[From the U.S. Government Printing Office, www.gpo.gov]



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                                                         DEPARTMENT OF CITY PLANNING                                                           CITY OF NEW








                       NEw YORK CITY
                       COMPREHENSIVE WATERFRONT PLAN

                       Reclaiming the City's Edge



                       For Public Discussion

                       Summer 1992






                                                     U. S. DEPARTMENT OF COMMERCE NOAA
                                                     COASTAL SERVICES CENTER
                                                     2234 SOUTH HOBSON AVENUE
                                                     CHARLESTON , SC 29405-2413



                          


                       DAVID N. DINKINS, Mayor
                                                          Property of CSC Library
                       City of New York


                       RICHARD L. SCHAFFER, Director
                       Department of City Planning













                       NYC DCP 92-27
 







                -N-Ew YORK CITY COMPREHENSIVE WATERFRONT PLAN
                CONTENTS


                         EXECUTIVE SUMMARY


                      1  INTRODUCTION: SETTING THE COURSE


                      2  PLANNING FRAMEWORK                                                5

                         HISTORICAL CONTEXT                                                5

                         LEGAL CONTEXT                                                     7

                         REGULATORY CONTEXT                                              10


                      3  THE NATURAL WATERFRONT                                          17

                         WATERFRONT RESOURCES AND THEIR SIGNIFICANCE                     17
                         Wetlands                                                        18
                         Significant Coastal Habitats                                    21
                         Beaches and Coastal Erosion Areas                               22
                         Water Quality                                                   26
                         THE PLAN FOR THE NATURAL WATERFRONT                             33
                         Citywide Strategy                                               33
                         Special Natural Waterfront Areas                                35


                      4  THE PUBLIC WATERFRONT                                           51

                         THE EXISTING PUBLIC WATERFRONT                                  52

                         THE ACCESSIBLE WATERFRONT: ISSUES AND OPPORTUNITIES             63

                         THE PLAN FOR THE PUBLIC WATERFRONT                              70
                         Regulatory Strategy                                             70
                         Public Access Opportunities                                     71


                      5  THE WORKING WATERFRONT                                          83

                         HISTORY                                                         83

                         THE WORKING WATERFRONT TODAY                                    85

                         WORKING WATERFRONT ISSUES                                       101

                         THE PLAN FOR THE WORKING WATERFRONT                             106
                         Designation Significant Maritime and Industrial Areas           107
                         JFK and LaGuardia Airport Areas                                 114
                         Citywide Strategy for the Working Waterfront                    115









                     6   THE REDEVELOPING WATERFRONT                                      119

                         THE REDEVELOPING WATERFRONT TODAY                                119

                         THE IMPORTANCE OF REDEVELOPMENT                                  122

                         WATERFRONT DEVELOPMENT ISSUES                                    125

                         REDEVELOPMENT CRITERIA                                           127
                         THE PLAN FOR THE REDEVELOPING WATERFRONT                         128


                     7   WATERFRONT ZONING PROPOSAL                                       145

                         WATERFRONT AREA                                                  146

                         ZONING LOTS                                                      147

                         CALCULATING FLOOR AREA ON WATERFRONTAGE LOTS                     148
                         DEFINITION OF WATER DEPENDENT & WATERFRONT ENHANCING USES        148

                         WATERFRONT USE REGULATIONS                                       152
                         FLOATING (IN-WATER) STRUCTURES                                   154
                         OVERWATER STRUCTURES (PIERS AND PLATFORMS)                       156
                         WATERFRONT PUBLIC ACCESS                                         162
                         'VISUAL CORRIDORS                                                166
                         HEIGHT AND SETBACK, OPEN SPACE AND YARD REQUIREMENTS             168
                         PARKING WITHIN THE WATERFRONT AREA                               182


                     8   NEXT STEPS: IMPLEMENTATION STRATEGIES                            185

                         PUBLIC PARTICIPATION                                             185
                         ZONING REFORM                                                    185
                         CITY MAP CHANGES                                                 186

                         WATERFRONT REVITALIZATION PROGRAM REFORM                         187

                         PUBLIC INVESTMENT                                                187
                         COORDINATION                                                     189



                     APPENDICES
                     A Summary of Reach Recommendations
                     B   Waterfront Revitalization Program Policies
                         Bibliography
                         Acknowledgements
                         Credits












                          MAPS


                          2.0    Coastal Zone Boundary                                                                12

                          3.0    Wetlands                                                                             19
                          3.1    Significant Coastal Fish & Wildlife Habitat Designations                             23
                          3.2    Erosion Hazard Areas                                                                 25
                          3.3    New York Harbor Water Quality Goals                                                  27
                          3.4    Water Pollution Control Plants                                                       29
                          3.5    Combined Sewer Overflow Abatement Program                                            31
                          3.6    Jamaica Bay Special Natural Waterfront Area                                          37
                          3.7    Staten Island Special Natural Waterfront Area                                        43
                          3.8    Long Island Sound Special Natural Waterfront Area                                    46

                          4.0    Existing Waterfront Public Access/The Bronx                                          54
                          4.1    Existing Waterfront Public Access/Manhattan                                          56
                          4.2    Existing Waterfront Public Access/Queens                                             59
                          4.3    Existing Waterfront Public Access/Brooklyn                                           60
                          4.4    Existing Waterfront Public Access/Staten Island                                      62
                          4.5    Waterfront Greenways                                                                 67
                          4.6    Public Waterfront Recommendations/The Bronx                                          73
                          4.7    Public Waterfront Recommendations/Manhattan                                          75
                          4.8    Public Waterfront Recommendations/Queens                                             77
                          4.9    Public Waterfront Recommendations/Brooklyn                                           79
                          4.10   Public Waterfront Recommendations/Staten Island                                      81

                          5.0    Existing Waterfront Manufacturing Zoning Districts                                   86
                          5.1    Maritime and Water Dependent Industrial Uses                                         89
                          5.2    Marina Uses                                                                          92
                          5.3    Commercial Cruise and Excursion Uses                                                 94
                          5.4    Water-Dependent Transportation                                                       96
                          5.5    Highway/Rail/Intermodal Network                                                      98
                          5.6    Utilities and Municipal Water-Dependent Uses                                         100
                          5.7    Harbor Drift Project                                                                 105
                          5.8    Significant Maritime/Industrial Areas                                                108

                          6.0    Existing Waterfront Residential and Commercial Zoning Districts and
                                 Approved Redevelopment Projects                                                      120
                          6.1    The Plan for the Redeveloping Waterfront/The Bronx                                   135
                          6.2    The Plan for the Redeveloping Waterfront/Brooklyn                                    137
                          6.3    The Plan for the Redeveloping Waterfront/Manhattan                                   139
                          6.4    The Plan for the Redeveloping Waterfront/Queens                                      141
                          6.5    The Plan for the Redeveloping Waterfront/Staten Island                               143










                            FIGURES


                            2.0   WRP Consistency Review                                                                     13

                            7.1   Waterfront Area                                                                          147
                            7.2   Waterfront Zoning Lot                                                                    149
                            7.3   Calculating Floor Area                                                                   149
                            7.4   Piers/Platforms: Configuration                                                           157
                            7.5   Proposed Envelope and Public Access Requirements for Pier Development:
                                  High Coverage                                                                            159
                            7.6   Proposed Envelope and Public Access Requirements for Pier Development:
                                  Rl-R6 Zones                                                                              159
                            7.7   Proposed Envelope and Public Access Requirements for Pier Development:
                                  R7-R8 Zones                                                                              161
                            7.8   Proposed Envelope and Public Access Requirements for Pier Development:
                                  119-1110 Zones                                                                           161
                            7.9   Waterfront Public Access (Higher-Density Development)                                    165
                            7.10  Waterfront Access Plan with Visual Corridors                                             165
                            7.11  Waterfront Yard (Lower Density Development)                                              167
                            7.12  Visual Corridors                                                                         167
                            7.13  Urban Design Case Study: Existing R6A Regulations                                        170
                            7.14  Urban Design Case Study: Existing R6 Height Factor Development Regulations               171
                            7.15  Urban Design Case Study: Proposed R6 Height & Setback Regulations                        173
                            7.16  Waterfront Zoning Lot                                                                    176
                            7.17  Bulk Diagrams: R6 Districts                                                              177
                            7.18  Bulk Diagrams: R7 Districts                                                              178
                            7.19  Bulk Diagrams: R8 Districts                                                              179
                            7.20  Bulk Diagrams: R9 Districts                                                              180
                            7.21  Bulk Diagrams: RIO Districts                                                             181



                            TABLES

                            6.0   Bronx: Existing Projects & Proposed Redevelopment Opportunities                          134
                            6.1   Brooklyn: Existing Projects & Proposed Redevelopment Opportunities                       136
                            6.2   Manhattan: Existing Projects & Proposed Redevelopment Opportunities                      138
                            6.3   Queens: Existing Projects & Proposed Redevelopment Opportunities                         140
                            6.4   Staten Island: Existing Projects & Proposed Redevelopment Opportunities                  142

                            7.1   Water Dependent Uses                                                                     150
                            7.2   Waterfront Enhancing Uses                                                                151
                            7.3   Parking for Docks, Sightseeing and Excursion Vessels, and Ferries                        154
                            7.4   Height Controls for Developments Requiring a Special Permit on
                                  Floating Structures                                                                      155
                            7.5   Height and Setback Regulations for Piers                                                 158
                            7.6   Waterfront Public Access Requirements                                                    163
                            7.7   Lot Coverage, FAR and Density                                                            172
                            7.8   Maximum Height and Packing Requirements                                                  175









                   EXECUTIVE SUMMARY
                   NEW YORK CITY COMPREHENSIVE WATERFRONT PLAN


                   New York City's waterfront is a valuable but still untapped resource. Decades of declining
                   maritime activity have left much of the city's waterfront dormant. Today, after years of
                   neglect and revitalization attempts stalled by the clash of competing interests, New Yorkers
                   are coming together to fulfill the public's claim to productive use and increased enjoyment
                   of this resource.

