for heavy industrial sites
from Flood St. to Jackson Barracks to facilitate
green space and mixed-use or residential
development.
• Provide a pedestrian connection linking the
levee open space to Jackson Barracks
• Improve the pedestrian and bike path
along the Riverfront from Flood to Delery
Street.
• Create pedestrian access points at Deslonde,
Andry, Alabo and Delery Streets.
• Provide a safe bicycle and pedestrian crossing
as part of the rehabilitation of the St. Claude
Bridge over the Industrial Canal.
 Holy Cross Neighborhood, Planning District Eight

Pre-Katrina Statistics Holy Cross City Wide

1980 1990 2000 % change 1980 1990 2000 % change
Population 6,482 6,101 5,507 -10% 557,515 496,938 484,674 -2.47%
% Black 77% 87.96% 55% 62% 67%
Housing units 2,369 2,385 2,340 -1.89% 226,055 225,573 215,091 -4.65%
B. Pre-Hurricane Katrina Neighborhood Home Ownership 54% 47% 36% 36%
Existing Conditions Mean Home Value $36,000 $50,500 $57,050 11.48% $62,700 $89,100 $130,000 31.46%

Population Characteristics
Although the Holy Cross Neighborhood is part of
a Lower Ninth Ward clearly in decline and one of
the poorest areas in the City, it was more stable
than the rest of the Ward (Planning District 8).
While the Ward showed a population decline of
18.3 % from 1980 to 1990, Holy Cross had only
a 6.2% decline. The Holy Cross Neighborhood
also had a more diverse population, 77% African
American versus 90% for District 8 as a whole.
neighborhood is not well served by retail which minor degree on the eastern end of St. Claude.
is limited to automobile related service Industry on the River has declined as
establishments, convenience retail and fast food restructuring and consolidation of port
establishments mostly located on St. Claude operations has shifted maritime industrial uses
Avenue. to areas better suited to accommodate
contemporary shipping needs (Riverfront Vision
Industrial uses in the Holy Cross Neighborhood 2005). However, the City and community
are located primarily on the waterfront and to a appear to have agreed upon a unified vision of
the waterfront’s development potential as a
mixed-use residential, commercial, and
entertainment destination.
Afto
Andrew Pete Sanchez Community Center and zones on the riverfront. A summary of the
the Martin Luther King, Jr. Magnet School both zoning categories is as follows:
located on N. Claiborne, the reuse of a
significant portion of the Holy Cross College for RD –Residential Two Family Zone that allows
a public purpose would be of interest to the detached and attached two family units
Neighborhood residents. The abandoned including townhouses.
Semmes School is also a potential resource as a RM – Residential Multi-Family Zone that allows
community facility. low rise and mid rise housing with a
maximum height of 75 feet.
Existing zoning follows the current low density RO - General Office in Residential Zone
residential land use pattern with commercial C-1 - Commercial Zoning allowing low density

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Prepared by: The City Planning Commission
Source: City of New Orleans – 1999 Land Use Plan March 2004
0 0.45 0.9 1.8
Mil MAP 3
Mississippi River Levee looking West

