and Port Authority of New York and New Jersey Preliminary Urban Design Study For the future of the World Trade Center site and adjacent areas
Port Authority of New York and New Jersey George E. Pataki Governor, State of New York Michael R. Bloomberg Mayor, City of New York George E. Pataki Governor, State of New York James E. McGreevey Governor, State of New Jersey John C. Whitehead Chairman, Louis R. Tomson President, Jack G. Sinagra Chairman, Port Authority of New York and New Jersey Joseph J. Seymour Executive Director, Port Authority of New York and New Jersey Board of Directors Roland W. Betts Paul A. Crotty Lewis M. Eisenberg Dick Grasso Robert M. Harding Sally Hernandez-Pinero Thomas S. Johnson Edward J. Malloy E. Stanley O Neal Billie Tsien Carl Weisbrod Madelyn Wils Howard Wilson Deborah C. Wright Frank G. Zarb Board of Commissioners Charles A. Gargano, Vice Chairman Bruce A. Blakeman Michael J. Chasanoff Charles A. Kushner David S. Mack William J. Martini Alan G. Philibosian Raymond M. Pocino Anthony J. Sartor Henry R. Silverman Anastasia M. Song
Table Of Contents Introduction 03 1 2 3 Preliminary Program 09 Goals and Objectives 12 Uses on the Site and Adjacent Areas 14 Other Programming Considerations 18 Transportation Impacts 20 Urban Design Elements 21 Memorial Precedents 24 PATH Terminal and Fulton Street Station 33 The Street Grid 37 West Street 43 Bus Facility 49 Parks and Recreation 50 Commercial Office Space 53 Retail Amenities 55 Arcades 57 Light and Air 61 Hotel 65 Urban Design Approaches and Concept Plans 67 Criteria for Evaluation 70 Six Concept Plans 72
Introduction John C. Whitehead Chairman Lower Manhattan Development Corporation T he Lower Manhattan Development Corporation (LMDC) and the Port Authority of New York and New Jersey (PA) have embarked on an open and inclusive public process to plan the future of the World Trade Center site and adjacent areas. The LMDC is a joint state-city corporation formed in the aftermath of September 11 to oversee and coordinate the revitalization and rebuilding of Lower Manhattan south of Houston Street. The Port Authority is the owner of the 16-acre site on which the World Trade Center once stood. Jack G. Sinagra Chairman Port Authority of New York and New Jersey This urban design study with memorial site concepts is an important milestone in the planning process, intended to provide a framework for public dialogue about the future of the World Trade Center site and adjacent areas. It contains a preliminary program for the site, an inventory of required elements and a menu of real concept plans intended to facilitate an informed public discussion. These plans mark the beginning of a public dialogue on the various component elements of any future plan for the site. 03 Port Authority of New York and New Jersey
The planning of the site and adjacent areas is intended to evolve through a transparent process of extensive and ongoing formal public comment and consultation. Three phases of public review will direct and refine these urban design concept plans toward the selection of a final, recommended plan (see page 7). During each phase, the LMDC and the PA will present a number of alternative schemes and receive feedback from Advisory Councils, public hearings, Community Boards, and through other public and representative forums. The LMDC and the PA are also receiving comments by mail and via the LMDC website, www.renewnyc.com. Over 1000 people attended an LMDC and PA public hearing on May 23 at Pace University in Lower Manhattan. From the public input the LMDC and the PA have received, some shared goals for the planning process have begun to emerge, many of which are outlined in LMDC s Principles and Revised Blueprint. Certain essential elements are clear. A memorial and new public open spaces are fundamental aspects of any plan for Lower Manhattan. Likewise, Battery Park City and the World Financial Center must be integrated with the rest of Lower Manhattan. A new transportation hub, perhaps something akin to a new downtown Grand Central Terminal, would accommodate the mass transit needs of residents, workers, and visitors. 04 Port Authority of New York and New Jersey