                   The Comprehensive Waterfront Plan proposed by the Department of City Planning responds
                   to this extraordinary planning opportunity. For the first time in the city's history, it provides
                   a framework to guide land use along the city's entire 578-mile shoreline in a way that
                   recognizes its value as a natural resource and celebrates its diversity. The plan presents a long-
                   range vision that balances the needs of environmentally sensitive areas and the working port
                   with opportunities for waterside public access, open space, housing and commercial activity.

                   The plan envisions a 21st century waterfront where:

                   ï¿½  parks and open spaces with a lively mix of activities are within easy reach of communities
                      throughout the city;

                   ï¿½  people once again swim, fish and boat in clean waters;

                   ï¿½  natural habitats are restored and well cared for;

                   ï¿½  maritime and other industries, though reduced in size from their heyday, thrive in
                      locations with adequate infrastructure support;
                   ï¿½  ferries crisscrossing the city's harbor and rivers, and interconnected systems of
                      bikeways and pedestrian pathways help lessen traffic congestion and air pollution;

                   ï¿½  panoramic water views of great beauty are preserved or created; and

                   ï¿½  the city's needs for new housing and jobs for people of diverse income levels are
                      satisfied in attractive and safe surroundings.
                   Fortunately, all of these needs and opportunities can be accommodated in suitable locations
                   on what is arguably the longest and most diverse municipal waterfront in the nation. The
                   city's waterfront encompasses coastal beaches and pristine wetland habitats, small homes set
                   beside lagoons and creeks, high-rise apartments and office buildings with magnificent views
                   of bridges and skylines, parks and esplanades, airports and heliports, and bulkheaded areas
                   active with shipping, industry and a variety of municipal uses.
                   The plan capitalizes on the size and diversity of the city's waterfront to address the historic
                   competition between commerce and recreation for use of waterfront land. It seeks to balance
                   these competing interests by recognizing the importance of environmental values, by adjusting
                   to the decline of traditional working waterfront uses, by protecting the city's important
                   maritime assets, and by identifying new opportunities for expanding public use of the
                   waterfront and for increasing its economic value.









              The Comprehensive Waterfront Plan builds on the experience of the past. At the same time,
              the plan addresses today's conditions and works within a myriad of legal and regulatory
              parameters affecting the use and development of the city's waterfront. The concept of "public
              trust", which establishes that certain waterfront benefits are held in trust for all the people,
              is fundamental to the plan. The federal Coastal Zone Management Act of 1972, which led to
              the creation of the city's Waterfront Revitalization Program (WRP), is another important legal
              basis for the waterfront plan. Although WRP has been a positive influence on waterfront
              development for almost a decade, a revised and enhanced WRP would better articulate the
              city's goals for differing sections of the waterfront.

              The plan is organized around the four principal functions of the waterfront:
              ï¿½   The Natural Waterfront, comprising beaches, wetlands, wildlife habitats, sensitive
                  ecosystems and the water itself.
              ï¿½   The Public Waterfront, including parks, esplanades, piers, street ends, vistas and
                  waterways that offer public open spaces and waterfront views.
              ï¿½   The Working Waterfront, where water dependent, maritime and industrial uses cluster
                  or where various transportation and municipal facilities are dispersed.

              ï¿½   The Redeveloping Waterfront, where land uses have recently changed or where vacant
                  and underutilized properties suggest potential for beneficial change.
              The plan for each of these waterfront uses describes its goals, resources and major issues, and
              proposes short- and long-term strategies to guide land use change, planning and coordina-
              tion, and public investment. Each plan, though presented separately, is interwoven with the
              others so that, together, they create a comprehensive vision for the entire waterfront.

              The plan highlights three of the city's preeminent natural areas - encompassing roughly 30
              percent of the waterfront - and proposes public policies to preserve and enhance their
              outstanding natural features. All over the city@ neighborhoods would be reconnected to the
              waterfront. More than 100 sites are recommended for new or improved waterside public
              spaces: nearly 50 new public parks and existing parks where new attractions could be created
              at the water's edge; 25 public street ends that, with modest improvements, could provide
              points of access for nearby residents and workers; and another 40 sites where public access
              would be a mandatory component of new residential or commercial development.
              In response to the decline in manufacturing and the derelict condition of many waterfront
              industrial properties, the plan recommends that some 500 acres of manufacturing-zoned land
              be rezoned for residential, commercial and recreational use. Based on proposed densities,
              50,000 to 75,000 housing units could be built on the parcels recommended for rezoning and
              on those that have already been approved (e.g., Hunters Point and Arverne). Even with these
              bold initiatives, the plan ensures that sufficient land will be available to meet the needs of
              industry and the working waterfront. Thirty percent of the city's shoreline is presently zoned
              for industrial use. Most of that zoning would remain in place, particularly in six Significant
              Maritime and Industrial Areas with an estimated total of 4,000 waterfront acres, where land
              use and public investment strategies would support and promote working waterfront uses.




              H








                   As an essential counterpart to land use guidelines, the plan proposes an unprecedented set of
                   zoning reforms that address the unique qualities of waterfront property. Waterfront zoning
                   regulations, to be incorporated in a new section of the Zoning Resolution, would streamline the
                   waterfront regulatory process, increase public access, facilitate water dependent uses, and
                   encourage appropriately scaled waterfront development with a compatible and lively mix of uses.
                   A summary of the plan's principal recommendations follows.


                   THE NATURAL WATERFRONT
                   To protect and enhance the city's natural resources, the plan for the Natural Waterfront
                   distinguishes between waterfront areas characterized by a convergence of significant natural
                   features and those with less environmental value which serve important social and economic
                   functions. The plan presents a set of strategies to address natural waterfront issues citywide,
                   and it designates three natural areas with special significance, which merit heightened
                   attention and strategies tailored to their unique environments. WRP policies would be
                   modified to give added weight and greater specificity to natural resource values in thlese areas.

                   Citywide Strategies
                   For the city's tidal and freshwater wetlands, enhanced regulatory coordination and
                   management strategies are proposed to establish wetland acquisition priorities; consider
                   appropriate development controls; reduce illegal dumping; and develop realistic mitigation
                   alternatives for actions that would adversely affect existing wetlands.
                   The plan supports designation, as proposed by the Department of State, of 15 Significant
                   Coastal Fish and Wildlife Habitats and suggests the development of specific buffer and
                   stormwater runoff controls adjacent to these areas.
                   To combat coastal erosion, the plan calls for continuation of the federal government's beach
                   nourishment program for Rockaway and Coney Island, including Seagate and Plumb Beach,
                   and recommends the city's participation in the Long Island South Shore Monitoring Program.
                   The plan endorses continuation of the city's water quality improvement programs including
                   upgrading water pollution control plants, advancing the Combined Sewer Overflow
                   Abatement and Floatables Programs, and increasing water conservation efforts. It advocates
                   a contaminated sediment dredging program to clean up Newtown Creek, Gowanus Canal and
                   Coney Island Creek; and a coordinated citywide strategy to address non-point stormwater
                   runoff pollution.

                   Special Natural Waterfront Areas
                   Jamaica Bay is one of the few remaining intact natural ecosystems in New York City. The
                   plan for Jamaica Bay recommends policy and program coordination in cooperation with the
                   public-private Jamaica Bay Task Force to deal with buffer and non-point stormwater runoff
                   standards, tidal circulation within the bay and illegal dumping in wetland and buffer areas.
                   Disposition strategies are proposed for seven large city-owned sites. Parkland designation is
                   recommended for much of this land; where development is proposed, guidelines would be
                   imposed to protect natural features.









               The Harbor Herons Complex, in the industrial northwest corner of Staten Island, is
               comprised of an interconnecting network of tidal and freshwater wetlands along the Arthur
               Kill. The plan proposes establishment of a management and research program, continued
               acquisition of sensitive ecosystems, development of specific buffer and stormwater runoff
               standards, and development of additional land use controls within this area, if determined
               to be necessary.
               The Long Island Sound/Upper East River area is characterized by natural intertidal rocky
               shorelines, shallow bays, and tidal and freshwater wetlands. The plan calls for transfer of the
               most sensitive city-owned property to the Department of Parks and Recreation, limited
               acquisition of private property, street dernapping in wetland areas and the development of
               specific buffer and stormwater runoff guidelines. The plan also acknowledges the potential
               for environmental restoration of Flushing Bay.