N. Claiborne Avenue Bridge over Industrial Canal
B-1 – Business
LI - Light Industrial
HI – Heavy Industry
Transportation
Two major arterials connect the Lower Ninth
Ward to the rest of New Orleans and to St.
Bernard Parish. Until the 1950’s, St. Claude
Avenue (Route 46) had been the only connection
back to the City and remains the major
commercial corridor of the Lower Ninth. N.
Claiborne Avenue also provides east-west
connection through the district.
These two roadways are subject to the
operations of the Industrial Canal which often
results in delays and frustration for the Lower
Ninth Ward residents resulting in some of the
longest travel to work times in the City.
Drawbridge operations also cause disruption to
bus service. Plans for a high span bridge at
Florida Street, another east west corridor on the
northern most end of the district, have been
developed to provide access to Interstate 10 but
these plans are currently on hold pending a
determination of the overall post-Hurricane
Katrina needs. Interstate 10 can also be
accessed by traveling east through St. Bernard
Parish to Route 47 North.
The local roadway system in the Lower Ninth
Ward suffers from substandard construction and
deferred maintenance, the Holy Cross
Neighborhood included. Many of the streets do
not have sidewalks and curbs and storm
drainage is channeled through open trenches.
Previous long term capital plans called only for
the reconstruction of St. Claude leaving the rest
City of New Orleans
Neighborhoods Rebuilding Plan
St. Claude Avenue Delery Street Playground
of the district with this substandard street Desire trolley line on St. Claude to St. Bernard Recreation and Open Space Claiborne Avenue at the foot of the bridge as
system for the foreseeable future. Parish. Concept plans for a “Crescent City Although the Holy Cross Neighborhood has the location for the Katrina Memorial Park.
Express” that would provide regional service on direct access to the Mississippi River levee for
The 2004 Transportation Master Plan proposed the N. Claiborne Corridor are also being open space uses, the neighborhood overall lacks Housing
the extension of bike routes through the District developed. These mass transit lines are sufficient and conveniently located The Lower Ninth Ward Neighborhood is a
specifically along the River levee. The phased extremely important to the Lower Ninth Ward neighborhood parks and playgrounds to meet its diverse community of largely single family and
plan would create bike lanes on Caffin linking to residents who have had to depend more on needs. Of particular concern is that two family homes with pockets of multi-family
Dauphine in the near term with long term automobile use for commuting because of the neighborhood children must cross a major dwellings along Egania and Burgundy. As the
extensions to Tupelo and Florida. unreliability of the bus service. A fixed light rail arterial (St. Claude Avenue) to reach area was originally part of plantations that were
system with a set schedule coordinated with the recreational facilities. The problem is further later subdivided into smaller lots to
The Lower Ninth is served by an Inter-Parish bus Industrial Canal operations would reduce auto compounded by the corresponding lack of open accommodated truck farms, the neighborhood
and local bus routes. Streets serviced include St. dependency and increase the desirability of space amenities in the rest of the Lower Ninth was not developed to the density of many of 7
Claude, N. Claiborne, Galvez and Rochblane. living in the Holy Cross/Lower Ninth Ward . Ward. The resulting damage from flooding has the central neighborhoods of New Orleans. The
Long term plans called for an extension of the resulted in opportunities to create some new farming community eventually gave way to an
open spaces in the Neighborhood. influx of African Americans and immigrant
#
LEGEND Although the lot coverage here creates a much
laborers in the late 1800’s and with it the
development of single family and duplex homes
less dense neighborhood when compared to the
a
Æ Interstates or Expressways rest of New Orleans, the small sites with a high
in the shotgun style. Predominantly single
story, single family housing continued as the
NAL
PROPOSED State Highways
FLORIDA AVE
BRIDGE AND ROAD Major and Minor Arterials percentage of building coverage and the large neighborhood expanded to the east and north.
IHN CA
IMPROVEMENTS Collector and Local Streets
Bridges
percentage of the population under 18 still Most of the Holy Cross neighborhood was
Æa Railroads
Bus Route
placed increased burdens on the neighborhood developed by the early 1900’s.
a
Æ a
Æ a
Æ Inter-Parish Bus Route park system. As a result the NO Parks and
Streetcar Line Recreation Department had determined in the As industrial activity declined, the residential
TALL
Institutional uses
2002 Master Plan that the existing parks needed
FORS
Industrial Uses neighborhood experienced a notable increase in
ST
Parks improvements and additional neighborhood
CAFFIN
N. CLA abandoned and adjudicated properties.
ST
IBORN
E AVE.
ELO
Proposed Improvements parks were needed. Increased disaffection with urban living,
TUP
Proposed Streetcar Line
a i
Æ Proposed Long Term changing maritime operations and the
a
Æ Streetcar Line Extension
Proposed Bike Routes (Phase 1) Other open space resources are the St. Claude desegregation of New Orleans’ schools all
ST. CLA Currently Planned Federal Aid
a
Æ UDE A
VE.
39
Road Project and N. Claiborne Neutral zones. But they are contributed to the neighborhood’s decline. The
< Improve Access poorly maintained and the St. Claude Neutral
NAVAL a
Æ Bridge
ground is further encumbered by the presence
creation of the Historic District and efforts to
i
#
ANNEX Commercial/Design restore and rehabilitate older homes have
DAUPH
INE ST. Æa Improvement Corridor
Potential Riverfront Development /
of an underutilized rail spur. combined to stabilize the neighborhood in
CHARTR PROPOSED LONG TERM 46 Study Area
ES ST. DESIRE STREETCAR recent years.
a
Æ
N
LINE EXTENSION
The neutral grounds are important community
MISSISSIPPI RIVER PLANNING DISTRICT 8 amenities and a source of pride. It is significant
Transportation Element of the Master Plan that the Lower Ninth Ward Homeowners
JACKSON Prepared by: The City Planning Commission
BARRACKS
0 0.5 1 Miles
March 2004 Association selected the neutral ground of N.
MAP 26
 Holy Cross Neighborhood, Planning District Eight
Camelback House Example
Architecture/Historic Preservation
Initially developed as plantations with sugar
being the major crop, there are no remaining
plantation structures that recall those earliest
days. The community is still rich with turn-of-
the century architecture and cultural facilities
contributing to its designation as a National
Historic District.
8 Most current residential structures relate to two
periods of development. The mid-1800’s saw
the development of Holy Cross as a farming
community with truck farms providing produce
to New Orleans restaurants and markets. Farm
houses of Eastlake, Italianate and Bracket style
were developed along with Creole cottages and
shotgun style homes.
The farming community was transformed by the
influx of African American and immigrant
laborers seeking jobs in the local industries. The
development of the affordable housing and
institutions to meet this growing population
followed. It was during this period that St.
Maurice Church was constructed (1857) and
during a twenty year period from 1859 to 1879
the Holy Cross College was developed.
Additional expansion occurred in the early 20th
century.
Most residential development in Holy Cross was
complete by the late 1880 with the exception of
some farm properties that were re-developed
much later to accommodate ranch style homes
and apartment buildings. The neighborhood’s
historic fabric has remained largely in tack.
Single Shotgun Houses Example Double Shotgun House Example St. Maurice Church
Several individual structures warrant had hipped roofs and minor overhangs over the
recognition. The St. Maurice Church (1857) front. Styles evolved with varying roof styles
was designed in the Spanish Mission style and including gable ends, with multiple bay singles
the church complex expanded in 1902 when the and multi-family houses know as shotgun
convent building for the Sisters of Perpetual doubles. Many of these styles can be found in
Adoration, designed by German architect Albert the Lower Ninth Ward along with adaptations
Diettel, was built. Two streamboat houses built like the Camelback.
on Egania Street by Captain Milton Doullut
(1905 and 1913) also grace the district and
were designated as the city’s first two
landmarks.
Jackson Barracks
The Jackson Barracks, which constitutes the
eastern border of the Holy Cross Neighborhood,
is also on the National Register of Historic
Places. Originally established in the 1820’s, the
Barracks occupied its current site in 1834 and
includes a magnificent collection of antebellum
brick military quarters. The Barracks have been
used for a multitude of purposes over the years
including a staging area for the Mexican
American War, Civil War Barracks for both Union
and Confederate Troops, billeting quarters for
Lt. Col. George Armstrong Custer’s Company L
of the 7th Cavalry and for the Buffalo Soldiers,
and most recently as headquarters for the
Louisiana National Guard.
Shotgun Houses
Of particular note is the predominance of the
shotgun style homes that can be found in the
Holy Cross Neighborhood. The Shotgun Style
refers to a floor plan where all of the rooms are
arranged directly behind one another. The
structures are wood frame with weatherboard
siding set on brick piers. The style originally

