Emmitsburg Comprehensive Plan Chapter 8

Town of Emmitsburg
300A S. Seton Ave Emmitsburg, Maryland
21727
240-629-6300

Emmitsburg Comprehensive Plan
A General Plan for Emmitsburg, Maryland

Chapter 1: Introduction
Chapter 2: The 1974 Comprehensive Plan for Emmitsburg
Chapter 3: Demographic Element
Chapter 4: Land Use Element
Chapter 5: Transportation Element
Chapter 6: Housing
Chapter 7: Economic Development and Renewal
Chapter 8: Community Design Element
Chapter 9: Community Facilities
Chapter 10: Environment and Sensitive Areas
Chapter 11: Implementation Strategies

Chapter 8: Community Design Element

EMMITSBURG DESIGN CHARACTERISTICS AND PATTERNS OF PUBLIC SPACE

Of all the places that we use in the course of our everyday lives there are probably none that we know as well or value as much as the place where we live. Many of the perceptions that one has of the community where they live are shaped by the built environment and its relationship to natural features. These include variations in building design, geographic and topographic features, characteristics of streets and public improvements, as well as distinctive aspects of trees and other forms of vegetation. Particularly important is the special relationship that exists between buildings and open spaces, including the way that buildings are located in relationship to the street, public way or adjacent open space.

The design characteristics that define Emmitsburg are found primarily in the Historic Village policy area. The Historic Village policy area roughly comprises the original plat of Emmitsburg. To most residents and visitors, the Historic A Village policy area represents the "authentic Emmitsburg." The principal buildings in Emmitsburg are located in the Historic Village policy area and represent a variety of architectural styles. The wealth of architectural design styles is particularly evident in the area of the Town Square. This is in contrast to the newer Neighborhood District or Gateway policy areas on the periphery of the Historic Village.

The more recently developed areas feature design characteristics that are more ubiquitous, having less to do with Emmitsburg design attributes and more to do with the typical suburban design concepts. These newer suburban-oriented residential and commercial developments located outside of the Historic Village policy area tend to be conventional in style and could very well be located anywhere in Maryland or in the United States. Of concern is not only the ubiquitous architectural styles of the newer development, but the inappropriate siting of newer buildings in relation to the street and other buildings, and particularly the way that off-street automobile parking is accommodated in newer developments. Full pedestrian access is not a consideration to the developers of these new developments. Instead, residents are expected to use the automobile even for short trips in or out of their neighborhood.

It is not merely enough for new development only to provide acceptable roads, expand the water and sewer systems, or to observe zoning and building codes. New development must respect the qualities of the Town and contribute new features that are compatible with the existing architectural and site design features; features that serve to enhance the character of the Emmitsburg. Future growth within the Town should respect, reinforce, and where appropriate, reinterpret the distinctive architectural and landscape design characteristics that are unique to Emmitsburg, while allowing for pedestrian connectivity both inside and outside of the development.

Chapter Eight: Community Design Element

ANALYSIS OF EMMITSBURG'S TOWN STRUCTURE

The unique and often idiosyncratic design characteristics of Emmitsburg are the result of

development processes that occurred in the late 18th and early 1 9th centuries. The layout of Emmitsburg occurred one hundred and seventy years prior to the adoption of zoning by the Town. Emmitsburg was platted in a rectilinear street grid pattern that has its antecedent in classic Roman town design. Integral to the classical town design concept are the use of two principal streets which create a central public area at their juncture. Emmitsburg follows this classical Roman model with one central street, the "cardo maximus- (i.e., Main Street), and a central crossing street the "decumanus maximus" (i.e., Seton Avenue). The location where these streets cross is marked by indentation of the building fronts creating the Town Square and is distinguished by the most prominent building architecture within Emmitsburg. The center of this intersection was formerly the location of a well and watering troth for livestock. Later, a large public fountain was placed over the original well, which has since been removed to accommodate vehicular traffic in the Town Square.

The original plat of Emmitsburg laid out the major and minor streets and alleys, and public areas. These were platted prior to development of the Town. Individual lots that conformed to the established street grid were sold by deed and the ensuing development within the Town followed the established street patterns for over a century and a half. For the most part, land uses were not separated from one another as they are today. Commercial businesses and small industrial operations were interspersed in and among residences in the Town. The 1808 map of Emmitsburg indicates two lots located on the north side of (East) Main Street and other lots located north of DePaul Street that were owned by John Armstrong, the renowned early Emmitsburg gunsmith. (See Map VIII.2).

