East River Waterfront Esplanade and Piers New York, New York Draft Environmental Impact Statement

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1 East River Waterfront Esplanade and Piers New York, New York Draft Environmental Impact Statement October 12, 2006 CEQR No.: TO COME ULURP Nos.: TO COME Lead Agency: Lower Manhattan Development Corporation Lead Agency Contact: Victor Gallo Senior Advisor & Counsel, Environmental & Regulatory Affairs Lower Manhattan Development Corporation One Liberty Plaza, 20th Floor New York, NY Prepared by: AKRF, Inc. The City of New York has proposed a plan for the revitalization of the East River Waterfront by improving a two-mile-long, City-owned public open space connecting the Whitehall Ferry Terminal and Peter Minuit Plaza to the south to East River Park to the north. The plan seeks to improve access to the waterfront, enhance pedestrian connectivity, and create waterfront amenities for public use and enjoyment. The existing esplanade would be enhanced, some new sections of esplanade would be created and several piers would be renovated and redeveloped. The Draft Environmental Impact Statement for the East River Waterfront Esplanade and Piers is available online at Comments will be accepted on this Draft Environmental Impact Statement until 5 p.m. on March 19, 2007 or 45 days following publication of the notice of availability in the Federal Register, whichever is later. Comments may be directed to: Lower Manhattan Development Corporation, Attention: Comments East River Esplanade and Piers Project, One Liberty Plaza, 20th Floor, New York, NY A complete list of preparers and cooperating agencies is included at the end of this Draft Environmental Impact Statement.

2 Table of Contents Executive Summary... S-1 1: Project Description A. Introduction B. Background and Planning Context Battery Park Urban Renewal Area World Trade Center The Lower Manhattan Plan Manhattan Landing South Street Seaport East River Landing Battery Maritime Building Downtown East River Waterfront: Concept Plan Vision for a 21st Century Lower Manhattan Concept Plan for the East River Waterfront C. Purpose and Need for the Proposed Action LMDC Funding East River Esplanade and Piers Project D. Project Site Battery Maritime Building Pedestrian Plaza Battery Maritime Building to Pier Pier 11 to Fulton Street Fulton Street to the Brooklyn Bridge Brooklyn Bridge to Pier Pier 35 to Montgomery Street Pier E. Elements of the Proposed Action Program Zone Recreation Zone Battery Maritime Building to Pier Pier 11 to Fulton Street Fulton Street to Brooklyn Bridge Brooklyn Bridge to Pier Pier 35 to Montgomery Street Design Elements South Street Improvements Battery Maritime Building Pedestrian Plaza Pier 42 Beach New Market Building Replacement F. Actions and Approvals TOC-1

3 East River Waterfront Esplanade and Piers Federal State New York City Uniform Land Use Review Procedure G. Schedule : Methodology A. Introduction B. Role of the EIS in the Approvals Process C. EIS Process/Schedule D. Framework for Analysis E. Analysis Year F. Construction Period Cumulative Effects Analysis G. Background Projects Independent Nearby Projects Other Projects East of Broadway in Lower Manhattan : Land Use, Zoning, and Public Policy A. Introduction B. Development History C. Existing Conditions Land Use Project Site Primary Study Area Secondary Study Area Zoning Project Site Primary Study Area Secondary Study Area Public Policy Lower Manhattan Development Corporation City Vision for a 21st Century Lower Manhattan Plan For The Manhattan Waterfront Manhattan Waterfront Greenway Plan Local Waterfront Revitalization Program Lower Manhattan Economic Revitalization Plan The Alliance for Downtown New York G Program Brooklyn Bridge Southeast Urban Renewal Area Two Bridges Urban Renewal Area Other Public Policies Responding to Events of September D. The Future Without the Proposed Action Land Use Project Site Primary Study Area Secondary Study Area Zoning Project Site TOC-2

4 Table of Contents Primary Study Area Secondary Study Area Public Policy E. Probable Impacts of the Proposed Action Land Use Project Site Primary Study Area Secondary Study Area Zoning and City Map Project Site Primary Study Area Secondary Study Area Public Policy : Socioeconomic Conditions...1 A. Introduction...1 B. Methodology...1 C. Preliminary Assessment...2 Direct Residential Displacement...2 Direct Business and Institutional Displacement...2 Indirect Residential and Business Displacement...3 Adverse Effects on Specific Industries...3 5: Open Space A. Introduction B. Need for the Proposed Action Existing Conditions on Project Site Open Space Characteristics of Study Area Open Space User Population in Study Area C. Benefits Associated with the Proposed Action : Historic Resources A. Introduction B. Regulatory Context National Historic Preservation Act (Section 106) State Historic Preservation Act New York City Landmarks Law C. Methodology Identification of Historic Properties/Structures Assessment of Potential Effects on Historic Resources Identification of the Area of Potential Effect Archaeological Resources Architectural Resources D. Background History E. Existing Conditions Archaeological Resources Site History Pre-Contact Archaeological Resources TOC-3