C. Hurricane Katrina
Neighborhood Impacts
Extent of Flooding
Hurricane Katrina created a 15 foot storm surge
that shot up the industrial canal and began
overflowing the levee walls by 5 feet. The
overflow led to a failure in the levee in two
locations sending a torrent of water into the
Lower Ninth and destroying a majority of the
homes north of N. Claiborne and west of Tupelo.
Flood water depths ranged from over thirteen
feet on the Florida and Tupelo Street corridors to
several feet on St. Claude Avenue.
The Holy Cross Neighborhood owes its survival
from Post-Katrina Flooding to the fact that it sits
higher in elevation than the balance of the
Lower Ninth Ward and was not flooded as
severely.
Winds from Katrina caused extensive damage to
nearly all of the overhead telephone and power
lines, the street lights and street signs. Many
trees were uprooted, particularly along the St.
Claude and N. Clairborne neutral grounds. Many
streets already in poor condition were further
undermined with buckling pavement and
sidewalks.
Property Damage Assessment
The impacts from Hurricane Katrina and Rita on
the Lower Ninth Ward Neighborhood were
unparalleled relative to the damage sustained in
other New Orleans neighborhoods. The Holy
Cross Neighborhood was far more fortunate as
the housing stock received less damage. Where
most of the structures north of St. Claude will
have to address the 1984 Base Flood Elevation
criteria before reconstruction can occur, the
buildings in the Holy Cross Neighborhood can
readily apply for building permits where repairs
should not exceed the 50% rule.
Residents still have significant challenges to
overcome, magnified by the lengthy period
before they were permitted to return to their
homes to initiate repairs. Utilities including
power and water were not restored until the
beginning of the summer of 2006 and many
homes remain without power today.
Based on a windshield survey conducted by the
design team in June of 2006, It is estimated that
few of the Holy Cross Neighborhood’s 1,500 pre-
Katrina structures are damaged beyond repair.
Flooding of the first floor did occur in most
buildings requiring repairs to the electrical
systems and interior walls but structural damage
City of New Orleans
Neighborhoods Rebuilding Plan
Example of building assessed in Good condition
appears limited. Wind damage was extensive,
especially to roofs and glazing. But few
structures in the area will have to be raised in
order to respond to the FEMA Base Flood
Elevation guidelines.
Commercial Property Damage
Assessment
St. Claude Avenue is the commercial corridor for
the Lower Ninth Ward. All of the businesses Example of building assessed in Fair condition
located along this corridor sustained
considerable flood and wind damage. Only a 9
few of the convenience retail, fast food
restaurants and automobile repair and servicing
operations have reopened. The Walgreen’s
pharmacy on St. Claude remains closed and its
future status will be a barometer of the progress
of the Lower Ninth Ward’s recovery.
Example of building assessed in Poor condition
Institutional Property Damage
Assessment
All of the major institutions in the Holy Cross
Neighborhood sustained flood damage and
were closed. Most remain closed with repairs
probably contingent on the pace of re-
population of the Neighborhood. The Holy
Cross School has reopened but is operating out
of trailers. St. Maurice Church is closed as are
the many churches that service the district.
 Holy Cross Neighborhood, Planning District Eight

Jackson Barracks

The State of Louisiana recently announced that

Jackson Barracks would undergo a $200 million
restoration, securing its future in the Holy
Cross/Lower Ninth Ward Neighborhoods. The
initial announcement indicated that the re-
designed Barracks would include support
services for the adjacent neighborhood possibly
including a healthcare facility, but the
preliminary Master Plan as currently shown
indicates uses related to National Guard
10 operations only.

Parks and Open Spaces Damage

Assessment
The primary public parks and open spaces in the
Holy Cross Neighborhood are limited to the levee
open space and the Delery Street Riverfront
Playground. Both sustained little damage from
Hurricane Katrina. The Sam Bonart Playground
located just north of St. Claude in the Lower
Ninth Ward Neighborhood is used by the Holy
Cross residents but remains closed. It is in an
area that received significant flooding so
significant repairs are required.

3UH.DWULQD 3RVW.DWULQD
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Building assessment from windshield survey conducted by design team June, 2006

D. Planning Approach
Key Issues
Several issues related to pre-storm and current
existing conditions directly impact the
reconstruction of the Holy Cross Neighborhood
and also offer opportunities to space future
development.
• Although Katrina and Rita caused a great deal
of damage to the community and its
infrastructure, there were many problems prior
to the storm that resulted in the Lower Ninth
Ward (including Holy Cross) experiencing a
significant decline in population.
• Many housing units in the area were below
contemporary standards and regularly
experienced flooding due to an inadequate
drainage system.
• The street system, already in poor condition, is
now in substantially worse condition.
• Transportation connections are unreliable due
to the Industrial Canal operations. Truck traffic
on residential streets in the neighborhood is a
source of friction.
• Many of the existing neighborhood schools
were in poor condition prior to the storm and
were under-performing academically.
• The neighborhood lacks adequate options for
quality shopping and has limited public services.
• Opportunities for jobs and economic
development within the Lower Ninth Ward are
limited.
• Recreational opportunities are not evenly
distributed nor do they meet the needs of every
age group.
Opportunities
Despite the many problems facing the Holy
Cross Neighborhood, there are also many assets
including its proximity to downtown, an
infrastructure that for the most part remains
intact, a community that wants to rebuild and
existing housing that can be restored and
improved including the use of sustainable
building technologies, methods and materials.
Other opportunities include:
• The rebuilding of the Holy Cross/Lower Ninth
Ward neighborhood presents opportunities to
improve the quality of life in the district including
new options for infill housing at a variety of
income level.
• Existing and future school buildings can be
programmed to serve multiple functions
including after school activity centers, spaces for
community meetings and events, public libraries,
computer resource centers and emergency
shelters.
• Strategic public sector investments including
strengthened levees, improved public
transportation, new schools and parks and open
spaces can enhance current property values and
encourage new private investment in the
neighborhood.
• A successful resolution of the Industrial Canal
locks and crossings is crucial to providing better
access Inner
for Lower
HarborNinthNavigation
Ward residents,
improving Port activities and expanding job
Canal Lock Replacement
opportunities.
Louisiana
• Investment in the waterfront areas not only
opens new opportunities for housing,
commercial activities and recreation but also
creates jobs and bolster tourism.
• The recently released $200 million rebuilding
plan for Jackson Barracks provides additional
opportunities to bring needed services to the
Lower Ninth Ward.
Basic Planning Assumptions
The planning and rebuilding of the Holy Cross
Neighborhood will require considerable outside
assistance. Key planning assumptions include:
• Accomplishing all of the recommendations
proposed on the Sketch Plans will require.
• Rebuilding will require several phases.
• Significant Federal and State funding will be
required for infrastructure improvements.
• State and Federal subsidies will be required to
help residents re-build and to attract private
developer interest.
• New housing and most rehabilitated housing
will have to meet Federal and State flood
elevation standards.
• Incentives will be provided to property owners
to rehab their homes consistent with the revised
FEMA standards and the City of New Orleans
Building Code.
• New construction in the areas of the
neighborhood most damaged present new land
use options and opportunities to develop new
housing types at varying densities.
• The rebuilding process should include the
introduction of commercial and light industrial
uses to increase employment and economic
development.
City of New Orleans
Neighborhoods Rebuilding Plan
• Institutional uses proposed in the Plan
include new and rehabilitated schools, more
social service and other community facilities
including healthcare facilities, additional open
space and recreation facilities.
• The Mississippi River and New Orleans Canal
system represent both economic and
recreational assets.
• Transit service to the Holy Cross/Lower Ninth
Ward neighborhoods will be improved to relieve 11
reliance on automobiles including the possibility
of streetcar service.
• The Plan assumes that it is possible to achieve
better visual and physical access to the Jackson
Barracks.
• The proposed plan is capable of a build-out of
enough housing to attain (if desired) a
population approaching the nearly 27,000
persons that lived in the area in 1980.
 Holy Cross Neighborhood, Planning District Eight