Historically, most development within the original plat of Emmitsburg occurred along the length of Main Street, which extends southeast to northwest. North Avenue and Lincoln Avenue were established as alleys or minor streets that parallel Main Street to the north and south respectively throughout the downtown area. Seton Avenue is the most prominent street that runs perpendicular to Main Street. Seton Avenue was constructed as a principal north-south thoroughfare and was developed at a high standard similar to Main Street. Federal Avenue is another street that runs perpendicular to East Main Street, extending through the higher elevations north of Main Street and terminating at North Seton Avenue near Flat Run. Federal Avenue was developed at a less high standard than Main Street and Seton Avenue. Most other streets that run perpendicular to Main Street are alleys or minor streets which connect Lincoln Avenue and North Avenue, with the exception of St. Joseph's Lane, a minor street, which extends north of DePaul Street to North Seton Avenue.

EMMITSBURG'S COMMUNITY CHARACTER

The central issues of community design is a question of the appropriate relationships between structures and outdoor spaces, and human movement among these man-made and natural features. The patterns of mixed use development, and the effective integration of the automobile into the community fabric must be addressed for Emmitsburg to renew and recreate the vibrant and pedestrian friendly neighborhoods of its past.

The principal town design characteristics in central core of Emmitsburg include the following features:

(Insert Map VIII.1: Community Design Characteristics)

Town Center with buildings fronting and abutting the street edge, a mix of residential and commercial uses, restaurants, gathering places, and professional and non professional services, a fire company, and a municipal government building. Prominent three and four story buildings with distinctive architectural styles centrally located in the Town Square.
Compact two story townhouse/rowhouses and detached housing along the Main Street corridor.
A residential density exceeding ten units per acre in Town Square area. Rear alley access to structures that front Main Street.
On street parking along Main Street with no front yard parking.
Pedestrian access throughout the Main Street and Seton Avenue corridors and complete pedestrian mobility at the Town Square intersection.
Commercial operations geared to both resident and visitor needs (i.e., restaurants, card shops, electronics store, and bank).
Residential neighborhoods adjacent to the Town Center.
Civic open spaces near to the Main Street corridor and rural open spaces at the periphery of the Town.
Distinctive street lighting, street trees, and overall streetscape design along the Main Street.
Streets scaled to accommodate both pedestrian use and vehicular traffic rather than being over engineered to accommodate worst case scenarios."
Incremental growth and lessening of density outward from the Town Center.

Traditionally in Emmitsburg, buildings have been located close to the street and this has helped to form a definitive architectural edge throughout Emmitsburg. Variety in building types and massing, roof pitches, small variations in setbacks, open space and other site features including fences and trees have served to create diversity throughout the Town Center. The sustainable design characteristics of the Town Center and the principals of massing that are evident there shall be considered in all new development throughout Emmitsburg.

ACHIEVING SUSTAINABLE SITE DESIGN IN EMMITSBURG

This Plan is founded on the assumption that careful site planning and design based on established townscape principals will allow Emmitsburg to grow in a manner that better reflects its special community character. In lieu of rigid dimensional requirements, basic performance standards will help guide the design and review of future development proposals.

SITE ANALYSIS PLAN

Any and all site plans or plans of subdivision submitted in Emmitsburg should be designed only through careful consideration of a variety of factors, only one of which involves the Emmitsburg zoning regulations. The following features shall be compiled as a Site Analysis Plan and submitted at the Concept Plan or the Preliminary Plan phase of a development: 1) views to and from the site; 2) on-sit and nearby topography; 3) on-site and nearby historic and prominent structures and features; 4) adjacent or nearby patterns of development;

(Insert Map VIII.1: Community Design Characteristics)

4) on-site op n space resources and nearby park, greenway, and open space resources and opportunities; 5) on-site and nearby landscape, environmental and related sensitive area features; and 6) nearby or adjacent sidewalks and pedestrian path/bicycle linkages. The Site Analysis Plan shall be used throughout the site plan or subdivision approval process to shape the Preliminary and the Final Site Plan.

The Site Analysis Plan shall enable the Planning Commission and the applicant to be more aware of the unique opportunities presented by each site, and assist in better site planning and more sustainable developments. Submittal of a Site Analysis Plan shall be required by the Zoning Ordinance and the Subdivision regulations and specific elements to be included on each Plan shall be identified.