               THE PUBLIC WATERFRONT
               Waterfront views and easy access to the waterside for recreation and relaxation are eagerly
               sought amenities in cities everywhere. New York City is fortunate to have a vast, unique
               system of public parks that cover more than 40 percent of its shoreline. Another legacy -
               undeveloped waterfront parkland, derelict harborfronts, and unevenly distributed waterfront
               access opportunities - has left many of the city's communities with little or no connection
               to the water's edge.
               One of the overriding principles of the waterfront plan is to reestablish the public's
               connection to the waterfront by creating opportunities for visual, physical and recreational
               access. New waterfront public access can be created throughout the city as a result of
               redevelopment, along with improved access at existing waterfront parks, and limited
               opportunities for new waterfront parks.

               Regulatory Strategy
               To ensure development of a more publicly accessible waterfront, the Zoning Resolution would
               be amended to establish mandatory waterfront access requirements in all medium- and high-
               density residential and commercial developments, and in large, low-density developments in
               multifamily zoning districts. It would also allow for the mapping of Waterfront Access Plans
               where local conditions warrant special consideration.

               The public access provisions would require:

               ï¿½  continuous access parallel to the shore;

               ï¿½  upland connectors perpendicular to the shoreline;
               ï¿½  additional publicly accessible open space as part of large developments;

               ï¿½  no-build setbacks along all residential and commercial shoreline development;

               ï¿½  minimum design standards; and

               ï¿½  View corridors located to ensure visual access to the water.




               iv









                   Public Access Opportunities
                   The plan calls for waterfront access improvements in all five boroughs. The improvements
                   would:

                   ï¿½ provide public waterfront access for adjacent underserved communities;
                   ï¿½ create linkages to extend the existing network;
                   ï¿½ promote tourism and provide visual relief in densely developed areas;
                   ï¿½ promote use of the water as a recreational resource; and
                   ï¿½ provide safe, usable and well-maintained waterside public spaces.

                   In the Bronx, linear public access corridors are proposed along the Hudson River, the Harlem
                   River, Soundview Park and Ferry Point Park. A new connection to Randalls Island would
                   increase access to this underutilized recreational resource. Development of point access, in
                   the form of street ends and waterfront park nodes, is recommended along Eastchester Bay
                   and at strategic locations in the industrial South Bronx.

                   The plan for Brooklyn proposes waterfront access along the East River and Upper Bay in
                   conjunction with new waterfront development, and the use of public land and street ends to
                   create public open spaces for communities that are presently cut off from their waterfronts.
                   To the south, the plan recommends the eventual completion of a waterfront greenway along
                   Shore Parkway, Coney island, and Jamaica Bay. No public access is proposed along Newtown
                   Creek or Gowanus Canal, major industrial areas.

                   Manhattan would be the most highly developed public shoreline owing to its density and the
                   extent of its existing parks and esplanades. Continuous public access is recommended around
                   virtually the entire borough. Gaps in the East Side public access system would be addressed
                   by interim and long-term strategies. The plan recognizes the impracticality of continuous
                   public access along the Harlem River and proposes bridge connections to an esplanade on
                   the Bronx side of the river.

                   The plan for Queens, particularly along the East River, would incorporate new public access
                   opportunities in redevelopment, and would link existing open spaces. Additional waterfront
                   opportunities are possible at several locations along Flushing Bay and Long Island Sound.
                   Along Jamaica Bay and the Rockaways, where most of the waterfront is public beach or
                   environmentally-sensitive, there are nevertheless some opportunities to extend public access.

                   Several redevelopment opportunities along Staten Island's north shore would facilitate
                   development of the North Shore Esplanade proposed by City Planning in 1988. Staten
                   Island's public access system may also benefit from combined rail/trail use of the North Shore
                   and Travis railroad rights-of-way and the eventual closure of the Fresh Kills Landfill.
                   Improvements to the Island's south shore beachfront from Conference House Park to Fort
                   Wadsworth will enhance this important recreational resource.





                                                                                                                V











               THE WORKING WATERFRONT
               The city's working and industrial waterfront uses include four categories of water dependent
               uses: maritime, maritime support and industrial; marina and marina support; commercial
               excursion and boating; and transportation uses (ferries, airports, heliports and rail car float
               facilities). The working waterfront also includes municipal and utility uses, some of which are
               water dependent, and industrial uses that are not water dependent.

               Certain Water dependent uses tend to cluster in particular areas because of locational criteria
               or hydrographic conditions. Others are dispersed along the waterfront according to market
               or service catchment areas. Industrial uses for the most part are concentrated in areas with
               manufacturing zoning and good access to Manhattan.
               Most of the port's ocean-going shipping is centered in New Jersey. Only portions of the
               Staten Island and Brooklyn waterfronts remain useful for this purpose. However, the city's
               side of the harbor contains several marine terminals, many of the port's maritime support
               services, and an increasing number of commercial excursion boats, marinas and ferries.

               Fundamental objectives of the waterfront plan are to facilitate and encourage water dependent
               uses and to ensure the retention of sufficient manufacturing-zoned land to accommodate
               future needs. In support of these goals, the plan identifies infrastructure improvements
               necessary to sustain working waterfront uses, and opportunities for waterborne transportation
               of goods and people and for intermodal. connections involving water, rail, highway and
               airport linkages.

               Significant Maritime and Industrial Areas
               Based upon criteria relating to the present and future needs of water dependent industries,
               the plan designates six Significant Maritime and Industrial Areas to protect and encourage
               concentrated working waterfront uses.
               ï¿½  The Kill Van Kull in Staten Island from Howland Hook to Snug Harbor

               ï¿½  The Brooklyn waterfront from Erie Basin to Owls Head
               ï¿½  The Brooklyn waterfront from Pier 6 through the Red Hook Containerport

               ï¿½  The Brooklyn Navy Yard

               ï¿½  The Queens and Brooklyn shores of Newtown Creek

               ï¿½  The South Bronx (Port Morris and Hunts Point)

               A number of actions are recommended for the Significant Areas to guide land use decisions,
               land disposition policy and public investment strategies, and to promote better interagency
               coordination to facilitate intermodal development. Maintaining the manufacturing zoning in
               these Significant Areas would ensure sufficient land to accommodate the future needs of the
               working waterfront. Disposition of publicly-owned property and municipal facilities proposed
               for locations within the Significant Areas should encourage the inclusion of water dependent
               elements and use of intermodal facilities. Access improvements are identified to provide better
               connections to the region's highway network for the movement of goods.



               A









                   Airports
                   The plan recognizes the importance of Kennedy and LaGuardia airports to the local and
                   regional economy and the need to ensure their safe operation. It calls for improvements that
                   would support their operations and air cargo facilities, including better ground access and
                   waterborne transportation of goods and people.

                   Citywide Strategy
                   In addition to strategies for the Significant Areas and Airports, the plan recommends capital
                   investment, financing, and regulatory strategies for other waterfront industrial areas and for
                   dispersed working waterfront uses. A proposed inter-agency task force would develop a long-
                   range port improvement and investment program, including development priorities for port-
                   related infrastructure. The Zoning Resolution would be amended to facilitate new water
                   dependent developments by increasing the number of locations in which ferries, excursion
                   boats, marinas and marina support facilities would be permitted. Public access in waterfront
                   industrial areas would be encouraged only for public projects where safety could be assured
                   and access designed to avoid interference with industrial uses.


                   THE REDEVELOPING WATERFRONT
                   With the decline of industrial and maritime uses on the waterfront, some areas currently
                   zoned for manufacturing, as well as areas zoned for residential and commercial development,
                   offer opportunities for redevelopment that would revitalize the waterfront. Redevelopment
                   of these areas for residential, office, retail and community facility uses could create important
                   opportunities for public access and open space.

                   in addition to identifying locations where new residential or commercial development is
                   currently permitted and no further discretionary planning approvals are needed, the plan
                   proposes changes in land use for large vacant or underutilized sites where new development
                   would be appropriate. Many of these sites are in manufacturing zones where the land is not
                   needed for industrial development and where reuse would generate jobs, revenues and new
                   residential communities.

                   Past rezonings and other discretionary actions for waterfront redevelopment have highlighted
                   the inadequacies of the Zoning Resolution in regulating waterfront development, particularly
                   with respect to public access and open space, design controls, and view corridors. Waterfront
                   revitalization also has been constrained by regulations that limit water-related uses such as
                   ferries, accessory marinas, floating restaurants, and seasonal commercial uses along esplanades.
                   Regulatory review and infrastructure capacity also affect the timing, location, use and density
                   of new waterfront development. The waterfront plan can facilitate redevelopment by
                   establishing land use policies and zoning controls that provide a predictable framework for
                   new construction.


                   Redevelopment Opportunities
                   The goals of waterfront redevelopment can be achieved in large part by two mechanisms:
                   amending the text of the Zoning Resolution to better regulate waterfront development, and
                   applying the amended regulations to specific areas appropriate for rezoning.