• The City, State and Federal Government will

• The flood protection system will be formulate policies and implement actions to
reconstructed to withstand future catastrophic facilitate the clean-up and maintenance of the
loss from a 1 in 100 year storm. public realm and private parcels in order to
create a healthy environment, project an image
of cleanliness and order and further aid the
community in the rebuilding process.

12

• Stringent Building codes will be implemented

to limit wind damage and flooding below the
Base Flood Elevation.

• The basic urban infrastructure is sound (Storm

and sanitary drainage systems as well as street
patterns). Future development will respect that
basic infrastructure but there will also be
opportunities for modifications to accommodate
new land uses and building typologies.

• The City of New Orleans will take steps

necessary to improve public safety in the Lower
Ninth Ward Neighborhood including creation of a
police substation.

• The City will accelerate its vacant and

adjudicated property program and site clearance
program to create an environment that will
entice residents to return to the Lower Ninth. Blighted and adjudicated properties from New Century New Orleans Master Plan 1999
 City of New Orleans
Neighborhoods Rebuilding Plan

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,QWHQVLYYHQHZFRQVWUXFWLRQ1HZVWUUHHWSDWWHUQVDQG
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initial “Sketch Plan” options were presented to
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13
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process to shape rebuilding strategies for the

 Holy Cross Neighborhood, Planning District Eight
Limited Restoration - Substantial rehabilitation and
substantial infill
neighborhood. These strategies establish
distribution, density and phasing for a wide
range of land-uses including housing,
commercial retail, institutions and light industry
necessary to create a healthy and sustainable
community.
Surveys were distributed at the community
meetings to discern the residents’ priorities for
the rebuilding effort. Survey results predictably
indicated that housing and restoration of utilities
14 High Restoration - Substantial rehabilitation with minor infill were the highest priorities and consequently
received the most attention in this plan.
A review of the Lower Ninth Ward post-
6XUYH\ Hurricane Katrina (as shown on Figure Ground
Diagrams) shows that the Holy Cross
Neighborhood sustained less damage from the
 %DVHGRQIHHGEDFNUHFHLYHGIURPWKH-XQH3UHVHQWDWLRQWKLVSODQFRPELQHVPDQ\RIWKHFRPSRQHQWVRIWKH6NHWFK storm this led to the design team’s initial
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Holy Cross Neighborhood should focus primarily
 7KLVSODQHVWDEOLVKHVDVSHFLDOVWXG\DUHDWRFUHDWHD7RZQ&HQWHUDORQJ1RUWK&ODLERUQH$YHQXH'R\RXOLNHWKHLGHDRI on conservation, historic restoration and infill.
SODFLQJVKRSSLQJDQHZKLJKVFKRRODFRPPXQLW\FHQWHUDQGVHQLRUKRXVLQJLQDFHQWUDOORFDWLRQLQWKHFRPPXQLW\" Based on post-Hurricane Katrina conditions, it is
assumed that the Holy Cross Neighborhood can
 7KLVSODQDOVRHVWDEOLVKHVDVSHFLDOVWXG\DUHDDORQJWKH0LVVLVVLSSL5LYHUWRFUHDWHDPL[HGXVHZDWHUIURQWGLVWULFWZLWK come back faster than the rest of the Lower
FRQGRPLQLXPVDSDUWPHQWVOLYHZRUNVWXGLRVVSHFLDOW\UHWDLOHQWHUWDLQPHQWDQGOLJKWLQGXVWU\'R\RXOLNHWKLVLGHDRUGR Ninth Ward.
\RXWKLQJWKHULYHUIURQWVKRXOGUHPDLQH[FOXVLYHO\OLJKWLQGXVWU\DQGVKLSSLQJ"
 7KLVSODQFRPELQHVWKHLGHDVSURSRVHGIRUWKH-RXUGDQ6WUHHWE\LQFOXGLQJDUHDVIRUERWKKRXVLQJDQGOLJKWLQGXVWU\'R Four potential redevelopment categories were
\RXDJUHHZLWKWKLVDSSURDFK" created and overlaid on the Lower Ninth Ward
including Holy Cross, to more definitively define
 7KLVSODQSURSRVHVWKDWWKHIXWXUHWUROOH\OLQHEHORFDWHGRQ1RUWK&ODLERUQH$YHQXHZKHUHLWZRXOGEHPRUHFHQWUDOWRWKH a range of redevelopment strategies from
/RZHU1LQWK:DUGDQGSURYLGHEHWWHUDFFHVVWRWKH³7RZQ´&HQWHU:RXOG\RXVXSSRUWWKLVUHFRPPHQGDWLRQ"
primarily restoration to more aggressive
 5HGHYHORSPHQWRIWKH/RZHU1LQWK:DUGZLOOKDYHWREHDFFRPSOLVKHGLQSKDVHV3OHDVHSULRULWL]HWKHSODQFRPSRQHQWV reconstruction. The levels of treatment applied
ZLWKRQHEHLQJWKHKLJKHVWSULRULW\BBB,QIUDVWUXFWXUH5RDG5HFRQVWUXFWLRQBBB+RXVLQJBBB7RZQ&HQWHUBBB6FKRRO to these categories were considered in the
5HFRQVWUXFWLRQBBB&DQDODQG%ULGJH5HFRQVWUXFWLRQBBB:DWHUIURQW'LVWULFW development of a phasing plan. The phasing
plan assumes that the areas requiring primarily
 $UHWKHUHDQ\SODQQLQJLGHDVWKDWZHGLGQRWLQFOXGHWKDW\RXWKLQNVKRXOGEHJLYHQFRQVLGHUDWLRQLHLVWKHUHDQ\WKLQJZH restoration, particularly those portions of the
Primarily New Construction - Major infill but limited
opportunities for rehabilitation
ownership, can be repopulated more quickly
with relatively fewer resources. Conversely, the
areas where the damage was more extensive
(in some cases total) the phasing plan assumes
will require a longer period of time to rebuild
and certainly at a greater cost.
The four categories are as follows:
• High Restoration – these areas have the
greatest number of existing structures that
survived that can be restored under the new
FEMA guidelines. The few vacant parcels could
be developed with infill housing of a compatible
style or distributed to adjacent property owners
under the City’s Lot Next Door Program.
• Limited Restoration – These areas retained a
critical mass of housing that can be restored,
retaining the existing parcel and building
pattern. Infill housing on the vacant parcels
could be either single or possibly multi-family
typologies. Alternate uses such as corner
convenience stores might also be possible on
streets carrying higher traffic.
• Primarily New Construction – These areas
retain few restorable properties but enough to
justify retaining the existing street and block
patterns. Parcel sizes could be adjusted to
create larger lots for either larger single family
or some duplex housing. New parcels and
buildings would still follow the neighborhood
pattern with orientation perpendicular to the
street.
• Intensive New Construction – These areas
Intensive New Construction - New urban pattern
can be considered to allow for lower densities,
more public open space, even alternative uses to
support job creation or service functions.
In the Holy Cross Neighborhood, early
intervention measures would focus on creating
the pubic improvements necessary to support
private endeavors, i.e., creating mixed use
waterfront zone. It is assumed that these
special projects would provide an additional
impetus for existing residents to reinvestment in
their properties.
Conceptual massing studies were prepared to
represent the various approaches. The “Type A
– Substantial Rehabilitation with Minor Infill”
would apply to most of the Holy Cross
Neighborhood.
Proposed Housing Initiatives
The City, State and Federal Governments have
created several funding and assistance programs
to help Gulf Coast residents rebuild. These
housing initiatives are particularly relative to the
Lower Ninth Ward where little value may remain
on existing properties.
This rebuilding plan has incorporated the public
programs to create a number of housing
initiatives. These initiatives are presented in the
overall policy element of the plan and issued
under separate cover. Indicated below is a
summary of these policies:
LOT NEXT DOOR
IRUJRW"
The principal thrust of redevelopment programs
Holy Cross and Lower Ninth Ward have many blocks where no dwellings survived. and policies that encourage the speedy
Neighborhoods with higher incidences of home Here alternative street layouts and parcelization