This study presents six concept plans with different ways of arranging the various elements on the site and adjacent areas. For instance, many have voiced support for restoring the original city street grid though in fact the original grid was constantly changing as the shoreline of Manhattan expanded westward. In accordance with this sentiment, however, the construction plans for 7 World Trade Center are proceeding in a manner that offers the possibility of reconnecting Greenwich Street. As a departure point for discussion, this publication explores a range of ideas that will be refined through the planning process. The challenge we currently face is planning the public realm to design the relationship of streets, transit systems and open spaces that will generate a lively mix of uses on the site. The concept plans included in this publication are not architectural designs for proposed buildings. Rather, they present different relationships of uses and elements on the site and adjacent areas that will provide desirable sites for future works of architecture. As part of this process, we must coordinate an extraordinarily dense cluster of transportation, utility and communications infrastructure and weave it into the fabric of Lower Manhattan. 05 Port Authority of New York and New Jersey
Public input drives the planning process. Once a final plan is approved, the second stage of the planning process will begin architectural design befitting of the importance of the site to the city, the nation, and, indeed, the world. The result will be a revitalized Lower Manhattan that will stimulate private-sector investment, create new jobs and support a thriving economy for years to come. The LMDC and the PA invite you to examine these six concept plans. None of the plans is final; in fact, the various elements are intended to be mixed and matched. It is highly unlikely that any one of the plans in this study will be selected in its current form as the final plan. Rather, the end product will be the result of combining different elements from each of the six alternatives into one composite plan. The LMDC and the PA seek input, ideas and reactions from the public to develop and refine the plans, determine priorities and rebuild Lower Manhattan better than it was before. In future months, the LMDC will be examining the challenges facing other communities in Lower Manhattan, including the need for mixed-income housing, a stronger and more diverse economy, better parks and recreational spaces, and improved transportation. 06 Port Authority of New York and New Jersey
& Port Authority of New York and New Jersey Joint Planning Process LMDC Principles and Revised Blueprint + Port Authority Program Planning Phase 1 LMDC & PA 6 Concept Plans for WTC Site and Adjacent Areas July 2002 Planning Phase 2 LMDC & PA Up to 3 Refined Plans for WTC Site and Adjacent Areas September 2002 Planning Phase 3 LMDC & PA Release Final Draft Plan for WTC Site and Adjacent Areas December 2002 07 Port Authority of New York and New Jersey
Preliminary Program 1
Preliminary Program T he broad goals and objectives for revitalization have been articulated in a document entitled Principles and Revised Blueprint for the Future of Lower Manhattan, developed by the LMDC in a collaborative and ongoing listening and public input process. Within the context of these broad goals and objectives and the PA s program needs, we can examine specific physical uses that must be accommodated on the World Trade Center site. This preliminary program for the site starts with a fitting memorial, and includes transit facilities, office and retail space, a hotel and infrastructure. With these preliminary requirements in mind, we can seek guidance and inspiration from precedents around the world. 11 Port Authority of New York and New Jersey
Goals and Objectives Preliminary Program The goals and objectives articulated in the LMDC Principles and Revised Blueprint for the Future of Lower Manhattan are: Respect the site of the World Trade Center as a place of remembrance and reserve an area of the site for one or more permanent memorials Facilitate the continued revitalization of Lower Manhattan to ensure its long-term viability Restore all or a portion of the street grid and reintegrate the former World Trade Center site with the rest of downtown Eliminate West Street as a barrier between the Financial District and Battery Park City Coordinate mass transit services to provide a coherent integration between Lower Manhattan and the rest of the city and region Create a distinctive transit hub linking PATH, subway, and future regional rail service as a gateway to Lower Manhattan Create downtown facilities to accommodate the anticipated surge in charter, tour, and public buses, and explore opportunities for off-street vehicular and service access Expand the residential population and enhance residential life to create a strong sense of community throughout Lower Manhattan Promote retail and commercial opportunities that support Lower Manhattan as a vibrant place with daytime and nighttime activity Provide for new or expanded cultural and civic institutions in Lower