                                                                                                                   Vii









               The land use criteria considered in determining areas appropriate for reuse include the
               presence of substantial amounts of vacant or underutilized land; absence of unique or
               significant natural features or, if present, the potential for compatible development; proximity
               to residential or commercial uses; the potential for strengthening upland residential or
               commercial areas and for opening up the waterfront to the public; the availability of
               neighborhood services; and the number of jobs potentially displaced balanced against the new
               opportunities created by redevelopment.
               In the Bronx, several sites on vacant or underutilized land along the Harlem River would be
               suitable for medium-density residential development. There are fewer redevelopment
               opportunities along the East Bronx waterfront which is lined with major parks, natural areas
               and built-up residential neighborhoods. Previously approved lower-density residential projects
               in the East Bronx include Shorchaven and Castle Hill Estates.

               The Brooklyn waterfront from Newtown Creek south to Owls Head Park is zoned for
               manufacturing. Although the zoning would be retained along most of this waterfront, several
               privately-owned sites in Greenpoint and Williamsburg meet the criteria for residential reuse.
               Brooklyn Piers I through 5 and a portion of the Red Hook peninsula also provide
               redevelopment opportunities. To the south, opportunities include the rebuilding of
               Steeplechase Amusement Park and housing development in Coney Island, and commercial
               development to complement the "fishing village" character of Sheepshead Bay.
               In Manhattan, specific redevelopment opportunities along the West Side and in Lower
               Manhattan will be shaped largely by several planning efforts under way. Redevelopment nodes
               on the West Side have been designated to allow for a balanced revitalization program. The East
               Side and Lower Manhattan offer locations for a mix of water-related and publicly-oriented uses,
               for example, a reconstructed ferry terminal with stores and restaurants. Feasibility studies are
               being conducted for the proposed Harlem on the Hudson project at West 125th Street, and a
               portion of the Sherman Creek industrial area is recommended for rezoning.
               In western Queens, the Hunters Point mixed use project and the nearby East River Tennis
               Club project were previously approved, and residential reuse of selected sites north of these
               projects is recommended. On the Flushing River, a portion of underutilized M3 land presents
               opportunities to extend the downtown to the waterfront and provide open space. In addition
               to the approved Arverne residential project in the Rockaways, redevelopment and
               revitalization is recommended in the Edgemere section through construction of housing,
               support services and infrastructure improvements.

               Along Staten island's north shore, the St. George Ferry Terminal and the adjacent Chessie
               Rail Yard site provide opportunities for a new civic, transportation and visitor center, as well
               as medium-density residential and commercial development. Several lower-density projects
               are under way or have been approved for the Outerbridge area and the south shore near
               Tottenville. Sections of the industrially-zoned area south of the Outerbridge Crossing may be
               suitable for lower-density housing and water-related uses.

               The redevelopment opportunities identified in each borough represent a diversified mix of
               uses and densities. The choice of areas balances waterfront planning objectives by taking into
               consideration the needs and goals of the working, natural and public waterfronts.




               Viii










                   WATERFRONT ZONING PROPOSAL
                   In accordance with comprehensive plan recommendations, the waterfront zoning proposal
                   would introduce mandatory public access requirements, encourage water dependent and
                   waterfront- enh ancin g uses, and ensure that the scale of development is appropriate for the
                   waterfront. The proposed regulations, which would apply primarily on waterfront blocks,
                   would require public access and view corridors in most non-industrial developments. They
                   would establish specific height and setback requirements and regulate uses, bulk and height
                   on piers and platforms. Many of the specific controls would exempt water dependent and
                   industrial uses; others would be modified to foster water dependent uses like ferries and
                   marinas and water-enhancing recreation and commercial activities in more locations.
                   The proposed changes generally would be applicable only when areas are rezoned or
                   redeveloped for residential or commercial use. To the extent possible, the proposal
                   incorporates as-of-right regulations to streamline the regulatory process, make zoning more
                   predictable, and minimize the cost of development and city regulation.


                   Waterfront Use Regulations
                   The proposal would foster water dependent and water-enhancing uses by expanding the range
                   of zoning districts in which they are permitted. For example, sightseeing or excursion boats,
                   now permitted only in manufacturing districts, would also be permitted in several commercial
                   districts. Ocean-going passenger ships would be permitted in central business districts as well
                   as manufacturing districts, to expand the uses permitted where the ship terminals are
                   presently located or where they would be desirable. To broaden opportunities for marina
                   development, the proposal would permit marinas constructed as part of a residential
                   development to be used by non-residents as well.

                   Floating Structures
                   Water dependent uses, small restaurants and cultural activities would be encouraged on
                   floating structures. Special permits would be required for other water-enhancing uses and
                   such uses as government facilities and power plants.


                   Waterfront Public Access
                   The proposal would establish mandatory requirements for public access on waterfront zoning
                   lots in mid- to high-density residential and commercial developments, and in large residential
                   developments in lower-density zoning districts permitting multifamily development. Public
                   access requirements would not be imposed on industrial uses. Although public access
                   generally would not be required in lower-density residential developments, developments
                   would be required to maintain a no-build zone along the waterfront for future public access
                   should the city choose to provide it.

                   Residential and commercial developments would be required to provide public open space
                   at the water's edge at the time of development, and public access and visual connections to
                   these areas from the first upland street. Additional public open space would be required in
                   certain instances. The generic requirements could be modified by mapping waterfront public
                   access plans where the local context warrants a site-specific plan (e.g., to enhance a significant
                   scenic view or to connect public parks).


                                                                                                                     ix










               Floor Area
               To control the scale of waterside development, floor area would no longer be generated by
               lands under water beyond the bulkhead line, except for.that portion of the lot covered by
               existing piers and platforms. Most of the underwater land, particularly in Manhattan, is
               owned by the city. The possible transfer of bulk generated by piers and platforms to the
               upland portion of the zoning lot would be limited.


               Piers and Platforms
               New bulk controls and public access requirements would limit height, achievable floor area,
               and the placement of development on existing piers. Water dependent uses would be exempt
               from these requirements. Existing platforms would be subject to the same use, public access,
               visual corridor and bulk regulations as the upland lot. New piers and platforms would be
               permitted only for the development of water dependent and waterfront enlivening uses.


               Height and Setback
               In lower-density (R1 through R5) districts, the existing zoning regulations, which limit height
               to 40 feet, would ensure appropriately scaled waterfront development. In mid- to high-density
               (R6 through RIO) zones, two options would be available: either the existing Quality Housing
               contextual zoning which encourages relatively low buildings, or a new set of bulk regulations
               tailored to the unique conditions of a waterfront setting. The existing "height factor" zoning
               in non-contextual R6 through RIO districts permits towers that might be excessively tall at
               the water's edge. If contextual regulations were used exclusively, however, they might not
               produce an interesting, varied and visually open waterfront.

               The proposed waterfront bulk regulations would replace height factor zoning in non-
               contextual mid- to high-density residential districts and their commercial equivalents. The
               new mandatory regulations would be flexible enough to permit the lower building forms of
               contextual zoning, but would also allow taller buildings of varied designs that maintain an
               urban context. Unlike height factor zoning, maximum height limits would be established and
               at least one-half the floor area in each building would have to be located below a certain
               height to reinforce the traditional street wall character and provide "eyes on the street". The
               proposed regulations would require building setbacks at specified levels to place the tower
               elements (if included) further from streets, visual corridors and public areas           on the
               waterfront.


               Parking
               Parking regulations would exclude parking from public access areas and open spaces, and
               parking areas on waterfront blocks would have to be screened from public spaces. To provide
               greater site planning flexibility, the proposal would permit accessory parking to be located off-
               site if it met certain location, size and screening conditions.












                                                                               Permitted
                                                                               development
                                                                               under the
                                                                               CURRENT R6
                                                                               zoning regulations






                                9


















                                                         Pot Cove
                                                                               Permitted
                                                                               development
                                                                               under the
                                                                               PROPOSED R6
                                                                               zoning regulations
                                       49                                      with public access
                                      a                                        indicated in gray
                                     ARL b    I        I
                      I A
                             UJ
                                    MA-











                  CONCLUSION
                  Taken together, the land use changes, zoning text amendments, public investment strategies
                  and regulatory revisions recommended in this plan signal a new beginning for the city's
                  waterfront. The collaborative process that guided development.of the plan will continue this
                  fall when the Department of City Planning convenes a series of public meetings with
                  community boards, public officials and agencies, and civic and neighborhood organizations.
                  In response to the ensuing dialogve, the Department will modify the plan as appropriate, file
                  zoning text amendments for public review, and revise the Waterfront Revitalization Program.
                  The challenge ahead is to set a realistic course of action that will preserve our natural
                  resources, strengthen our economy by providing new housing and jobs, and reclaim the city's
                  edge for public use and enjoyment.


                                                                                                              Xi
























                                                                   PON,



                                                                  ME







                                  SETTING THE COURSE

                            "The waterfiont is so important to New York City that a plan for the water-
                             front's future is a plan for the city's future, " Report of the Commission on the
                              Year 2000.


