Cobos, SouthernDomnikMethodist University | Context & Impact of Design 7301 December 2021 Vincent
PLANTHEUNDERNEATHMASTER Ponte’s solution to traffic congestion within Dallas’ CBD
Figure 1 Closed
As a pedestrian and resident of Downtown Dallas, Vincent Ponte’s 1969 master plan and the correlating builds of tunnels, skybridges, garages and freight bays represent one of the many examples of Designer Centered Design I encounter as I walk the streets of downtown. Though firm in his intentions to design for humans, Ponte seemingly forget to ask any who lived in Dallas what needed to be built. I find his plan to be centered around what Ponte himself imagined would be the best for Dallas, as opposed to a vision grounded in the engagement of stakeholders, varying in importance and influence. My study and the resulting analysis of Ponte’s plan is not with the intention of promoting future master plans within Dallas’ Central Business District (CBD) or determining what went wrong in the years following his initial proposal. As the City of Dallas sets sustainability, resiliency, and redevelopment goals for the future, I am looking to evoke a curiosity surrounding the built environment of Downtown Dallas resulting in citizens and planners pushing to better utilize the existing infrastructures within downtown to compliment and aide in ongoing redevelopment. My study is the result of personal observations and challenging myself to look past “why did they build this?” and reach towards “how can we use this?” I feel our city has grown to expect too much from our new buildings and not enough from the people designing and interacting with them. Pedestrian Connection 2021
2 Introduction
3 Esquire Magazine
In June of 1968, Esquire magazine devoted an entire issue to discussing the current and future urban planning strategies of six major US cities. Of the six covers that ran in June, one featured a black background with bold white font reading “Vincent Ponte should have his way with Dallas.” The two page spread featured in the issue entitled “Dallas Is in Exile,” gave the publisher Arnold Gingrich’s opinion on what he felt were the main problems facing the city of Dallas (Gingrich 1968) Gingrich’s pointed to an issue that many citizens, planners, and government officials of the time agreed with. He felt Dallas’ main issues of decay stemmed from not overcoming the stigma of “being a town where a President of the United States was shot to death” and that Dallas somehow “emerged with the killing as part of its permanent image.” The solution to this problem, according to Gingrich, was an unprecedented urban transformation of the once booming Downtown Dallas CBD (Gingrich 1968). He envisioned this could be possible through the integration of entertainment and education throughout the central business district. His ideas were comprised of a sports team located in downtown and the area becoming a hub for the arts. The article spotlighted a relatively unknown planner of the time, Harvard educated Vincent Ponte. Gingrich claimed Ponte was the man who could make a downtown transformation happen (Gingrich 1968). Even early in his career, Ponte had already come to be seen as a visionary who consistently held true to three convictions: a passionate belief in and love of cities, that common sense can be applied to make our cities function, and powers that be can be persuaded to cooperate in their own self interest (Terranova 2009). Those convictions were to be embraced, applied, mishandled, avoided, and forgotten following the 50 years since Dallas graced the cover of Esquire magazine. The built environment resulting from Ponte’s plan is one that never reached its theorized potential but still stands till this day. According to a Downtown Dallas Inc.
Figure 2 Esquire Cover, June 1968
4 report in 2017, the roughly three miles of the pedestrian network “remain disjointed and inconsistent with the street system, only lending itself useful to ad hoc trips.” Currently, city policy holds a stance of discouragement and disinvestment within the pedestrian system and any walkway not at grade (Meyer 2019). Though the city may attempt to influence the pedestrian system through policy, much of the system, correlating parking garages and freight bays remain under private ownership and outside of the cities control.