Manhattan Create an accessible, attractive, and comprehensive park and open space system for Lower Manhattan Support sustainable and excellent design, and green building technology, state-of-the-art safety and security in design and engineering, and accessible design features Support excellence in design to ensure the creation of a location that is a symbol of New York City recognized around the world Encourage preservation of outstanding historic structures and the cultural value of the cityscape Develop Lower Manhattan, not only with a revived and strengthened financial services/wall Street economy, but with new centers of economic activity The concept plans presented in this Study look beyond the former 16-acre World Trade Center site, and consider the broader urban context in which we must rebuild. From the World Financial Center on the west, to the Deutsche Bank Building on Liberty Street, to Century 21 and Liberty Plaza on Church Street, and north to Barclay Street, there is a 34.5-acre void on the landscape. 12 Port Authority of New York and New Jersey
CHURCH ST. WEST BROADWAY ST. Goals and Objectives Preliminary Program This area does not include numerous nearby structures that remain seriously damaged and unoccupied. We must consider the area stretching from Rector to Chambers Streets and from Broad Street to Battery Park City as the immediately impacted zone. CHAMBERS ST. WARREN ST. MURRAY ST. GREENWICH ST. NORTH END AVENUE WEST ST. PARK PLACE BARCLAY ST. VESEY ST. CITY HALL PARK 16 ACRES WTC SITE FULTON ST. DEY ST. BROADWAY ST. NASSAU ST. R UNION SQ. PARK LE CORTLANDT ST. LIBERTY ST. 34.5 ACRES TOTAL AREA OF SITE AND ADJACENT AREAS TRINITY PL. CEDAR ST. PINE ST. ALBANY ST. CARLISLE ST. WALL ST. RECTOR ST. Union Square Park, totalling 4.3 acres, serves as a helpful reference point in thinking about the total acreage of the site. 13 Port Authority of New York and New Jersey
Uses on the Site and Adjacent Areas Preliminary Program The alternatives presented in this publication start with a preliminary program. As the public planning process evolves, these program requirements will be re-evaluated and revised. Accordingly, the following should be viewed only as a starting point for thinking about the site: Permanent Memorial Public Open Space Cultural Amenities Commercial Office Space A permanent memorial must be the major element of the plan for the site and adjacent areas. It should be respectful, contemplative and inspirational, could be spatial or symbolic, and could function as a place unto itself or as a connector between different places. Cultural amenities, such as a Museum of Freedom and Remembrance, could also form part of the memorial space. Public open space is a scarce resource in Lower Manhattan, even more so since the Austin J. Tobin Plaza at the World Trade Center, one of downtown s largest and best-used public plazas, was destroyed on September 11. In order for Lower Manhattan to be an attractive place for workers, residents, and visitors, it is critically important that we provide usable and attractive open space. Cultural amenities such as a Museum of Freedom and Remembrance, a concert hall, opera house, educational facilities, library or community center have been proposed for the World Trade Center site, to provide enriching experiences for New Yorkers and visitors alike, and contribute to the 24-hour vitality of the area. Lower Manhattan is the third largest central business district in the United States and home to Wall Street, the global center of finance. For Lower Manhattan to remain competitive with financial centers around the world, it must continue to be able to grow. Over 12 million square feet of commercial office space was destroyed on September 11, and it is critically important that plans allow for as much of this space to be rebuilt as the market demands. As market cycles vary and office space can take time to become fully absorbed by the market, plans should allow for the potential to rebuild in phases. 14 Port Authority of New York and New Jersey