                     It has been widely accepted for some time                  framework to guide land use along the city's
                     that New York City's waterfront is a vast,                 entire shoreline in a way that recognizes its
                     untapped resource. Some have called it our                 value as a natural resource and celebrates its
                     last frontier, a place where change is possible            diversity. The plan presents a long-range
                     and the promise of public benefit is great. For            vision that balances the needs of environmen-
                     decades, ever since the emergence of the                   tally sensitive areas and the working port with
                     nation's environmental movement and the                    opportunities for waterside public access,
                     concurrent decline of traditional maritime                 open space, housing and commercial activity.
                     and industrial activity along our shores,
                     planners and policy makers have called for                 The plan envisions a 21st century waterfront
                     revitalization of this valuable resource.                  where:
                     Yet, despite an incomparable legacy of public              0   parks and open spaces with a lively mix
                     parkland and some notable successes like                       of activities are within easy reach of
                     Battery Park City and the South Street Sea-                    communities throughout the city;
                     port, many sections of the city's waterfront               0   people once again swim, fish and boat
                     remain dormant and derelict, or inaccessible                   in clean waters;
                     for public use and enjoyment.
                                                                                M   natural habitats are restored and well
                     The reasons for the slow pace of revitalization                cared for;
                     are complex: obsolete zoning regulations that              M   maritime and other industries, though
                     ignore the unique qualities of the city's edge
                     and inadequately address waterfront planning                   reduced in size from their heyday,
                     issues; an often confusing, lengthy and uncer-                 thrive in locations with adequate
                     tain regulatory process that adds to the cost of               infrastructure support;
                     both public and private redevelopment; a                       ferries crisscrossing the city's harbor and
                     chronic shortage of public funds, even in the                  rivers, and interconnected bikeways and
                     best of economic climates, for waterfront                      pedestrian pathways help lessen traffic
                     infrastructure and recreational improvements;                  congestion and air pollution;
                     and a longstanding tension between competing
                     needs and uses for waterfront land that can                    panoramic water views of great beauty
                     stalemate revitalization plans. These complexi-                are preserved or created; and
                     ties result in a great missed opportunity to                   the city's needs for new housing and jobs
                     create new employment, housing and recre-                      for people of all income levels are satis-
                     ational benefits for all the people of this city.              fied in attractive and safe surroundings.
                     The Comprehensive Waterfront Plan pro-                     Fortunately, all these needs and opportunities
                     posed by the Department of City Planning                   can be accommodated in suitable locations on
                     addresses this missed opportunity. For the                 what is probably the longest and certainly
                     first time in the city's history, it provides a









                among the most diverse municipal water                   In 1982, New York City became the first
                frontages in the nation. The commonly ac-                locality in the state to adopt a Waterfront
                cepted estimate of its length is 578 miles, and          Revitalization Program (WRP) to guide zoning
                it is unusually varied in both use and physical          and land use actions on the waterfront. The
                setting. The city's waterfront encompasses               program established a Coastal Zone Boundary
                coastal beaches and pristine wetland habitats,           within which all discretionary actions are
                small homes set beside lagoons and creeks,               reviewed for consistency with WRP coastal
                high-rise apartments and office buildings with           policies. Administered by the Department of
                magnificent views of bridges and skylines,               City Planning for the past ten years, the pro-
                parks and esplanades, airports and heliports,            gram has had a substantial positive effect on
                and bulkheaded areas active with shipping,               waterfront development in the city.
                industry and a variety of municipal uses.                Under WRP auspices, the Department under-
                The comprehensive plan capitalizes on the                took a number of studies and plans that ex-
                size and diversity of the city's waterfront to           panded its knowledge and understanding of
                address the historic competition between                 waterfronts throughout the city. These studies,
                commerce and recreation for use of water-                ranging from an analysis of trends in the
                front land. It seeks to balance these compet-            Maritime Support Services Industry to an
                ing interests by recognizing the importance of           examination of the inadequacies of the 1961
                environmental resources, by coming to grips              Zoning Resolution with respect to the water-
                                                                         front, have contributed to the development of
                with the decline of traditional working water-           this plan. Other City Planning studies (analyses
                front uses, by protecting the city's important           of industrial trends and open space needs, for
                maritime assets, and by identifying opportu-             example) were also valuable sources of infor-
                nities for expanding public use of the water-            mation. These studies informed and were
                front and for increasing its economic value.             informed by land and water use studies of
                                                                         local waterfront segments. For study purposes,
                As an essential counterpart to land use guide-           the entire waterfront was divided into 22
                lines, the plan proposes a set of zoning re-             "reaches" (a nautical term suggesting distance
                forms that can streamline the waterfront                 sailed), each with common characteristics. (See
                regulatory process and encourage appropri-               Appendix A for summaries of the Reach Stud-
                ately scaled waterfront development with a               ies. Other pertinent works are listed in the
                lively and compatible mix of uses.                       selected Bibliography.)

                A plan of this scope would not have been                 The plan has been informed as well by the
                possible without a foundation of programs,               ideas, expertise and guidance of a broad range
                plans, and policies that have been evolving              of public and private participants in the plan-
                over the past 25 years. Federal legislation in           ning process. A citywide Waterfront Advisory
                the early 1970s was the first step in arousing           Committee, established a year ago, brought
                the public's waterfront conscience. The Water            together a panel of 35 representatives of city,
                Pollution Control Act of 1972 required con-              state and federal agencies, public officials and
                struction of sewage treatment facilities; the            civic organizations with interests in natural
                city invested billions to upgrade its plants and         resources, parks and open space, maritime and
                build new ones; and soon the waters of the               industrial uses, and housing and economic
                harbor improved. In the same year, Congress              development. The committee worked with the
                passed the Coastal Zone Management Act                   Department throughout the year to identify
                which encouraged state and local participa-              and debate issues and opportunities affecting
                tion in programs to preserve, protect and                the future of the city's waterfront.
                enhance coastal resources.



                2









                    On the local level, consultation with borough             Each chapter sets forth the goals for that
                    and community boards throughout the plan's                waterfront use, describes its existing resources
                    development brought an understanding of                   and major issues, and proposes a plan of
                    community concerns and opportunities for                  action with short- and long-term strategies.
                    change along specific segments of the water-              Though presented separately, each plan is
                    front. A variety of task forces, such as the              interwoven with the others. Together they
                    Jamaica Bay Task Force and the Manhattan                  create a comprehensive plan for all of the
                    Borough President's Waterfront Task Force,                city's waterfront.
                    were especially helpful in shaping the strategies
                    for those portions of the shoreline.                      Chapter 7 presents an innovative proposal for
                                                                              waterfront zoning reform, the chief tool for
                    The Comprehensive Waterfront          Plan, the           advancing many of the plan's recommenda-
                    culmination of a two-year effort,     was made            tions. The proposed zoning text amendments
                    possible by generous grants from     the United           aim to enliven the city's edges with appropri-
                    Nations Development Corporation and the                   ately scaled development and a harmonious
                    New York State Department of State Coastal                mix of uses and public spaces.
                    Management Program.                                       The final chapter sums up the strategies for
                    The plan starts with the framework upon                   realizing the plan's recommendations for
                    which it rests - the historical, legal and                land use change, zoning text reform, public
                    regulatory contexts shaping the future use and            investment, and program and policy coordi-
                    development of waterfront land. The concept               nation. It sets out the next steps for public
                    of "public trust," which establishes that certain         review and discussion of the plan so that it
                    waterfront benefits are held in trust for all the         may be modified to reflect diverse public
                    people, and other legal regimes are described             views and concerns.
                    to illuminate current public protections, pri-
                    vate rights, and municipal powers.                        The Comprehensive Waterfront Plan pro-
                                                                              posed in this report is presented for public
                    Chapters 3 through 6 synthesize the citywide              discussion. By continuing the public and
                    plan for each of the waterfront's principal               private collaboration that has guided its
                    functions.                                                development, a consensus can emerge to put
                                                                              an end to years of indecision and wasted
                    ï¿½   The Natural Waterfront, comprising                    potential. It is an ambitious plan that will
                        beaches, wetlands, wildlife habitats, sensi-          take decades to realize, but its vision can
                        tive ecosystems and the water itself.                 become a catalyst for the changes needed to
                    ï¿½   The Public Waterfront, including parks,               reclaim the city's edge.
                        esplanades, piers, street ends, vistas and
                        waterways that offer public open spaces
                        and waterfront views.

                    ï¿½   The Working Waterfront, where water-
                        dependent, maritime and industrial uses
                        cluster or where various transportation
                        and municipal facilities are dispersed.

                    ï¿½   The Redeveloping Waterfront, where land
                        uses have changed recently or where va-
                        cant and underutilized properties suggest
                        potential for beneficial change.



                                                                                                                               3







































































                                                                                                                                                    00
























                                                                                        "ONMEN A
                                                                                                          W/WW"








                                                                                                                   . . . . . . . . . . . .