In August of 1969 Vincent Ponte, with the assistance of traffic engineer Warren Travers, presented a plan for the revitalization of Dallas to mayor Erick Jonsson. The primary focus and goal of that plan was traffic management. Ponte and Travers set out to cure downtown of the traffic congestion that they felt had made pedestrian face-to-face meetings and interactions more difficult throughout the CBD (Terranova 2009). They felt this congestion and lack of walkability was a major contributing factor to the decay of downtown from years prior. They believed orderly and reasonable reorganization of the city center, by way of separating cars and pedestrians onto different levels, or a so called multi level city was going to be the key to success. This idea stemmed from Ponte’s fascination with the work of Leonardo Da Vinci. In the late 1480’s, Da Vinci proposed the concept of what he called an ‘ideal city’. His multi level city would feature basements for carriages and leave the ground level reserved for walking. Though his city was never fully conceptualized, his ideas and sketches have stood the test of time and essentially
Figure 4 'Ideal City' Leonardo Da Vinci
Figure 3 Esquire, Dallas in Exile, 1968 Multi-Level Plans
5 influenced the way Dallas is built today (Terranova 2009). Ponte’s plan focused attention on the 200 300 acres of the Central Business District of Dallas. In theory, his plans would have effectively transformed Dallas from ‘the place where JFK was shot’ into a ‘sleek futurism of modern functionality’ (Terranova 2009). Ponte was an advocate for the importance of the central business district at a time when businesses and residents had already begun to leave downtowns across the United States for the promises of suburban living. In his words, “Business cannot abandon downtown. Power, money, and enterprise are concentrated there. Downtown is where the action is.” Ponte did not find himself concerned with the fears of age, density, and diversity that lead many Americans to abandon the downtown style of living. He felt that those fears alone were the main source of urban deterioration and the actual reason for decay. The decay of downtowns not only led to what he claimed to be the end of ‘civilized living’ but more importantly, cities had lost a major source of revenue. According to Ponte, “Downtown was the heart of money making throughout a city.” If a downtown no longer existed within a city, he assumed it would be felt financially across the city for generations to come (Terranova 2009)
Like many planners of his time, he was under the assumption that people were going to eventually come back to downtown because even though retail had left, big business would never follow people outside the CBD to the suburbs. Though downtowns like Dallas saw positive trends with office development into the 80’s and 90’s, the rate of growth did not continue as planned (Terranova 2009) Ponte could have never imagined the continuous sprawl of suburbia and the societal changes that would make coming to downtown unnecessary. In planning for what he saw as the inevitable growth of downtown, Ponte pushed for his version of human centered design throughout his master plan He scaled and designed the development within Dallas’ CBD around Figure 5 Dallas CBD 1969
6 what he called Homo ambulens, or humans that walk (Terranova 2009). He blamed the confusion at intersections, where automobiles and pedestrians occupied the same space, for the lack of walkability and flow of downtown. Ponte thought he could separate traffic conduits and in turn could fix the congestion problem within the CBD and effectively pump new life into downtown by rearranging its flow. Through private investment, his plan proposed the development of an above , at , and below grade pedestrian walkway system, contributions to a layered transportation network, construction of additional green space, removing freight deliveries from streets with underground bays and eliminating unneeded parking lots & relocating remaining lots underground within the CBD (Terranova 2009). The proposed walkway system would begin by connecting three major nodes of downtown at the time: Main Place, City Hall, and Southland Center. His vision set long term development goals grounded in design standards that allowed for new buildings to connect to a uniform walkway system as the area continued to grow and redevelop (Terranova 2009). In concept, this would allow downtown to gradually construct a reliable and efficient pedestrian system over time. He found this to be a way to “insert and graft new levels of circulation into the old city core without inflicting damage on existing investments” or the City of Dallas’ budget. Pontes prescription of public private investment ran parallel to other planners and developers of his Figure 6 Skybridges, Ponte 1969 Proposal
Figure 7 Pedestrian Walkways, Ponte 1969 Proposal
Parking in Downtown
A main component of Ponte’s original master plan for downtown was dedicated to parking. In tune with plans to levitate traffic congestion amongst the CBD, Ponte had proposed a ring of garages connected by the pedestrian walkway system surrounding the city’s core. By the time of his official reevaluation of Dallas Parking in 1981, Ponte had moved on from suggesting the idea of these garages and pointed directly at four locations for construction north of Commerce (Ponte 1981). These locations were picked by Ponte based on economic feasibility, demand for visitors, convenient access to the freeway loop, street capacity, and direct connection to current or future planned pedestrian network. As he had expected from analysis prior to 1969, the city ordinance of one parking spot for every two thousand square foot of floor area was not sufficient for the growth of downtown. The parking spaces created by the 1965 ordinance were not enough to keep up with demand for additional parking while attempting to balance out the displacement of parking lots and garages due to redevelopment. Many of the parking lots in downtown were built on land vacated by the “postwar retreat of housing and services from the city center” and surrounded what was once the entire CBD (Ponte 1981). As the CBD began to expand, those parking lots were the first locations scheduled for redevelopment, ultimately expanding the number of people traveling to downtown while shortening the number of available parking spaces with every new development. Ponte stressed in both the 1969 master plan and the parking Ponte Proposed Parking Location 1981
Figure 8
7 time. Since the Housing Act of 1949, public private partnerships have played a large role in slum clearance and overall urban renewal efforts by cities and planners alike (Terranova 2009). By 1970, implementation of Ponte’s plan and correlating recommendations for Downtown Dallas had already begun.