5 East River Waterfront Esplanade and Piers Historic-Period Archaeological Resources Recorded Subsurface Disturbance Conclusions Architectural Resources Project Site Study Area F. The Future Without the Proposed Action G. Probable Impacts of the Proposed Action Archaeological Resources Pre-Contact Archaeological Resources Historic-Period Archaeological Resources Architectural Resources Project Site Study Area : Urban Design and Visual Resources A. Introduction Visual Resources B. Methodology C. Existing Conditions Project Site Urban Design Visual Resources and View Corridors Study Area Urban Design Visual Resources and View Corridors D. The Future Without The Proposed Action Project Site Study Area Urban Design and Visual Resources E. Probable Impacts of the Proposed Action Project Site Urban Design Visual Resources Study Area Urban Design Visual Resources : Neighborhood Character A. Introduction B. Existing Conditions C. The Future Without the Proposed Action D. Probable Impacts of the Proposed Action : Natural Resources and Floodplain A. Introduction Principal Conclusions TOC-4

6 Table of Contents B. Methodology Existing and Future Conditions Assessment of Impacts from the Proposed Action C. Regulatory Context Federal New York D. Existing Conditions Setting Geological Conditions Groundwater Floodplains and Wetlands Aquatic Resources Surface Water Resources in the Project Area Water Quality Sediment Quality Aquatic Biota Endangered, Threatened, and Special Concern Species Essential Fish Habitat Terrestrial Resources E. The Future Without the Proposed Action Project Site Outside the Project Site NY/NJ HEP Projects State and Regional Projects New York City Projects F. Probable Impacts of the Proposed Action Groundwater Floodplains and Wetlands Construction Operation Aquatic Resources Water Quality Aquatic Biota Threatened or Endangered Species Essential Fish Habitat Terrestrial Resources Construction Operation : Hazardous Materials A. Introduction B. Principal Conclusions C. Methodology Potential Contaminants of Concern D. Existing Conditions Topography, Geology and Groundwater Site History and Current Conditions Overall Findings TOC-5

7 East River Waterfront Esplanade and Piers E. The Future Without the Proposed Action F. Probable Impacts of the Proposed Action Existing Structures Asbestos-Containing Materials (ACM) Lead-Based Paint (LBP) Management Plan PCB-Containing Equipment Subsurface Disturbance Construction Health and Safety Plan (CHASP) Waste Management Petroleum Storage Tanks Groundwater Conclusions : Waterfront Revitalization Program A. Introduction B. Methodology C. Probable Impacts of the Proposed Action : Infrastructure, Solid Waste, and Energy A. Introduction B. Existing Conditions Water Supply Sanitary Sewage Stormwater Solid Waste Energy Recent Energy Conservation Directives Existing Project Site Demand C. The Future Without the Proposed Action Water Supply Sanitary Sewage Stormwater Solid Waste Energy D. Probable Impacts of the Proposed Action Water Supply Sanitary Sewage Stormwater Solid Waste Energy : Traffic and Transportation A. Introduction B. Vehicular Traffic and Parking Methodology Travel Demand Screening Criteria Impacts Assessment TOC-6

8 Table of Contents Existing Conditions Vehicular Traffic Parking The Future Without the Proposed Action Vehicular Traffic Parking Probable Impacts of the Proposed Action Vehicular Traffic Capacity Analysis Results Parking C. Transit and Pedestrians Methodology Screening Criteria Pedestrian Analysis Methodology Existing Conditions Commuter and Tour Buses Pedestrians The Future Without the Proposed Action Commuter and Tour Buses Pedestrians Probable Impacts of the Proposed Action Commuter and Tour Buses Pedestrians Pedestrian Safety : Air Quality A. Introduction B. Mobile Sources Relevant Air Quality Regulations and Standards National and State Air Quality Standards NAAQS Attainment Status and State Implementation Plan (SIP) Determining the Significance of Air Quality Impacts Methodology for Predicting Pollutant Concentrations Dispersion Model for Microscale Analyses Meteorology Analysis Year Vehicle Emissions Data Traffic Data Background Concentrations Analysis Site Receptor Placement Analysis Results and Conclusions C. Heating Systems D. Battery Park Underpass E. Conclusions TOC-7