redevelopment of neighborhoods, must match
various government powers and financing tools
to the local housing and real estate market
conditions.
A key question will be how to most effectively
encourage the redevelopment of homes and
residential lots that fall into public ownership.
The “Lot Next Door” program is one of a series
of proposed housing policies which have been
developed as part of the Neighborhoods
rebuilding plan and takes direct aim at some of
the particular market hurdles that slow the
redevelopment of many of these properties.
In its simplest form the Lot Next Door program
will offer homeowners who are committed to
redeveloping their homes the ability to purchase
publicly owned adjoining properties prior to
these properties being offered to any other
buyers. This option would be provided should
the property end up in public ownership either
through the adjudication process or through the
sale of the property to a public entity through
the Road Home or other public acquisition
program.
ELDERLY MODERATE INCOME
CONDOMINIUM ROAD HOME TIE-IN
What has become quite apparent through the
neighborhood planning process is that senior
households have some of the longest ties to the
community and have been some of the
strongest voices for rebuilding and returning to
the City. Sadly they also face some of the most
significant challenges to redeveloping or
rebuilding their homes.
Historically, dealing with contractors, permit
inspectors, lenders, etc. has proved particularly
challenging for many elderly households.
Additionally, there are a substantial number of
areas of the City including Lakeview, and areas
of Gentilly, among others, where rebuilding
homes with damage in excess of 50 percent will
require total reconstruction at three feet above
grade or the Base Flood Elevations whichever is
greater. Many of these homes will have to be
raised close to one story making them a difficult
housing product type for people with physical
frailties.
Elderly homeowners are clearly a special case
with specific needs, and currently there are no
programs targeted to this subgroup of
homeowners.
A targeted elderly homeowner program is
needed which will allow elderly households to tie
their Road Home grant to senior specific elevator
multi-story condominium projects. There has
been wide support for dedicated multi-family
senior housing product in many parts of the City,
but particularly in areas where younger
homeowners have aging parents living nearby.
In some cases, there may be a need to increase
the grant amount or provide low interest loans to
the household if there is a gap between the
value of the buyout (and insurance proceeds)
and the market value price of the condominium
unit.
EXPANSION OF HOME PURCHASER
ASSISTANCE PROGRAMS/
LOT WRITE DOWN PROGRAMS - USE OF
REVOLVING FUNDS
One of the principal questions that has come up
again and again in our neighborhood meetings is
the issue of how are properties that end up in
public ownership either through the adjudicated
or buy back process are going to be resold in the
market . While the Lot Next Door program
provides one method for recycling the lots in the
market, there are going to be numerous lots that
are not acquired by next door neighbors that are
going to have to be sold on the open market.
Assuming that there are few new regulations
associated with developing housing (i.e. some
requirement that certain units must be
homeownership vs. rental) it is likely that the
value placed on many properties for sale will
determine how quickly that property will be
rebuilt for housing. Additionally, and realistically,
there are a variety of neighborhoods throughout
the City, where reducing the cost of a lot or unit
to essentially zero will not be enough to insure
the redevelopment of the property. These are
generally those neighborhoods prior to
Hurricane Katrina where land values were quite
low and homes were not built unless there was
significant targeted public assistance related to
construction.
Given varying market factors influencing the
redevelopment of housing in different
neighborhoods, there are a variety of strategies
that will have to be employed with regard to the
sale of lots acquired through the acquisition
program on the open market. These strategies
include the following:
All Neighborhoods Policy #1 – To the extent
possible, multiple adjacent lots within blocks and
lots within adjacent blocks should be sold to
experienced for-profit and not-for-profit builders
who have the management and financial
capacity to undertake multiple home
redevelopment projects concurrently.
All Neighborhoods Policy #2 – For those lots
that find their way into public ownership, the lots
should be sold back into the market at market
cost based on some form of Fair Market
Value/Appraisal Assessment. In some
neighborhoods, the fair market value may be
zero or close to zero, however there needs to be
a formal process in place to determine the value
of any given property. The principal reason why
the public sector should not sell lots in the
market at below market value is that the sale of
a large number of lots owned by government at
below market will naturally drive down the value
of properties sold in private transactions.
Revolving Funds from Higher Income
Neighborhood Property Sales to Properties in
Neighborhoods where Values are Lower – There
are a number of neighborhoods in New Orleans,
where there were high concentrations of
blighted and adjudicated properties prior to
Hurricane Katrina. Here the market value of
many single family scattered properties is nearly
zero. In these cases, it will be necessary to
write down the construction cost of units so they
are affordable to families below median incomes
and in turn structure the redevelopment of these
properties. No matter the program or structure,
in order to appropriately serve low and
moderate income families, either in rental or for-
sale housing, will cost significantly more than is
currently available in the system. Therefore,it
is necessary to establish policies that recycle the
sales proceeds from housing in neighborhoods
where the market value for housing exists to
neighborhoods where there is little or no existing
City of New Orleans
Neighborhoods Rebuilding Plan
land value and therefore significant subsidy is