8 re evaluation of 1981, the need to focus attention on catering to short term parkers throughout the CBD. He looked to provide a short term parker with “rapid and assured access to the core, and a convenient and pleasant passage through the pedestrian network to their places of appointment.” In his mind, inconvenient parking causing a driver to park and walk from outside of the CBD was not an issue for an employee or everyday commuter to downtown, asking them to only make the walk in the morning and at the end of the day. The real issue arose from the short term parker looking to quickly enter and exit downtown for a meeting, social engagement, or shopping experience (Ponte 1981). In hindsight, these commuters are the customers downtown businesses relied on to stay open, focusing on getting them back downtown makes a lot of sense. A fully fulfilled Ponte parking plan would have resulted in commuters selecting a garage from the ring nearest their destination, driving into it from the appropriate freeway exit ramp, and stepping out of their cars directly into the pedestrian walkways. Ponte proposed the four parking garages necessary in 81’ could ultimately grow to as many as ten throughout the CBD as the area continued to grow and develop (Ponte 1981)
Underground Freight As the streets of Dallas became busier throughout the 1950’s, Dallas planners began contemplating how to take freight deliveries off the streets. By 1965, city officials had adopted new zoning ordinances requiring new buildings to include off street docking facilities to clear the streets of deliveries (Ponte 1986). That same year, De Leuw Cather Long range
Transportation Studies urged Dallas city officials to move truck traffic underground. Thankfully, for various reasons, the proposed six thousand foot one way truck terminal under Main Street was never built (Terranova 2009). It wasn’t until Ponte’s 1969 Master Plan proposed what he felt was a more practical solution, that the city decided to give it a try. Resulting from Ponte’s plan for the CBD was the construction of Figure 9 Underground Freight, Columbia Plan 1961
2021
9
Though Ponte’s plan proposed nine traffic reliving compartments throughout the CBD for freight delivery, Bullington was the first of only three to be built: similar facilities service City Hall and AT&T Discovery District deliveries. The Bullington facility has operated all forty-three docks at a capacity of roughly three hundred deliveries a day from the time doors opened in 1977 (Ponte 1986). Recent changes in delivery schedules in response to COVID 19 have likely impacted the use of the facility. Unlike City Hall and AT&T terminals, Bullington effectively connects the six buildings surrounding the facility. The underground docking station services all 5.3 million square feet of office space in those six buildings. These truck terminals were not only intended to keep deliveries off the street for congestion and flow purposes but also for the appearance of downtown. The appearance of trucks and deliveries along the street seemed counterintuitive to Ponte’s ideas for additional parks and treed boulevards throughout the CBD. In Ponte’s reevaluation in 86’, he pointed to the success of at grade Bell Plaza, now AT&T Discover District, and Thanks Giving Square as proof that removing freight traffic from an area increases pedestrian activity. However, by 1980, Figure 10 Thanks Giving Square 2021 11 Bullington Truck Terminal Entrance
Thanks Giving Square, opening in 1976 (Wilonsky 2021). At grade, the tri level complex remains a wonderful and highly frequented green space to this day. As the grade of the park surface declines, pedestrians are drawn to water features, tables, open space, and the main surface level entrance for a segment of the pedestrian tunnel system. This node of the system connects nearby buildings as well as further walkways into downtown fifteen feet below the park. Twenty-five feet below the pedestrian system you find the Bullington Truck Terminal (Ponte 1986).