9 East River Waterfront Esplanade and Piers 15: Noise A. Introduction Noise Fundamentals A -Weighted Sound Level (dba) Community Response to Changes in Noise Levels Noise Descriptors Used in Impact Assessment B. Noise Standards and Criteria New York City Noise Code New York CEQR Noise Standards HUD Criteria and Standards Existing Conditions Study Area C. Selection of Noise Receptor Locations Noise Monitoring Equipment Used During Noise Monitoring Noise Monitoring Results D. The Future Without the Proposed Action E. Probable Impacts of the Proposed Action : Construction A. Introduction B. Construction and Rebuilding in Lower Manhattan C. Construction Stages and Activities Esplanade Area and Pavilions South Street Pier New Market Building Pier and Marina Pier Pier Pier Battery Maritime Building Plaza D. Probable Impacts of the Proposed Action Land Use Economic Benefits Open Space Historic Resources Archaeological Resources Architectural Resources Hazardous Materials Traffic and Transportation Street Lane and Sidewalk Closures Air Quality Direct Emissions Indirect Emissions Conclusions Noise E. Cumulative Impacts TOC-8

10 Table of Contents 17: Environmental Justice A. Introduction and Background B. Methodology CEQR Guidance Methodology Used for this Assessment Delineation of Study Area Identification of Potential Environmental Justice Areas C. Environmental Justice Populations in the Study Area D. Public Participation E. Summary of Adverse Impacts Identified in the DEIS Traffic and Transportation Noise Construction F. Identification of Disproportionate Impacts on Minority and Low-Income Communities G. Conclusion on Disproportionate Adverse Impacts : Mitigation 18-1 A. Introduction B. Traffic and Transportation South Street Between Montgomery Street and Robert F. Wagner Sr. Place South Street and Fulton Street Water Street and Broad Street Water Street and Whitehall Street Pearl Street and Broad Street State Street and Broad Street C. Construction : Alternatives A. Introduction B. No Action Alternative Land Use, Zoning, and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure, Solid Waste and Energy Traffic and Parking Transit and Pedestrians Air Quality Noise Construction TOC-9

11 East River Waterfront Esplanade and Piers C. Esplanade Development Alternatives Residential Buildings over the FDR Drive Land Use, Zoning, and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure Solid Waste and Sanitation Services Energy Traffic and Parking Transit and Pedestrians Air Quality Noise Construction FDR Drive at Grade South of Brooklyn Bridge Land Use, Zoning and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure, Solid Waste, and Energy Traffic and Parking Transit and Pedestrians Air Quality Noise Construction D. Battery Maritime Building Plaza Alternatives Stepped Ramp Alternative Land Use, Zoning, and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources TOC-10

12 Table of Contents Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure, Solid Waste, and Energy Traffic and Parking Transit and Pedestrians Air Quality Noise Construction Partial Stepped Ramp Alternative Open Space Traffic and Parking Alternative Without Changes in Front of the Battery Maritime Building Land Use, Zoning, and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure, Solid Waste, and Energy Traffic and Parking Transit and Pedestrians Air Quality Noise Construction E. Alternative Without the BMB Plaza and the Pier 42 Beach Land Use, Zoning, and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure, Solid Waste and Energy Traffic and Parking Transit and Pedestrians Air Quality Noise TOC-11

13 East River Waterfront Esplanade and Piers Construction F. Alternative In-Water Configurations South of Pier Land Use Natural Resources/Water Quality G. Alternative Retaining a Portion of Automobile Parking Land Use, Zoning, and Public Policy Socioeconomic Conditions Community Facilities Open Space Shadows Historic Resources Urban Design and Visual Resources Neighborhood Character Natural Resources/Water Quality Hazardous Materials Waterfront Revitalization Program Infrastructure, Solid Waste and Energy Traffic and Parking Transit and Pedestrians Air Quality Noise Construction : Unavoidable Significant Adverse Impacts A. Noise B. Construction : Growth-Inducing Aspects of the Proposed Action : Irreversible and Irretrievable Commitment of Resources List Of Preparers List Of Acronyms APPENDIX A: Draft Programmatic Agreement APPENDIX B: Hazardous Materials APPENDIX C: East River Esplanade and Piers Coastal Zone Consistency Form TOC-12