required. In this way, the City will be using the
proceeds from public to private sales of lots in
higher income neighborhoods to assist the
redevelopment of housing in the low income
areas.
Housing
For the Residents of the Holy Cross
Neighborhood, rebuilding their homes has been
the number one priority. This seemed highly
achievable as conditions in the Holy Cross 15
Neighborhood after the flooding created the
impression that the flood damage was
manageable and a more rapid recovery might
be achieved. Rapid is a relative term and
certainly the pace of funding, efforts to create a
safe environment for reinvestment and
reoccupation (particularly completing the levee
repairs) and the restoration of utilities has been
much slower than expected.
Once utilities and basic infrastructure services
are restored, the most significant issue that will
affect the housing rebuilding process is
complying with flood zone restrictions, both for
rehabilitation and new construction. All
housing requiring a building permit must
address the FEMA Base Flood Elevation
guidelines. A matrix of housing typologies was
prepared to show some of the rebuilding
options and how each responds to critical
contextural and design factors.
Sustainable Design
For the Residents of the Holy Cross
Neighborhood, rebuilding their homes has been
the number one priority. This seemed highly
 Holy Cross Neighborhood, Planning District Eight
achievable as conditions in the Holy Cross
Neighborhood after the flooding created the
impression that the flood damage was
manageable and a more rapid recovery might be
achieved. Rapid is a relative term and certainly
%XLOGLQJ7\SRORJLHV
. 9. To mitigate blight, encourage stricter building
3. While preserving historic architecture, retrofit code enforcement by Neighborhood 1 (which
buildings with energy-efficient improvements write citations) and Administrative Adjudication 6XVWDLQDEOH5HKDE
7\SLFDORIWKH³VKRWJXQ´VW\OHKRXVHSUHYDOHQWLQ
and install energy systems that use indigenous hearing officers (who levy and enforce fines). WKH/RZHU1LQWK:DUG&DQEHUHDGLO\DGDSWDEOH
materials. WRPHHWFXUUHQW³&RGH´DQGE\UDLVLQJWRVWDQG
the slow pace of funding, creating a safe
environment for reinvestment and reoccupation
(particularly completing the levee repairs) and
restoring utilities have exceeded anyone’s
expectations.
16 Of particular note is the opportunity to improve
these historic properties by incorporating
sustainable building technologies. A report on
Sustainable Restoration prepare by Green
Design Advocates in association with the Holy
Cross Neighborhood Association includes
valuable guidelines that can maximize
restoration opportunities. Recommendations
include:
1. Use of long lasting materials in reconstruction
and repair to reduce maintenance, long-term
costs and environmental impacts. Examples:
a. Salvaged Cypress
b. Cementicious wood (hardiboard)
c. Real Wood Shutters
d. Well Designed eaves and gutters
e. Long tern roofing materials that meet
preservation codes
f. Bamboo flooring, grown on vacant lots in the
neighborhood
g. Concrete countertops
4. Continue educating residents about available
technology and how it could save them money
while saving the planet. Continue to bring in
experts to help throughout the recovery
process.
5. Increase the mix of available housing with
“resilient diversity” – for example, new options
such as co-housing. Provide a variety of
housing types to accommodate different income
levels and family types.
6. Provide information on financial assistance
and federal/state/local tax incentives for
purchasing energy-efficient products and
technologies.
7. Contact suppliers of energy-efficient
appliances and building materials to determine
whether they will offer discount for bulk
purchases. If so, aggregate the Ward’s needs –
and possible the needs of other parts of the City
– to place bulk orders.
8. Review housing recommendations from past
planning exercises and re-adopt those that
remain relevant. For example, a and the neutral ground is critical.
recommendation that emerged from a 1995 plan
The ultimate objective is to hasten the
restoration and repopulation of a historically
significant neighborhood in a manner that
protects its historic integrity but also employs
new standards of Green Design and
sustainability. The Lambert Advisory/Stull and
Lee, Inc. plan recommends sustainable design
principles at the neighborhood wide level with
greater infill construction and increased density
as an example. The plan also supports
sustainable design and innovation at the level of
individual building designs both restoration and
new construction.
A major goal is the restoration of structures in
an historically sensitive manner to maintain the
integrity of the individual structures and the
Historic Register District status.
St. Claude Avenue Commercial Corridor
St. Claude and N. Claiborne are the main
arteries of the Lower Ninth Ward with St. Claude
being the original crosstown corridor. As the
public “living room” of the neighborhood, it is
the principal accessway into the Lower Ninth
Ward and the front door to the Holy Cross
neighborhood. The restoration of this corridor
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VODERQJUDGHDQGDUHWKHUHIRUHQRWUHDGLO\
DGDSWDEOHWRPHHWQHZ)HGHUDODQG&LW\RI1HZ
2UOHDQVEXLOGLQJVWDQGDUGVWKDWUHTXLUHKRXVHEH
EXLOWWKUHHIHHWDERYH%)(2ZQHUVFDQREWDLQ
DSHUPLWWRUHSDLUUHVWRUHKRPHVWKDWKDYHQRW
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:DUGPDQ\H[LVWLQJKRPHVRQSLOHVZLOOKDYH
WREHHOHYDWHGWRPHHWWKLVVWDQGDUGDQGDOOQHZ
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$QDOWHUQDWLYHWRWKHIRRWIRXQGDWLRQZRXOGEH
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2. Build for resilience, using materials and
techniques that increase each building’s ability
to withstand and quickly recover from disasters
developed with the University of New Orleans
called for creating a Housing Renovation
Committee to help residents apply for
assistance.
St. Claude Avenue is also a major east west 6WDQGDUGFRQVWUXFWLRQVWLFNEXLOWRUPRGXODUFDQ
circulation corridor and carries a high volume of EHSODFHGRQWKHIRXQGDWLRQDERYHWKHUHTXLUHG
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regional traffic. It has been recognized in the 
 City of New Orleans
Neighborhoods Rebuilding Plan