Uses on the Site and Adjacent Areas Preliminary Program Hotel The 600,000 square foot Marriott World Trade Center Hotel included 820 rooms, as well as conference and banquet facilities, two restaurants, and a health club. This important amenity provided convenient accommodations for business-travelers and tourists from around the world, and contributed to the vitality of the area. Retail Amenities The 430,000 square foot retail concourse in the World Trade Center featured a diverse selection of national and independent retailers, providing an array of quality goods and services, many of which were unique within Lower Manhattan. Residents of surrounding neighborhoods in Lower Manhattan, especially Battery Park City, depended on this amenity. New plans for the site should recognize and address the contractual right and obligation of Westfield America to an expansion of up to 600,000 square feet of retail space. Former World Trade Center Shopping Concourse St. Nicholas Church St. Nicholas Greek Orthodox Church, destroyed in the collapse of the World Trade Center, was an institution on Cedar Street for over 80 years. It should be included in rebuilding plans for the areas adjacent to the World Trade Center Site. 15 Port Authority of New York and New Jersey
Uses on the Site and Adjacent Areas Preliminary Program PATH Terminal The former PATH Terminal was a 420,000 square foot facility, which, along with MTA facilities at the World Trade Center, served nearly 100,000 commuters each day. As PATH and MTA Subway services are restored, plans must be made for a permanent new terminal. The new PATH Terminal will be based on a 10-car train operation. It will use the existing tunnels to connect with Exchange Place in Jersey City, New Jersey. Former World Trade Center PATH Terminal Buses/Parking Millions of visitors will come to the site each year to remember and reflect. Prior to September 11, Lower Manhattan s streets were already choked with the over 700 local service buses, 1000 commuter buses, and 300 charter buses that visited each day. Traffic has worsened, exacerbated by the lack of an offstreet facility for loading and layover. To accommodate what is already a major destination and to prevent further street congestion, a facility is needed to provide off-street loading and parking for buses. Bus loading currently congests streets. 16 Port Authority of New York and New Jersey
Uses on the Site and Adjacent Areas Preliminary Program Trucks and Freight Lower Manhattan s offices, retailers, institutions, and residents are served every day by hundreds of freight trucks and delivery vehicles. Unlike midtown Manhattan, there are few off-street truck loading facilities in Lower Manhattan. The site should accommodate off-street delivery zones in order to relieve street traffic. Awkward conditions for truck loading and unloading are prevalent throughout Lower Manhattan. The program of the former World Trade Center site provides a context in which to understand future development needs: Previous Structures Land Use Building Area Open Space Public Plaza 5 acres Office Twin Towers 9,500,000 sq. ft. (1 & 2 World Trade Center) 4 & 5 World Trade Center 1,000,000 sq. ft. 7 World Trade Center 2,000,000 sq. ft. Office Subtotal 12,500,000 sq. ft. Civic/Gov. U.S. Custom Service 760,000 sq. ft. Hotel Host Marriott 600,000 sq. ft.. Retail Shopping Concourse 430,000 sq. ft. Transit PATH Terminal 420,000 sq. ft. Operations Service Areas 810,000 sq. ft. Parking Parking Structure 630,000 sq. ft. Total 16,150,000 sq. ft. Shortly before September 11, the PA entered into long-term lease agreements with Silverstein Properties and Westfield America for office and retail facilities at the World Trade Center. Revenues from these and other leases at the World Trade Center complex produced approximately $120 million per year, escalating over time, and are an important source of funding for the PA. These revenues service the bonds that support essential public works around the region, including bridges, tunnels and airports, and enable the PA to meet its fiduciary responsibilities to its bondholders. 17 Port Authority of New York and New Jersey
Other Programming Considerations Preliminary Program Beyond the functional uses that need to be accommodated on the redeveloped site, there are other considerations that should be taken into account. Public Access Access for Persons with Disabilities Design Excellence Security Sustainability Ease of circulation to and through the site is critically important. Public transportation, bus access and pedestrian connections are essential to unclogging streets, sidewalks, ferries, buses and subways. Buses, taxis and livery cars as well as freight trucks need to load and unload. Connections for subway and rail commuters should be coherent and pleasant. Likewise, the atmosphere for workers, residents, and tourists should be user-friendly and attractive. The rebuilt complex must comply with all applicable codes concerning access for persons with disabilities. All public spaces in the complex must be accessible to persons with disabilities. The site and adjacent areas will provide a variety of opportunities for the highest quality design of world class structures. The site must create a glorious new icon for the skyline of Lower Manhattan. The