GENERAL PRINCIPLES OF SUSTAINABLE DESIGN

A series of General Principles shall be used to achieve sustainable and compatible site and subdivision design throughout Emmitsburg. The following General Principles of Sustainable Design are intended to guide the design and the review of future development proposals in Emmitsburg. These do not involve rigid dimensional requirements for new development and subdivisions, instead they include a series of performance standards for new development that are based upon Emmitsburg's traditional town plan and legacy of building placement and design. The following General Principles of Sustainable Design are intended to encourage creative site planning and innovative design concepts to resolve the various issues and conflicts related to future development in and around the Town. In essence, these principles are intended to achieve a balance between the economic, environmental, and social needs of Emmitsburg's residents and business community, while respecting the heritage of Emmitsburg's built environment. They are designed to promote and guide sustainable development patterns that are in keeping with Emmitsburg's existing town pattern and design concepts. The General Principles are intended to result in town design that will allow Emmitsburg's current residents and business community to meet their needs and aspirations without compromising the ability of Emmitsburg's future generations to meet their own needs and aspirations.

Landscape Architecture/Site Planning

Locate new buildings or additions close to the road along the principal streets of East and West Main Street and North and South Seton Avenue and along other principal streets within the corporate limits of the Town. This will further the traditional "street line" of facades, with the buildings forming an edge to the roadway, instead of allowing these principal corridors to become dominated by large vehicular parking areas.
Rectilinear blocks shall be the main organizing feature in new developments. While topography, vegetation, hydrology, proposed use, and design intentions will ultimately determine block size, residential areas generally have small block widths and lengths. Pedestrian movement is best encouraged by blocks not exceeding 400 ft. in length.
The streetscape of new developments should be designed to avoid repetitious setbacks, driveways, elevations, and landscaping.
Design prominent buildings and other architectural features in the most visible locations on proposed development sites that can serve as landmarks, symbols, or as areas of focus for community identity.
Design attractive pedestrian oriented-environments throughout all new developments, including the creation of configured squares, greens, landscaped streets, and parks woven into the pattern of mixed use neighborhood centers. Proposed development plans shall respect the parkand pedestrian access needs of both current and future residents.
Create pedestrian-oriented open spaces and usable park space in new developments by grouping buildings together in clusters and by consolidating the preserved open space with park and greenways that link with the Emmitsburg Greenways network.
New developments should carefully reflect the structural diversity of the Town Center in regard to the mixture of housing types and styles, and the mixture of lot sizes and shapes. Proposed developments should exhibit the variety, irregularity, and uniqueness in building location and design, reflecting the context of traditional Emmitsburg building patterns.
Plant large deciduous street trees along road sides and in median areas to shade and enclose the street and adjacent buildings.

Architecture/Urban Design

New building design should be sympathetic to the traditional architecture of Emmitsburg, but should not slavishly copy the historic architectural patterns in the older parts of Town. This includes scale and massing of structures, roof shape, gable orientation, window size and spacing, and exterior facade treatment of buildings.
New neighborhoods should incorporate a village core area with a central civic park or village green, which will also be the location of prominent buildings in the community.
Mixed use development where dwellings, shops, parks, and institutional uses are generally located in proximity to each other should be encouraged in village core areas, including residences located above commercial uses. Reuse of older buildings and additions to structures is encouraged rather than destruction of Emmitsburg's existing building inventory.
Creative adaptation of traditional Emmitsburg building forms is encouraged, with special attention paid to nearby older structures.
Buildings should be oriented toward the street and front setbacks should be varied and established as a maximum, rather than a minimum, in both existing areas and in newly developing areas.

Transportation and Parking

Street s should be interconnected and generally arranged in rectilinear block pattern to provide comprehensible and varied ways of travel throughout the community. Alleys are encouraged to provide rear access to residences and businesses.
Streets should terminate on other roads and streets.
Street definition should be sought by emphasizing block corners and by designing the streets to terminate on a significant feature, such as a centrally placed building, clock tower or church spire, or some significant view or vista.
Pedestrian access and linkages to Emmitsburg Greenways network should be accounted for in all new developments and complete pedestrian mobility should be encouraged in the design of all streets, bridges and intersections within the Town.
Parking should be placed to the rear or side of new commercial buildings to create a strong building edge along the street and to promote pedestrian access throughout Emmitsburg.
Front parking for residential and commercial structures should not be encouraged throughout Emmitsburg, instead, alley access and side and rear parking areas should be preferred options, as well as on-street parking along properly designated streets.
Ample landscaping should be provided for all parking lots to provide shade and to buffer cars from neighboring properties. Large expanses of asphalt should be reduced into smaller visual units, without sacrificing parking availability.
Parking lots should be consolidated and shared between adjacent uses with the use of interconnected parking areas, alleys, and new roads behind commercial buildings to reduce traffic congestion.
Street widths and alignments should be carefully scaled to neighborhood size and be patterned after the character of existing residential streets. Roads shall be designed to minimize the visual size and scale of the development and help discourage excessive speeds.
Consolidate scattered vehicular curb cut entrances into a number of smaller, clearly defined entrances with three and four-way intersections which can be effectively monitored and that promote vehicular and pedestrian safety.