1999 Land Use Plan as the primary commercial
corridor for the Lower Ninth Ward and should be
redeveloped with neighborhood commercial
uses. Because it is a major arterial, regional
commercial activities have also been
recommended at the Tupelo intersection for
example to meet the needs of the adjacent
communities. This mixed-use zone could also
provide multifamily housing above the ground
floor commercial to take advantage of proximity
to mass transit and other service located on the
corridor.
Jackson Barracks could provide additional
incentives to restore the other residential and
institutional properties in this section of the
neighborhood.
A conceptual visualization of the Waterfront
Mixed use Zone has been developed as a part of
the plan.
17

Finally, St. Claude has a broad neutral zone.

Landscape improvements particularly street
trees and lighting would restore St. Claude as a
grand boulevard and dramatically improve the
public perception of the neighborhood to the
substantial number of people who use this
crosstown route.

Mixed Use Waterfront District

The 1999 Land Use Plan and the Riverfront
Vision 2005 Plan both recognize that the
changing economics of maritime industries
create the opportunity for more diverse uses
including residential, commercial, and
recreational uses in the abandoned heavy
industrial district on the Mississippi River. The
adaptive reuse of warehouse and manufacturing
buildings into live/work space with specialty
retail and compatible light industry uses could
create a very special destination in Holy Cross.
This not only provides the opportunity to utilize
the unique industrial architecture and bring life
to an abandoned site. Redevelopment of this
area coupled with the improvements planned for
 Holy Cross Neighborhood, Planning District Eight
Light Industry
The Lower Ninth Ward and the Holy Cross
Neighborhood’s decline can be traced to the
closing of industries based along the River and
the Industrial Canal and the resultant loss of
jobs. With changes in manufacturing and the
evolution of light industry – manufacturing and
product processing facilities mostly related to
high tech have evolved that do not produce the
negative environmental effects of traditional
18
industries. With care in design and
programming, certain industrial uses can be
compatible residential neighbors and sources of
jobs and economic development.
The abandoned rail lines and industrial sites in
the southeast corner of the Holy Cross
Neighborhood present an opportunity for the
development of light industrial uses. It is an
area that can be assembled without relocations.
By breaking up the facades, using color and
New light industrial development could be windows and landscaping; these light industrial
designed to buffer the residential areas of the buildings would be far more compatible with the
Lower Ninth from the impacts from existing residential scale of the neighborhood.
industrial activity on the River. Truck activity and The proposed plan could provide 420,000
the resultant impact on the residential square feet of light industrial space with the
community would still have to be mitigated but potential of providing 400 jobs
shipping activities related to contemporary light
industrial activity tend to be less intrusive and
can be managed. Most importantly, the new use
would provide jobs for the Holy Cross residents.
These sites cold also host live/work building
typologies as well. These are sites most suited to
innovative architecture without as many
contextual restraints.
 City of New Orleans
Neighborhoods Rebuilding Plan

G. Project Priorities

Many factors will affect the timing of the $&RPP

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rebuilding and repopulation process including
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residents to rebuild and find jobs. Part of the 3URMHFW3ULRULWLH
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19
relationship on the rebuilding process – the
more severe the damage coupled with  5HFRQVWUXFWLRQRIIDLOHGSDYHPHQW
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 City of New Orleans
Neighborhoods Rebuilding Plan

and the level of public funding required to in conjunction with the street reconstruction as reconstruction; additionally other sources of
realize each project or task. The action plan an early action item. Street lighting should be cost identification included the Means Cost Data
was divided into three phases: Early Action Plan spaced every 100 feet and/or consistent with and our team’s professional experience inside
elements to be realized in a 1 to 3 year period; City of New Orleans Department of Public Works and outside of New Orleans.
Mid-Term Action Plans to be realized in a 1 to 5 standards.
year period and Long Term Action Plans to be No single source of funding or financial plan will
realized over 1 to 10 years. Street Trees – Street trees should be planted as be capable of dealing with the level of capital
part of the street reconstruction process. Street improvements needed for total redevelopment
Project Priority Assumptions trees were not included initially on the north- and reconstruction of all the projects. However,
Street Reconstruction – Almost all of the south streets since some of these are short the funding matrix included in this report shows
neighborhood streets require some level of work blocks and many do not have sufficient different funding sources that could be made
Some have damage dating back to flooding easements and/or lawn area to accommodate available for specific projects and it should be 21
associated with Hurricane Betsy. Many of the the trees. Neutral zone plantings will be expected multiple sources of funding will be
streets never had curbs and sidewalks and have included under the St. Claude Improvements. required in most cases. The ability to obtain
open trenches for storm drainage. these funds will rest with the City of New
Reconstruction of these streets could be Street Signs – Most of the street signs were Orleans. the State and the Federal Government
deferred in favor of roadways requiring even blown away by Hurricane Katrina. As a result, all and neighborhood groups and advisory
more immediate attention; however, this of the neighborhood streets would get new committees.
community has had to live with substandard street signs as part of the early action plan for
streets since long before Katrina. It would be public safety. Each matrix matches proposed projects with
appropriate to proceed with full reconstruction potential funding sources identified in the
of all of the streets as an early action item. This planning process. While not exhaustive in its
would also minimize impacts to residents Project Priorities Funding Matrix scope, it serves as a guide to where funds could
repairing their homes by not having to live What tie the Neighborhoods Rebuilding Plan to originate. A substantial financial commitment
through major disruption for a third time in 10 funding are the identification of specific projects by federal and state entities are a vital
years. and an estimate of initial cost (by project) for ingredient in the recovery effort and is needed
each neighborhood. The cost analyses are to provide the necessary economic
Bringing this neighborhood up to contemporary provided on an order-of-magnitude basis as to infrastructure to attract private investment
standards is also a goal of the reconstruction the scope and magnitude of the project necessary to create stable and vibrant
process and as such should include moving proposed and the investment required. As such, communities.
utilities underground. The Gulf Coast is prone to variations as to the scope of the project could
experience catastrophic storms that result in result in variations on the final cost of Each funding matrix, based upon consultation
significant wind damage. By locating utilities construction. with neighborhood residents through the
underground, the chances of power outages community meeting process, also ranked
would be substantially diminished. In the process of the cost analyses, projects based upon priority of need with
consultations were carried out with the City of regard to recovery: “Early Action/Critical”;
Street Lights – Street lights should be replaced New Orleans Public Works Department to “Mid-Term/Needed”; and “Long Term/Desired”.
identify general cost guidelines typically used for This ranking provides a general guide as to
Street conditions survey conducted by design team August, 2006 the calculation of street improvements and what community residents believe are the
 Holy Cross Neighborhood, Planning District Eight