Figure
Pedestrians in Downtown Ponte’s plan for Dallas’ Central Business District revolved around the construction of a mostly underground pedestrian system, effectively removing pedestrians from the congested streets of downtown The aim for this pedestrian system was in line with plans of reliving traffic congestion on local streets. In his mind, a large contributing factor to traffic congestion downtown was the crowds of pedestrians interrupting the flow of traffic at intersection crosswalks (Downtown Dallas Inc. 2012). A pedestrian system that catered to the comfort and convenience of the Dallas pedestrian was seen as a positive by product of congestion elevation on the streets. His plan called for a combination of tunnels, skybridges and corresponding building connections that would be continually added throughout the CBD as development and outward growth continued. Under this plan, development of the walkway system would span the decades that followed his proposal and would allow for adaptation if the trends of development downtown were to change (Wilonsky 2021). To Ponte, this process would ensure a pedestrian network that successfully connected all downtown Dallas without the cost or disruption of building the system all at once. Skybridges 2021
Figure 12
10 the city’s Office of Transportation Programs had already recommended no further freight terminals were necessary for construction solely for reasons of public expense (Wilonsky 2021). Though the facility effectively removes trucks from ground level in the area, reaching the entrance to Bullington Truck Terminal at N Akard St & Patterson Ave, it requires entrance and passage through downtown which seems counter intuitive.
11 A huge miss for the project was rejecting the recommendation to establish design standards that held true for both public and privately owned portions of the tunnel. Regulations for uniform width and height, convenient street access, constructing using durable and attractive finishes would have ensured the piecemeal construction of additional tunnel connections resulted in a homogenous system. In theory, the pedestrian walkway system would have improved the efficiency of commuters coming into downtown by supporting future plans for parking within the CBD. It was also thought that the space provided by the tunnels would allow for shops and amenities to establish themselves amongst the underground system; providing an experience equivalent to a suburban shopping center while allowing the tax base for downtown to grow (Downtown Dallas Inc. 2012). The concept of underground tunnels was not foreign to city officials or citizens at the time of Ponte’s proposal. An underground tunnel was constructed under Main Street in 1913 to connect the powerplant within the Adolphus Hotel to the newly built Bush Building (Firsching 2018) In the 1920’s Santa Fe Railroad built a tunnel running north beneath four buildings at Commerce & Field with the entrance further south on Akard as a way of combating the disruption automobiles had caused in moving merchandise throughout downtown. The structures connected three 10 story warehouses and a 20 story office that served as Santa Fe Railroad’s headquarters at the time of construction Though idle since the 1940’s, the tunnel was deemed a Dallas Landmark in 98’ and was put on the National Register of Historic Places in 04’ (Evans 2019). Just two years prior to Ponte’s proposal in 1969, an eight hundred foot long collection of tunnels lined with retail storefronts was built connecting what was then Figure 13 Skybridges 2021
Figure 14 Santa Fe Railroad Tunnel Plan 1920
12 Davis, Metropolitan Federal Savings, and First National Bank buildings to the partially constructed One Main Place building next door. The tunnels in coordination with the construction of One Main Place were the first steps in a Le Corbusier style superblock project set in place by a master plan presented to Dallas by Columbia University in 1961 (Firsching 2018) At the time, planners thought that by grouping the CBD into related and overlapping clusters, or superblocks, the city could provide an uninterrupted and continuous city core for its citizens. Though Ponte was an advocate for superblock development himself, once claiming “the best results in downtown renewal are achieved through superblock development”, his hiring by The Dallas Texas Company in 1968 brought with it the removal of the superblock from the plans for Dallas. Though it was removed from plans, Ponte advocated for superblock development within the Commerce/Elm and Ervay/Akard area, both in his original 1969 proposal and again in 1986 (Ponte 1986). The tunnels stemming from the original superblock development grew to become the first hub of the pedestrian network system and are still home to some of the original and surviving underground businesses. What did not change from the 1961 Columbia plan, were the plans for a layered transportation network, or subway system. With the main tunnels running beneath the streets of downtown, both plans imagined connections to an underground subway system built by DART (Firsching 2018) With a subway tunnel running underground throughout the CBD, planning tunnel connections to buildings, amenities, and retail shops starts to make a bit more since. Figure 15 One Main Place Pedestrian Entrance 2021 Figure 16 Skybridge over DART, 2021
13
Pedestrian
Despite Ponte’s proposals, several iterations of the subway for downtown were scrapped and stations were built at grade, first opening in 1983 (Firsching 2018). Today the tunnels and skybridges throughout downtown, unless you work in a building directly connecting to a food court, are a thing of mystery that no one seems to remember or acknowledge. I live directly above the original connections between the Davis building and One Main Place and had no idea they existed. I was surprised when speaking to long standing business owners within the pedestrian system about how some sections of tunnels and skybridges continued to be busy prior to the pandemic. Though many storefronts throughout the system have seen multiple businesses over the years and struggled with varying flows of customers, many of the original businesses remain. Poster & Prints, located within the original underground levels of One Main Place, has been at that location for over thirty years. In speaking with the owner and operator of Poster & Prints, I learned of times in a not so distant past with thriving corridors filled with bustling men and women in dress clothes frequenting shops and restaurants on their lunch break or shortly after work. We spoke of the reigning consciences within outspoken city officials, that the pedestrian system accelerated the downfall of downtown; effectively removing street level activity and placing it underground. She proceeded to laugh at the idea that any master plan within Dallas could be successful, citing the many developers, planners, and potential plans that have come and gone since she took over the location from its original owners thirty years ago.