Open Space, Parks, and Greenways

New subdivision proposals and site plans should include creatively designed open space, parks and greenways resources. Plans should provide pedestrian usable open space and park resources designed for recreational and social use by residents, shoppers, and employees. The plans should outline the specific open space design concepts that will be used in each of the designated areas. Open space pedestrian areas should be included in the plans for residential, commercial, employment and mixed use developments in Emmitsburg.
All open space (landscaped and usable) should be designed to add to the visual amenities of the area by maximizing its visibility for persons passing the site or overlooking it from nearby properties.
Creatively designed open space areas should be proposed to link with Emmitsburg's existing and planned network of sidewalks and greenways, providing linkages to parks, schools and recreational facilities throughout the Town.
Special incentives, including density bonuses, may be awarded during the development process to encourage the dedication of more usable and creatively designed park and open space resources, as well as connecting trails to link to the Town greenways network.
The Town should use either a Sliding Scale for Park/Open Space dedications or a Point Guidance System which awards incentives based upon criteria which correlate to specific benefits to the Town that will be provided by the open space, park, or greenways dedications that are proposed for a new development. This should be done at the preliminary plan stage.

COMMUNITY DESIGN GOALS/OBJECTIVES/POLICIES

GOAL 1 REINFORCE THE ARCHITECTURAL DESIGN PATTERNS IN THE HISTORIC VILLAGE AND INTRODUCE PROMINENT ARCHITECTURAL FEATURES IN NEW DEVELOPMENT AND IN GATEWAY AREAS THAT RESPECT THE TRADITIONAL DESIGN CONCEPTS OF EMMITSBURG

OBJECTIVE Pattern new development after the desirable qualities of older development in Emmitsburg.

POLICY Rectilinear blocks should be the main organizing feature in new developments. Pedestrian movement is best encourag d by blocks not exceeding 400 ft. in length.

POLICY New developments should carefully reflect the structural diversity of the Town Center in regard to the mixture of housing types and styles, and the mixture of lot sizes and shapes. Proposed developments should exhibit the variety, irregularity, and uniqueness in building location and design, reflecting the context of traditional Emmitsburg building patterns.

POLICY New building design should be sympathetic to the traditional architecture of Emmitsburg, but should not slavishly copy the historic architectural patterns in the older parts of Town. Items to be considered include the scale and massing of structures, roof shape, gable orientation, window size and spacing, and exterior facade treatment of buildings.

POLICY The streetcape of new developments should be designed t avoid repetitious setbacks, driveways, elevations, and landscaping.

POLICY Design prominent buildings and other architectural featur s in the most visible locations on proposed development sites that can serve as landmarks, symbols, or as areas of focus for community identity.

POLICY Establish a Traditional Neighborhood (TND) Overlay Zoning District to encourage compatible new development in older neighborhoods as well as for new developments within Emmitsburg. The TND Overlay District should be flexible with regulations for developers willing to undertake a TND project, including changed street widths, curb radii, building setback and yard requirements, building height and scale and parking requirements.

OBJECTIVE Urban design features that creatively reflect Emmitsburg's traditional streetscape design characteristics should be incorporated into the design of new or infill development along the principal streets of Main Street and Seton Avenue and in the designated Gateway Policy Areas at US 15, West Main Street, and North and South Seton Avenues.

POLICY Locate new buildings or additions close to the road along the principal streets of East and West Main Street and North and South Seton Avenue to further the traditional "street line" of facades, with the buildings forming an edge to the roadway, instead of allowing these principal corridors to become dominated by large vehicular parking areas.

POLICY Parking should be placed to the rear or side of new commercial buildings in the Gateway areas or along principal streets to create a strong building edge along the street and to promote pedestrian accessibility near larger nonresidential uses.

POLICY Design prominent buildings and other architectural features in the most visible locations on proposed development sites in Gateway areas that can serve as landmarks, symbols, or as areas of focus for community identity.