                              PLANNING FRAMEWORK


                    The Comprehensive Waterfront Plan builds                 quins, the Karnisi, the Rockaways and the
                    on the history of New York Harbor. At the                Siwanoys, lived for thousands of years sus-
                    same time, the plan addresses today's condi-             tained by the natural bounty of the region.
                    tions and works within a myriad of legal and
                    regulatory parameters affecting the use and              The Dutch who settled the area in the 1620s
                    development of the city's waterfront. This               began to alter the natural shoreline by filling
                    chapter summarizes the history of our ever-              in lowlands and constructing wharfs and docks
                    changing waterfront; briefly describes the               to ease transport between the new world and
                    major federal, state and local laws and regula-          the old. Wooden piers grew in size and num-
                    tions that affect its development; and outlines          ber as industries like shipbuilding and com-
                    the planning process for projects within the             mercial fishing became mainstays of the local
                    coastal zone, to illustrate the complexities of          economy. The harbor bottom and the courses
                    the approval process.                                    of streams and rivers were altered continually
                                                                             to accommodate more and larger ships. The
                    The historical concept of "public trust," which          natural shoreline began to disappear, mainly
                    establishes that certain waterfront benefits are         along the eastern and western shores of lower
                    held in trust for all the people, is fundamen-           Manhattan, and in Brooklyn and Queens along
                    tal to the plan's objectives for public access           the East River.
                    and recreational use of the water's edge. The
                    federal Coastal Zone Management Act of                   By the mid-1800s, the Port of New York had
                    1972, which led to the creation of state and             become the nation's largest. Its vast expanse
                    local Coastal Zone Management Programs,                  of shoreline provided tremendous growth
                    provides another important legal basis for the           potential for port and industrial facilities that
                    waterfront plan. Coastal zone management                 imported raw materials and exported manu-
                    establishes a variety of policy guidelines on            factured products. The harbor bustled with
                    natural resources, waterfront public access,             activity; ferries carried passengers and goods
                    maritime and water-dependent uses, and                   across the rivers and the bay. In the mid-19th
                    economic development in the coastal zone.                and early 20th centuries, the waterways served
                                                                             as the means of entry for waves of immi-
                                                                             grants to this country. The Port expanded
                    HISTORICAL CONTEXT                                       beyond Manhattan to Brooklyn, Staten Island
                    Throughout its history, New York Harbor has              and New Jersey; it included hundreds of miles
                    played an important role in the region's ecolo-          of developed facilities accommodating thou-
                    gy and its physical and economic development.            sands of vessels.
                    Thousands of years ago, glaciers created much            Over the last 50 years, however, this pattern
                    of the estuary as they scraped and scoured the           of waterfront and port use has changed
                    region. As the glaciers receded, they left behind        radically. The invention of the automobile
                    marshes, barrier beaches and islands along the           and the growth in trucking diminished the
                    shoreline. The ocean, rivers and sound con-              importance of waterways for transporting
                    verged to form an environment that became                goods. Construction of bridges and tunnels
                    home to a wide variety of flora and fauna,               linking New York City and New Jersey sharply
                    establishing the estuary as a place of unique            reduced the need for ferries. Air transportation
                    biological diversity. Native American tribes,            replaced ocean liners for intercontinental
                    including the Wieckquaesgecks, the Algon-                travel. Changes in maritime technology, specif-

                                                                                                                              5



















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                  View of East River, c.1859, looking west fi-om Brooklyn to Manhattan         Source: Brooklyn Historical Society


                  ically containerization, increased the speed             and soon the public was clamoring for more
                  and efficiency of cargo shipment. Fewer but              waterfront open space. Rowing clubs along the
                  larger sites were required for shipping, con-            Harlem River began to use the water for active
                  tributing to the change in land use patterns             recreation and, by the turn of the century,
                  along the waterfront. As water-dependent                 Coney Island and Rockaway had become
                  uses declined, large areas of the industrial             booming seaside resorts.
                  waterfront became dormant.
                                                                           The recreational waterfront again underwent
                  During the 19th century, New York City's                 dramatic change beginning in the 1930s as
                  waterfront became a place of "health and                 Robert Moses, then the parks commissioner,
                  pleasure" as well as a place for "the conve-             created or rebuilt scores of parks, beaches and
                  nience of commerce." The idea of the water-              parkways along the city's waterfront, which
                  front as recreational space did not come easily          significantly expanded public access in all five
                  given the shoreline's importance for commer-             boroughs. Sometimes, however, the new park-
                  cial ventures. The Battery in lower Manhattan            ways limited access to the water's edge.
                  emerged in the early 1800s as one of the first           In the late 1960s and early 1970s, the envi-
                  waterfront parks where residents could take in           ronmental quality of the waterfront became
                  the sights and fresh air of the harbor. Until the        part of the nation's agenda. The federal
                  mid-1800s, further attempts to reserve water-            Water Pollution Control Act of 1972 required
                  front acreage for public amenities met resis-            the construction of sewage treatment facili-
                  tance on the ground of lost commercial oppor-            ties, and the waters of the harbor began to
                  tunity. In the 1860s, however, Frederick Law             improve after decades of unconstrained pollu-
                  Olmsted began planning for Riverside Park                tion. City residents once again began to view
                  between West 72nd and West 129th Streets,



                  6









                   the water as a valuable resource for open                 the form of a trust held by the state for the
                   space and recreation. Improved water quality,             common public good. Members of the public
                   combined with large tracts of vacant land,                were permitted to occupy the wet sand and
                   fueled the desire to live, work and play near             water for fishing, navigation and water-related
                   the waterfront.                                           commerce, and the state was responsible for
                                                                             preserving water and shoreline resources for
                   Today, the city's waterfront - more than 500              the common enjoyment. The public right of
                   miles of oceanfront and land along diverse                access,to and use of the foreshore and wa-
                   bays, inlets, rivers and tributaries - is still           ters - the public trust doctrine as it has been
                   used chiefly for recreation and commerce.                 termed - is based on the conviction that this
                   Fully 42 percent of the waterfront is city,               type of property has unique characteristics
                   state or federal parkland which includes                  associated with a public purpose.
                   hundreds of acres of natural or undeveloped
                   land, active recreation areas and narrow strips           When the concept of public trust embodied
                   along highways and rail lines. Another 31                 in English common law moved to the Ameri-
                   percent, or more than half the city's non-                cas, trusteeship of the waters went to the
                   parkland waterfront, is zoned for industrial              colonies and then to the newly formed states.
                   use, a figure that has remained relatively                Over time, states have deeded parts of the
                   constant since the zoning amendments of                   shoreline to municipalities, so that New York
                   1961 were adopted. The steady decline since               City, for example, holds title to the greater
                   then in industrial and maritime uses has left             part of its waterfront.
                   portions of these areas vacant and underuti-              Concurrent with the state   ,s trust, the riparian
                   lized. The remaining waterfront is divided                owner (the owner of land adjoining the water)
                   between residential and commercial zoning                 had the right to use the wet sand and water
                   districts: 20 percent residential, primarily              for purposes of fishing, navigation and water-
                   lower-density districts; and about six percent            related commerce. The riparian owner did not
                   commercial, primarily C3 zoning which per-                hold title to the lands under water. The ripari-
                   mits water-related uses and lower-density                 an right of the upland owner consisted chiefly
                   residential development.                                  of the right of access to the lands under water
                                                                             to build a dock or pier from the upland, and
                   LEGAL CONTEXT                                             the right to make other improvements that
                   The law governing use of the New York City                would allow navigation, fishing or recreation.
                   waterfront is an amalgam of common law,                   The common law recognized that the public
                   regulatory and statutory regimes that were                trust and the riparian rights of private owners
                   formulated over the course of the city's histo-           often were in conflict. As riparian owners
                   ry. A review of these legal regimes and their             made more elaborate improvements to the
                   interactions clarifies current municipal pow-             shorefront for their private purposes, public
                   ers, private rights and public protections.               access to the wet sand and water diminished.
                   THE PUBLIC TRUST DOCTRINE AND                             When cases of conflict came to the courts, the
                                                                             courts weighed, case by case, whether the
                   PRrVATE RIPARIAN RIGHTS                                   primary purpose of furthering navigation,
                   Historically, the common law provided that,               commerce and fishing was better served by
                   absent other state action, the property rights of         riparian or public, uses. The balance shifted
                   private upland owners ended at the mean high              with the circumstances.
                   water line. The state had clear title (owned the
                   fee) to the "wet sand" between high and low               In most areas, exercise of private riparian
                   water, underwater land and the water itself.              rights traditionally has been limited in order to
                   Ownership of these lands and the water was in             preserve public access. For instance, the size of


                                                                                                                               7









                  piers was limited to allow public passage, and           Over the years, the courts have held that the
                  fences across the wet sand were prohibited. In           state and city were powerless to alienate the
                  urban port and manufacturing areas, however,             public trust, despite the express language or
                  riparian owners could construct improve-                 the implied intent of such grants. Thus, it can
                  ments that effectively foreclosed public use             be asserted today that residual public rights of
                  and passage.                                             access remain in all waterfront lands granted as
                  PRIVATE AcQUISITION OF WATER LoTs                        water lots, particularly in those areas where
                  English common law held that the sovereign               port improvements did not take place.
                  had no authority to sell or give away water-             REGULATORY BULKHEAD AND
                  front land bound by the public trust. Soon
                  after American Independence, however, gov-               PIERHEAD LiNEs
                  ernment recognized that urban port devel-                The city, state and federal governments
                  opment could be encouraged by granting areas             mapped bulkhead and pierhead lines along
                  of wet sand and underwater lands to private              lengthy stretches of the New York City shore-
                  owners who would agree to fill in the land and           line, so that the waterfront could be devel-
                  make navigational and commercial improve-                oped for commerce and navigation. The
                  ments such as bulkheads or piers. New York               bulkhead line marks the limit of permissible
                  state and city gave numerous such "water lot"
                  grants to private upland owners. The early               landfill; the pierhead line is the farthest point
                  grants stipulated that ownership would revert            to which a pier can be built without obstruct-
                  to the state if the private purchaser failed to          ing the sea lanes. The lines limit both the
                  make the required improvements. Later, grants            common law riparian rights of private upland
                  were given without express requirements that             owners and the development rights of water
                  improvements be undertaken, but it is usually            lot owners.
                  clear from other documents that such im-
                  provements were anticipated.