Future of Downtown Arguments of Ponte’s plan accelerating the demise of downtown by removing pedestrian traffic at street level ignores the context in which Ponte’s plan was developed. His plan was Figure 17 Tunnels 1979
Figure 18 DART Potential D2 Stations 2021
It is ironic that fifty years later, plans for an underground DART subway system beneath the streets of downtown Dallas have resurfaced. On March 24th of 2021, Dallas City Council voted unanimously to approve plans for what the city and DART is now referring to as D2. The $1.7 billion project, with potentially half being paid for using federal funding, will provide an additional four DART stations throughout the CBD and see the relocation of the current Deep Ellum Station a few blocks north to Live Oak. Of the four additional stops being added as a part of D2, three will be located below grade (DART 2021). In speaking with a member of DART’s Board of Directors, I was surprised to learn that the plans for D2 have nothing to do with the potential growth or further expansion of downtown. The addition of D2 is solely a move of resilience, catering to current riders of the DART system, ensuring their constant access to the transportation system Currently the DART rail system, limited by the
14 developed based on predictions of future congestion within downtown and a connection to an underground subway system (Meyer 2019). The resulting pedestrian network, not directly connected to a transit system, was doomed from the start. It is plausible that by sticking solely to the recommendations of Ponte and the concepts of superblock development, that the redevelopments of Dallas’ CBD could have resulted in a revitalized or at least different downtown than we see today. However, Ponte, along with many other planners and developers of his time, were wrong about the boom that was coming for downtown (Meyer 2019). What was missing from Ponte’s view of the future, were the social changes that time would bring. With the development of the internet in combination with the variety of products big box stores would grow to offer from outside of the Central Business District, planners understandably missed the lack of necessity downtown would grow to provide.
15 singular route through downtown, does not withhold the capacity to recover from a disruption event or to reroute passengers around the current rail line. Adding an additional line to the system allows DART to ensure a continuous flow of passengers despite any disruption event that may occur within or along the current lines. Absent from plans of D2 are any attempt at connection to the existing pedestrian system. If a transit system was the missing link in the success of Ponte’s pedestrian system, why are the corresponding buildouts that resulted from decades guided by his master planning not even being considered? With plans for Metro Center Station to be excavated next to the original underground malls of One Main Place, now The Westin, it is unimaginable that none of the existing infrastructure with Dallas’ CBD is of any potential use to the project Figure 19 Metro Center Station Headhouse Mock up 2021 Figure 20 Pedestrian Network System 2021
As we strive for resilience and push for growth amongst the built environment of downtown Dallas, we must acknowledge that much of the infrastructure needed for a thriving Central Business District already exist.
16 Conclusion
As I explore downtown, I become excited by the opportunities envisioned amongst the wasted space and let down by half built master plans of years past. I challenge the future developers of downtown and curious citizens alike to walk the streets, tunnels, and connections of Dallas’ CBD. In walking them, you will become a part of its ballet and begin to understand its flow from a different perspective, that of a pedestrian. You will be quick to notice that our CBD is not in need of more hubs, it is in need of more connections; how ironic a tunnel of them lay beneath its streets. I do not believe the tunnel system is an answer to Dallas’ struggling downtown, but I do believe it is an interesting example of what is already there and up for reimagining. If the built environment of the pedestrian system lays dormant, what else are we not taking advantage of? What other opportunities exist for filling in the gaps of ‘Master Planners’?
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