14 List of Tables 2-3 Background Projects in the Future Without the Proposed Action Existing Zoning Districts Study Area Open Spaces Study Area Population Architectural Resources Within Project Site and Study Area DEP Water Quality Data for the Brooklyn Pier 10 Sampling Station List of Fish Species Common in the East River Essential Fish Habitat Designated Species for the East River Current and Historical Hazardous Material Usage Daily Average Flows at Newtown Creek WPCP per Month Water Usage for the Proposed Action Solid Waste Generation for the Proposed Action Energy Usage for the Proposed Action Trip Generation Assumptions Person Trips by Type Vehicle Trips by Type Existing Conditions Level of Service Analysis for Signalized Intersections Existing Conditions Level of Service Analysis for Unsignalized Intersections Existing off-street Parking Utilization ¼ Mile No Build Conditions Level of Service Analysis for Signalized Intersections No Build Conditions Level of Service Analysis for Unsignalized Intersections Off-Street Parking Supply and Demand in the 2009 No Build Condition No Build and Build Conditions Level of Service Analysis for Signalized Intersections AM Peak Hour No Build and Build Conditions Level of Service Analysis for Signalized Intersections PM Peak Hour No Build and Build Conditions Level of Service Analysis for Unsignalized Intersections AM Peak Hour TOC-13

15 East River Waterfront Esplanade and Piers No Build and Build Conditions Level of Service Analysis for Unsignalized Intersections AM Peak Hour Off-Street Parking Supply and Demand in the 2009 Build Condition: Level of Service Criteria for Pedestrian Elements Existing Conditions: Pedestrian LOS Analysis for Sidewalks Existing Conditions: Pedestrian LOS Analysis for Crosswalks No Build Conditions: Pedestrian LOS Analysis for Sidewalks No Build Conditions: Pedestrian LOS Analysis for Crosswalks Build Conditions: Pedestrian LOS Analysis for Crosswalks Common Noise Levels Average Ability to Perceive Changes in Noise Levels Community Response to Increases in Noise Levels New York City Noise Codes Noise Exposure Guidelines for Use in City Environmental Impact Review Required Attenuation Values to Achieve Acceptable Interior Noise Levels HUD Noise Criteria Existing Noise Levels at Sites 1 through 8 (in dba) Calculated L dn Noise Levels (dba) Typical Noise Emission Levels for Construction Equipment Study Area Population and Economic Characteristics Study Area Population and Economic Characteristics Public Meetings Mitigation Measures No Build, Build, and Build With Mitigation Conditions Level of Service Analysis AM Peak Hour No Build, Build, and Build With Mitigation Conditions Level of Service Analysis PM Peak Hour Potential Configurations of Residential Buildings TOC-14

16 List of Figures Following Page 1-1 Project Location Southern Portion of Project Area Central Portion of Project Area Northern Portion of Project Area Typical Pavilion Typical Esplanade New Market Building Illustrative Rendering New Esplanade North of Brooklyn Bridge Pier Design Elements New BMB Plaza Pier 42 Beach Background Projects Land Use Study Areas Land Use Zoning Open Space Study Area Historic Resources Reference Map Historic Resources Reference Map Historic Resources Reference Map Areas of Potential Archaeological Sensitivity Areas of Potential Archaeological Sensitivity Areas of Potential Archaeological Sensitivity Areas of Potential Archaeological Sensitivity Architectural Resources in the Study Area Architectural Resources in the Study Area Architectural Resources in the Study Area Potential Architectural Resources in the Study Area Potential Architectural Resources in the Study Area Urban Design and Visual Resources Project Site and Study Area Project Site Views Project Site Views Project Site Views TOC-15

17 East River Esplanade and Piers Project Following Page 7-5 Project Site Views Project Site Views Urban Design and Visual Resources Project Site Views Project Site Views Project Site Views Project Site Views Project Site Views Project Site Views Project Site and Study Area Views Project Site and Study Area Views Project Site and Study Area Views Project Site and Study Area Views Project Site and Study Area Views Project Site and Study Area Views Project Site and Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Study Area Views Rendering of Proposed Esplanade North of Brooklyn Bridge Rendering of Proposed Battery Maritime Plaza Rendering of New Market Building Rendering of Pier Year Floodplains NWI Wetlands NYSDEC Wetlands Traffic Study Area Existing Traffic Volumes AM Peak Hour Existing Traffic Volumes PM Peak Hour Off-Street Parking TOC-16

18 List of Figures Following Page No-Build Traffic Volumes AM Peak Hour No-Build Traffic Volumes PM Peak Hour Traffic Improvements Total Build Increment Traffic Volumes AM Peak Hour Total Build Increment Traffic Volumes PM Peak Hour Build Traffic Volumes AM Peak Hour Build Traffic Volumes PM Peak Hour Noise Monitoring Locations Construction Timeline Residential Buildings over the FDR Drive Alternative Stepped Ramp Alternative Partial Stepped Ramp Alternative TOC-17

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