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                  Passenger ship moving up Hudson River to docks
                  Source. Municipal Archives, Department of Records and Information Services, City of New York



                  8









                    CITY-OWNED WATERFRONT LANDS                                 The issue of "alienability" of city-owned water-
                    Over its history, the city retained and some-               front land also is addressed by the City Char-
                    times reacquired waterfront lands in order to               ter. Section 383 provides that "the rights of the
                    accomplish specific public purposes including               city in and to its waterfront, ferries, wharf
                    development and maintenance of port facili-                 property ... land under water ... wharves,
                    ties, preservation of open lands and park lands,            docks . . . water [and] waterways" are inalien-
                    and development of residential, commercial,                 able. Such properties cannot be sold without
                                                                                enabling state legislation. The provision is
                    manufacturing and public facilities. The city               consistent with the common law public trust.
                    adopted several Charter provisions to clarify
                    the nature of its title and to provide for order-           THE 1961 ZONING RESOLUTION
                    ly administration of its waterfront lands.                  The Zoning Resolution, as a general regulation
                    The major provisions appear in Chapters 52                  governing all development in the city, applies
                    and 56, Sections 1150 and 1301, as amended                  to all waterfront lands. The 1961 Zoning
                    and renumbered in 1991. These provisions                    Resolution made reference to the pierhead line
                    describe two categories of land:                            as the boundary line of a "block," as defined in
                                                                                Section 12-10. Based on this definition, the
                    (1) waterfront property, which is all city-                 pierhead line has been viewed as the boundary
                        owned property fronting tidal waters,                   line of any zoning lot that encompasses under-
                        including underwater land and upland to                 water lands. The practical effect of this defini-
                        the line of the first street or first adverse           tion has been to allow permitted upland uses
                        (other than city) owner; and                            to be placed on piers, platforms, filled lands or
                                                                                floating structures. It also has extended "floor
                    (2) wharf property, which is any land that was              area" to land under water.
                        under the jurisdiction of the Department
                        of Docks (later Ports and Trade) in 1938                THE CONTEMPORARY WATERFRONT
                        or was later assigned to that department.               These various common law, regulatory and
                        Wharf property includes all improvements                statutory regimes suggest that the city's wa-
                        such as piers and bulkheads.                            terfront has four components:
                    The intent of this distinction appears to have              (1) areas that remain in close to their natural
                    been a recognition that "wharf property" was                    state where the public trust doctrine pro-
                    needed for active port use and improvement                      vides for public access to the wet sand and
                    and that "waterfront property" could be avail-                  water for fishing and recreation, and where
                    able for other public uses. The distinction                     private riparian rights are limited to the
                    became less clear when the Department of                        placing of a dock or pier for limited boat
                    Ports and Trade was later transformed into a                    launching, fishing and recreation;
                    development agency with wider jurisdiction
                    than port facilities.                                       (2) areas that remain in active industrial and
                                                                                    port-related uses where the exercise of any
                    The Charter of 1975 (Section 704(g)) described                  public right of access or use is outweighed
                    the power of the Department of Ports and                        by the rights of riparian owners;
                    Trade (then Ports and Terminals) to lease                   (3) areas such as vacant piers and uplands in
                    wharf property as "primarily for purposes of                    waterfront manufacturing zones where,
                    waterfront commerce." This language implied                     through grants or regulation, there was an
                    an authority to lease such property for other                   expectation of port or industrial use, but
                    purposes. In the 1991 revision, the power of the                such uses have never been established or
                    new Department of Business Services expressly                   have ceased to function; and
                    includes the power to lease "for purposes other
                    than waterfront commerce" (Charter of 1989                  (4) areas and properties under city or state
                    Sec. 1301(f) as amended 1991).                                  ownership.

                                                                                                                                   9









                 In categories (3) and (4), the public right of         REGULATORY CONTEXT
                 access should be reestablished in any subse-           The regulatory framework guiding the Com-
                 quent redevelopment for residential and non-           prehensive Waterfront Plan is based princi-
                 water-related commercial uses. In circum-              pally on federal, state and city coastal zone
                 stances where the "wet sand" will continue to          management goals and policies. In fact, the
                 be obliterated by bulkheads or other improve-          plan is a milestone in the continuing evolu-
                 ments, a walkway, esplanade or park-like area          tion of coastal zone management, a set of
                 may appropriately be required as a substitute.         regulations that already has profoundly influ-
                                                                        enced the use and development of New York
                 In the past two decades, the public trust              City's waterfront.
                 doctrine has evolved to include recreation,
                 aesthetic enjoyment and environmental                  COASTAL ZONE MANAGEMENT
                 protection in addition to the historic con-            The Federal Coastal Zone
                 siderations of fishing and navigation. Al-             Management Act
                 though the New York courts have not artic-             A decade or more of federal concern for the
                 ulated this definition of the public trust in          coastal zone and its resources preceded pas-
                 a detailed manner, the expanded definition             sage of the Coastal Zone Management Act of
                 of public access should be recognized as               1972. A series of scientific studies throughout
                 part of New York law.                                  the 1960s emphasized the need for protection
                                                                        and wise use of important national resources.
                 Zoning on the waterfront can be changed to             Concurring that a specific program was
                 better reflect the rights of private owners            needed to protect and manage the nation's
                 under common law and the regulatory re-                coastal lands and water, Congress passed the
                 gime. Current zoning practice, which recog-            Act by an overwhelming majority.
                 nizes uses and counts floor area out to the            The Act established the Federal Coastal Zone
                 pierhead line, is inconsistent with these laws         Management Program to encourage and assist
                 and, in effect, has conferred upon riparian            the states in preparing and implementing
                 owners a "bonus" of rights that they could             management programs to
                 not otherwise claim.
                                                                          ff preserve, protect, develop and, where
                 Between the bulkhead line and pierhead line,               possible, to restore or enhance the re-
                 the riparian owner possesses no right to make              sources of the nation's coastal zone. "
                 any use other than improvements for naviga-            In adopting the Act, Congress assigned ad-
                 tion, fishing or recreation (a pierhead or             ministrative responsibility to the Secretary of
                 similar structure). The Zoning Resolution              Commerce who in turn designated the Na-
                 need not permit any other active commercial,           tional Oceanic and Atmospheric Administra-
                 industrial or residential use beyond the bulk-         tion (NOAA) as the managing agency. The
                 head line, and it need not recognize any right         Act identified 30 coastal states and four
                 to floor area based on underwater lands                coastal territories as the governmental bodies
                 stretching to the pierhead line. The Zoning            that would carry out its programs, and of-
                 Resolution could be amended to include a               fered a number of incentives for achieving
                 provision that recognizes the bulkhead line as         program objectives. To encourage the partici-
                 the line of farthest permissible development           pation of coastal states, the Act stipulated
                 (except for navigational uses). As an alterna-         that federal actions and federally funded
                 tive, a new development boundary line could            actions within the coastal zone must be, to
                 be mapped.                                             the maximum extent feasible, consistent with
                                                                        approved state management programs.



                 10









                    A number of other federal statutes affect the              New York City Waterfront Revitalization
                    coastal zone. Among the most important for                 Program
                    New York City are the Water Pollution Con-                 The state's legislation authorized the approval
                    trol Act, the Clean Air Act and the National               of local programs to return at least partial
                    Environmental Policy Act.                                  control of the coastal area to the municipali-
                    The State Coastal Management Program                       ties - the level of government most familiar
                    Pursuant to the federal Coastal Zone Manage-               with and affected by local conditions. in 1982,
                    ment Act of 1972, New York State, in 1981,                 New York City received approval from the
                    adopted the Waterfront Revitalization and                  state for its local Waterfront Revitalization
                    Coastal Resources Act (WRCRA) which creat-                 Program (WRP) which was based on state and
                    ed the New York State Coastal Management                   federal coastal zone policies. New York City's
                    Program (CMP) under the direction of the                   WRP contains 12 policies relating to local
                    New York State Department of State (DOS).                  issues, in addition to guidelines for local
                                                                               application of the 44 state policies. (See Ap-
                    The goal of the WRCRA is to establish            a         pendix B for list of WRP policies.)
                    framework for coordinating state laws and                  The city's WRP established a Coastal Zone
                    rationalizing decisions of federal, state and              Boundary (Map 2.0) within which all discre-
                    local governments in the coastal area. That                tionary waterfront actions must be reviewed
                    framework, embodied in the Coastal Manage-                 for consistency with coastal zone policies. For
                    ment Program, is built on 44 policy statements             the past ten years, this program has served as
                    addressing problems and opportunities associ-              a framework for balancing the city's waterfront
                    ated with a wide range of coastal issues includ-           goals for economic development, natural
                    ing: aesthetics, agriculture, air quality, econom-         resource protection and public access.
                    ic activity, energy, fish and wildlife, flooding
                    and erosion, development, public access,                   The City Planning Commission, acting as the
                    recreation and water quality.                              City Coastal Commission, is the decision-
                    The 44 state coastal zone policies contained in            making body for the local Waterfront Revital-
                    the CMP, and the accompanying standards,                   ization Program, with the Department of City
                    express the intent of the state legislature that           Planning (DCP) serving as staff. Local discre-
                    there be a balance between economic devel-                 tionary actions, including those subject to the
                    opment and preservation that will permit the               city's land use, environmental and variance
                    beneficial use of coastal resources while pre-             procedures, and other plans within the coastal
                    venting the loss of living marine resources and            zone are reviewed for consistency with the 56
                    wildlife, diminution of open space areas or                WRP policies. Review of local actions is built
                    public access to the waterfront, shoreline                 into the existing regulatory process and in
                    erosion, impairment of scenic beauty or per-               most instances occurs concurrently. DCP and
                    manent adverse changes to ecological systems.              the City Coastal Commission also conduct
                                                                               consistency reviews for federal and state ac-
                    Many of the state policies are supported and               tions, such as the issuance of a U.S. Army
                    implemented by programs administered by the                Corps of Engineers dredging permit or a state
                    New York State Department of Environmental                 DEC tidal wetlands permit. If a federal action
                    Conservation (DEC). For example, DEC regu-                 is found inconsistent by the City Coastal
                    latory programs seek to protect tidal and                  Commission and the finding is upheld by the
                    freshwater wetlands, and air and water re-                 Department of State, the permit may not be
                    sources. Other agencies, such as the New York              issued. State agency actions are required to be
                    State Office of Parks, Recreation and Historic             consistent to the maximum extent practicable
                    Preservation, administer programs that provide             with the policies of approved local WRPs.
                    coastal facilities for recreation, economic
                    development or environmental protection.