site is of critical importance to Lower Manhattan and New York City and should be rebuilt with the finest possible works of architecture. Security is a critical consideration in the planning and design of structures for the World Trade Center site and adjacent areas. Designs should emphasize personal security for visitors to the memorial, office workers, shoppers, and area residents. Urban design and architectural cues can be used to define the environment as a secure space. Diverse and active uses, clear sight lines, and good lighting can reinforce the sense that the area is under surveillance. At the building level, designs should anticipate and protect against terrorism to the greatest possible extent. Defensive mechanisms should be designed to protect structural integrity, mechanical systems, and service areas, and provisions should be made to facilitate rapid evacuation in the event of emergencies. The redevelopment effort provides an opportunity to enhance the environmental quality of Lower Manhattan. New buildings and facilities should be designed to be sustainable, with an emphasis on noise and air quality, energy efficiency, and the use of recycled, renewable materials. Buildings should be sited and designed to allow ample natural light and air to reach pedestrians at street level, particularly in parks and open spaces, and mitigate prevailing winds that historically impacted the World Trade Center site. Importantly, the site should be configured with convenient access to mass transit. 18 Port Authority of New York and New Jersey
Other Programming Considerations Preliminary Program Funding President George W. Bush and the United States Congress have committed over $20 billion to Lower Manhattan. These funds must be used wisely but boldly to rebuild Lower Manhattan so that it will continue to grow and develop, stimulating private sector investment. The sources and uses of federal, private and other funds, as well as insurance proceeds, need to be detailed. Insurance proceeds that the leaseholders expect to receive as a consequence of the September 11 attacks will constitute a significant portion of funds available for rebuilding. Timing The site and adjacent areas must be rebuilt with a practical but expeditious schedule that will allow Lower Manhattan to continue to grow. A realistic schedule needs to take into account the time needed for development and construction, and the absorption of the space throughout market and development cycles. The rebuilding of the site should seek to minimize disruptions to downtown residents, workers and businesses. The plans for the World Trade Center site and adjacent areas will be developed through an inclusive, open and iterative public process. Guided by the LMDC Public Input Process and Timeline, the LMDC Principles and Revised Blueprint for the Future of Lower Manhattan and the PA program needs, the plans for the site will go through three phases of public review and comment, with a final draft plan on or about December 2002. 19 Port Authority of New York and New Jersey
Transportation Impacts Concept plans for the World Trade Center site and adjacent areas will be refined as part of the broader strategic planning efforts to improve transportation services for all of Lower Manhattan, undertaken by the LMDC, the PA, the Metropolitan Transportation Authority (MTA), New York State and New York City Departments of Transportation, and other partner agencies. Each of these six concept plans creates streets, sidewalks and paths that substantially enhance at-grade pedestrian connections through the site and with all adjacent areas. Some street-level vehicular access for local traffic is introduced through the site where consistent with the goals and objectives of the program. Work to date indicates that none of the concept plans presents insurmountable obstacles in managing vehicular, transit, and pedestrian flows for the site and areawide network. Common Transportation Features: Permanent PATH Terminal located within the World Trade Center site Transit concourse connecting east-west from a proposed Transit Center at Fulton Street through the World Trade Center site to the World Financial Center Presumed compatibility with future development of a major commuter-rail station Direct, at-grade pedestrian connections across West Street without crossing regional traffic Service vehicle access to the World Trade Center site primarily from West Street Continued use of West Street for essential regional and local traffic, including access to the Brooklyn Battery Tunnel, Battery Park City, local streets and the World Trade Center site 20 Port Authority of New York and New Jersey