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H. Strategic Interventions
The following is description of the early and mid
term projects proposed for the Lower Ninth
Ward Neighborhood Rebuilding Plan.
Strategic Intervention No. 1 - Street
Repair
The Street Repair initiative would be part of
multi-pronged approach to support
rehabilitation of the Holy Cross/Lower Ninth
Ward Neighborhood. This public investment is
needed not only to repair damage from Katrina
but to also correct decades of neglect and
deferred maintenance dating back to Hurricane
Betsy. The intent is that all of the streets be
evaluated and brought to contemporary
standards as an early action. This street
reconstruction effort should include basic
streetscape components such as street signs
and lighting, both heavily damaged by the
storm. Street trees should also be included as a
neighborhood greening/street beautification
effort. Particular attention should be given to
the Forstall/Lizardi blocks that had been
targeted Pre-Katrina.
Strategic Intervention No. 2 – Implement
Housing Recovery Initiatives
The number one priority of the residents of the
neighborhood is housing. There are a series of
City, State and Federal initiatives available to the
residents that would assist them in that process
but the tools to access those initiatives are not
yet readily available. The City of New Orleans
will need to take active measures to assist the
residents and insure that they are actively
involved in the rebuilding process.
Claiborne Neutral Ground Upgrades - Katrina Memorial
A first step could be the establishment of a
Housing Assistance Center that would be
neighborhood based and would provide up to
date information regarding funding and other
services available to residents. This center could
address such issues as the FEMA grant program,
the new Base Flood Elevation requirements, the
City of New Orleans building permit process, the
Lot Next Door Program, and the Road Home
Program.
Strategic Intervention No. 3 – Waterfront
Live/Work Housing
Key to the recovery of the neighborhood is
addressing the abandoned industrial area
located next to one of the City’s greatest assets,
the Mississippi River. No longer needed for
heavy maritime industry, these brick and metal
industrial buildings have great potential for reuse
as live/work housing and to accommodate
commercial activities. New Orleans own
warehouse district is an immediate example of
what this waterfront area could become. The
proposed plan shows existing structures and
property that could be developed in the early
action period to create up to 500,000 square
feet of mixed use space including (250 to 300
housing units).
Strategic Intervention No. 4 – Levee Park
Expansion
The Mississippi River levee has long been
recognized as a valuable open space resource by
the community and more recently as an
important component of the New Orleans and
river walkway. The planned extension of this
walkway from Flood Street to Jackson barracks
and St. Bernard Parish should be implemented
as an early action item. This would continue
pre-Katrina efforts to increase access to the
River and to mitigate the real and perceived
isolation of these neighborhoods from the rest of
New Orleans.
The community has long suffered form limited
and poor quality retail stores. The plan
proposes the creation of new shopping choices
with a supermarket, pharmacy and other retail
services in a centrally located new “Town
Center” to support returning residents and
attract new residents. The stores could also be
utilized by commuters using N. Claiborne to
access the City. The proposed plan shows a
composition of structures providing
approximately 145,000 square feet of space.
Former business owners that might wish to
return to the Lower Ninth Ward should have the
first opportunity to participate in the new “Town
Center”.
Strategic Intervention No. 5 – New
Neighborhood Elementary School
Many of the existing Lower Ninth Ward
elementary schools are beyond repair and are
remote to the Holy Cross Neighborhood. Private
schools such as St. Maurice School may not
reopen. A neighborhood based elementary
school could be provided in either a new or
renovated facility. A new K-8 elementary school
would be approximately 70,000 square feet and
cold accommodate 650 students.
City of New Orleans
Neighborhoods Rebuilding Plan
Strategic Intervention No. 6 – Jackson
Barracks
The approval of a $200 Million Master Plan to
restore Jackson Barracks ensuring its long term
presence in the Holy Cross/Lower Ninth Ward
neighborhoods is a significant commitment by
the State of Louisiana. The Community should
have a continued role in the master planning
process to insure that the Barracks continue as
a good neighbor to the neighborhood. An item
that must be addressed is Dauphine Street and
how this connection that links Holy Cross with 23
Arabi is preserved. Other items to be addressed
include access to the River, and more engaging
design of security fencing and of guard gates.
Strategic Intervention No. 7 -
Neighborhood Mixed Use District
The redevelopment of the existing industrial
buildings on the banks of the Mississippi River
should be complemented by further
development of a larger mixed-use district that
continues to utilize vacant riverfront industrial
land to create housing and jobs. The district
could include additional multi-family housing
integrated with compatible light-industrial uses,
neighborhood parks and festive, public
waterfront retail and institutional uses.
 Holy Cross Neighborhood, Planning District Eight

24

Strategic Intervention No. 8 – Community

Center
In addition to the elementary school, there is
the need to provide community facilities
including meeting spaces, senior services, youth
recreation, etc. This facility could be
incorporated into the school complex or in a
renovated building.

Strategic Intervention No. 9 – Holy Cross

School
The long term use of the Holy Cross High School
and campus is a major concern of the
neighborhood. Should the institution relocate,
the opportunity is created to re-use the campus
for additional housing and/or mixed use
development. The existing athletic fields could
remain and continue to provide the park and
recreation resources the neighborhood
desperately needs.

H. A Community Vision for the future of the Lower Ninth
Ward Neighborhood
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 City of New Orleans
Neighborhoods Rebuilding Plan

27