GOAL 2 PROVIDE SITE DESIGN THAT PROMOTES PEDESTRIAN AND BICYCLE ACCESS TO AND FROM NEW DEVELOPMENT AND THAT INCLUDES ATTRACTIVE OPEN SPACE THAT CAN SERVE AS THE LOCATION FOR SOCIAL INTERACTION WITHIN NEW DEVELOPMENT

OBJECTIVE New development should be pedestrian and bicycle accessible and provide linkages to Emmitsburg's sidewalk, greenways, and parks systems.

POLICY New subdivision proposals and site plans should include creatively designed open space, parks, and greenway resources designed for recreational and social use by residents, shoppers, and employees.

POLICY Open space areas should be proposed to link with Emmitsburg's existing and planned network of sidewalks and greenways, providing connecting links t parks, schooIs, and recreational facilities throughout the Town.

POLICY Design attractive pedestrian-oriented environments throughout all new developments, including the creation f configured squares, greens, landscaped streets, and parks woven into the patterns of mixed use neighborhood cente rs.

POLICY Special incentives should be awarded during the development process to encourage the dedication of more usable and creatively designed park and open space resources, as well as for connecting trails that link to the Town greenways network.

OBJECTIVE Traffic mobility, including vehicular, pedestrian and bicycle traffic, should be promoted in the design of all public improvements in the Town.

POLICY Complete pedestrian and bicycle mobility should be encouraged in the design of all streets, bridges, and intersections within the Town.

POLICY Utilize traffic calming and traffic mobility techniques to reduce traffic speeds and increase pedestrian and cyclist safety within the Town.

POLICY Implement design improvements including plantings, sidewalks, intersection crossings and curb cuts to provide safer pedestrian routes and support the predominant pedestrian character of the Town.

POLICY All street and highway improvements within newly developing areas should be designed to promote pedestrian, vehicular and bicycle mobility and to minimize pedestrian/vehicular/bi cycle conflicts.

GOAL 3 EMMITSBURG'S NETWORK OF STREETS SHOULD CONTINUE THE DESIGN CHARACTERISTICS THAT WERE ESTABLISHED IN THE ORIGINAL TOWN PLAN AND INCLUDE CONNECTIONS THAT LINK THE ENTIRE COMMUNITY

OBJECTIVE Pattern new streets, roads and alleys after the desirable qualities of the older street system within Emmitsburg.

POLICY Streets should be interconnected and generally arranged in a rectilinear block pattern to provide comprehensible and varied ways of travel throughout the community.

POLICY Streets should terminate on other roads and streets.

POLICY Alleys should be incorporated into the design of new developments to provide an alternative means of access to residences and businesses.

POLICY Provide street connections between all new developments with the principal streets within Emmitsburg (i.e., Main Street, Seton Avenue, Irishtown Road, Silo Hill Road, Creamery Road, Frailey Avenue/Annandale Road, Brookfield Drive, Harney Road, and Welty Road).

POLICY Street definition should be sought by emphasizing block corners and by designing streets to terminate on a significant feature, such as a centrally placed building, clock tower r church spire, or some other significant view or vista.

POLICY The streetscape of new developments should be designed t avoid repetitious setbacks, driveways, elevations, and landscaping.

POLICY Large deciduous trees should be planted along road sides and in median areas to shade and enclose the streets and adjacent buildings.

GOAL 4 IMPROVE THE QUALITY OF NEW DEVELOPMENT TO PROVIDE FOR SUSTAINABLE MIXED USE NEIGHBORHOODS THROUGHOUT EMMITSBURG

OBJECTIVE Encourage new development that exhibits superior quality and creative design and which emphasize the mixed use development patterns and structural elements that is characteristic of Emmitsburg's Town Center.

POLICY Design neighborhoods that are compact and visually identifiable.

POLICY New residential subdivision plans should be comprehensibi For example, plans might be linear, crossroads, or gridded, with variations to achieve spatial hierarchy and to enhance local visual assets.

POLICY Street corridors should be visually bounded, "layered," and intimate in feeling. Street trees, sidewalks, and front-yard elements should be used to create visual layers and contribute to the intimacy of the streetscape.

POLICY Street blocks should incorporate alley ways to serve as a rear means of access to residences and businesses.

POLICY Neighborhoods should incorporate a mix of uses and a rang of housing types.

POLICY Special incentives, including density bonuses, should be awarded during the development process to encourage proposals that are both superior in quality and creative in design and which emphasize the mixed use development patterns and structural elements that are characteristic of Emmitsburg's Town Center.