                         MAP 2.0




                                                                                                                                                     ..........                                                             ....


                                                                                                                                                     NX


                                                                                                                                                                        The
                                                                                                                                                 ......                                                                     .........

                                                                                                                                                                                                                            ...........
                                                                                                                                                                                                                       ......               ..........
                                                                                                                                                                                                                      . .....               .......
                                                                                                                                                                                                                                .............
                                                                                                                                                                                                                               ...........



                                                                                                                                                                                                                                            ::X.



                                                                        Afew
                                                                      Jersey




                                                                                                                                                                                                 . . . . . . . . . . . . .:,V:


                                                                                                                                                                                                           Uueens
                                                                                                                                                            X      -i-K






                                                                                                                   ........ .. ...... ..... ..



                                                                                                                                                                                                                @* .........

                                                                                                                                           Brooklyn                                                                 ..... .............

                                                                                        ten
                                                                ......             Island



                                                             05                                                                                                                  .......... .             ......
                                                                                                                                                                                 ..........
                                                                                                                                                                                 ........ ..........................
                                                                                                                                                                                 ..........
                                                  E@:                                                                                                                            .........
                                                                                                                                                                                 ..........          ...... ...                                .........
                                                                                                                                                 ...........                                                                                   .............
                                                                                                                                                                                 .........
                                                                                                                                                                                 ..........





                                                                         f



                                                  V4 R,





                                              . .........


                                                                                                        . ....                                                                                                                                                .....
                                                                                                                                                                                                        ......                                                ..... .
                                                   .....   ........ .
                                                                                                                                                                                                                                                              X:
                                                                                                                                                                                                                                            .............. .... .....
                                                                                                                                                                      ..- . ................. ... . ...... ..
                                                                ....                           ......

                 Coastal Zone



                                              coastal zone boundary



                  NOTE:                      Upland boundaries extend to the upland limit of zoning districts, natural
                                                                                                                                                                                                                                            ....................
                                                                                                                                                                                                                                                              ..............
                                                                                                                                                                                                                                            ..........        *............
                                                                                                                                                                                                                                            ...............   *.........
                                                                                                                                                                                                                                            ..........        *** .........
                                                                                                                                                                                                                                            ........................
                                                                                                                                                                                                                                            ................  ** .......
                                                                                                                                                                                                                                            ...*.........     *...........
                                                                                                                                                                                                                                            '* ................-....
                                                                                                                                                                                                                                            ................. ** ......
                                                                                                                                                                                                                                            '- ............   *** .......
                                                                                                                                                                                                                                            ................  -** .......
                                                                                                                                                                                                                                                              ...........

                                                                                                                                                                                                                                            ..............................

                                                                                                                                                                                                                                               ........       .....

                                                                                                                                                                                                                                            .......           . . ... ..

                                                                                                                                                                                                                                            .................................
                                                                                                                                                                                                                                            ..............    .........
                                                                                                                                                                                                                                            ..... ................... ...
































































                                             area districts, parks, and natural drainage basins. Federal property is excluded.




                   Comprehensive Waterfront Plan / NYC Department of City Planning / Planning Framework











                 FIGURE 2.0
                 Waterfront Revitalization Program Consistency Review




                        Federal                        NYS                       Federal
                        Agency                 Department of State              Permit or
                        Actions                                                  Action

                                                               A
                                                      Referral


                                                    Local WRP








                                                      NYS
                                               Department of State
                                                  A.
                                                     Referral
                                                              y
                         State                                                    State
                        Agency             )p      Local WRP              )0    Permit or
                        Actions                                                   Action







                         Local                    Local WRP                       City
                        Actions                                                  Council













                 Comprehensive Waterfront Plan  NYC Department of City Planning Planning Framework









                  The Coastal Zone Management (CZM) Pro-                   Because waterfront projects vary widely in the
                  gram has played a significant role in regulat-           scope and type of actions involved, one
                  ing waterfront development. It is, however, a            project may require reviews from any number
                  difficult program to administer because equal            of federal, state or local agencies, whereas
                  weight must be given to sometimes compet-                another may not. For example, an Army
                  ing policies without regard to the city's objec-         Corps of Engineers permit would be required
                  tives for differing sections of waterfront. The          for a waterfront project that involves the
                  Comprehensive Waterfront Plan provides an                construction of a pier, but not for a project
                  opportunity to enhance the WRP with a set                with no in-water work. In all instances where
                  of guidelines and criteria for waterfront                a project within the Coastal Zone requires a
                  development that are based upon detailed                 discretionary review, however, a Waterfront
                  study of New York City's waterfront. The                 Revitalization Program consistency review is
                                                                           required. A project within the Coastal Zone
                  recent report issued by the Governor's Task              requiring a zoning change would be subject
                  Force on Coastal Resources found that, after             to the city's Uniform Land Use Review Proce-
                  nearly a decade of experience with the admin-            dure and, consequently, a WRP consistency
                  istration of the CZM program, comprehensive              review.
                  planning and active advancement of coastal
                  policies envisioned in the WRCRA have not                The complexity of the regulatory process has
                  fully materialized.                                      long been criticized as an impediment to
                                                                           waterfront revitalization. Many of the re-
                  The Task Force report recommends revision                quired approvals stem from federal and state
                  of the Coastal Management Program to                     legislation and are beyond the city's ability to
                  provide a clear vision for the waterfront in             control or change. Nevertheless, the Compre-
                  each of the state's coastal regions. New York            hensive Waterfront Plan proposes a number
                  City is identified as one of six proposed                of reforms aimed at creating a more predict-
                  coastal regions. A revised and enhanced WRP              able and integrated planning process.
                  is needed, using this plan as a foundation, to
                  articulate the region's characteristics and              Much of the inefficiency in the review process
                  priorities and give specificity to the applica-          arises from the absence of clear priorities and
                  tion of WRP policies.                                    guidelines for waterfront planning and devel-
                                                                           opment. This lack of clear direction leads to
                                                                           delayed and redundant project review, adding
                  THE WATERFRONT DEVELOPMENT                               substantially to the cost of development on
                  PROCESS                                                  the waterfront. The long-term vision for the
                  Coastal Zone Management is only one of                   city's waterfront proposed in this comprehen-
                  many regulatory programs affecting water-                sive plan will establish the priorities and
                  front planning and development in New York               principles that can streamline the planning
                  City. At the federal and state levels alone, an          and development process.
                  estimated 50 separate laws guide development             Waterfront zoning text reform to allow ap-
                  in the coastal zone, for example, the federal            propriate as-of-right development is one
                  Flood Disaster Protection Act and Endan-                 important way to simplify the regulatory
                  gered Species Act or the state's Environmental           process. This reform would reduce the fre-
                  Conservation Law and Navigation Law. In                  quency of local discretionary actions, includ-
                  addition, complex environmental and land                 ing land use and environmental reviews and
                  use review procedures govern discretionary               variance applications. Zoning text changes
                  actions in the city.                                     aimed at minimizing project -specific discre-
                                                                           tionary review are discussed in detail in
                                                                           Chapter Seven.


                  14











                  Revision of the Waterfront Revitalization
                  Program, as recommended by the Governor's
                  Task Force, is another means of setting clear
                  guidelines for the waterfront. Revision of the
                  local WRP would allow for a more predict-
                  able application and review process by pre-
                  senting policies to federal, state and local
                  regulatory agencies and to the development
                  community in a way that clearly defines the
                  city's priorities for differing sections of the
                  waterfront.

                  Reform must include streamlining a process
                  in which applicants must fill out numerous
                  forms and submit applications to several
                  different agencies, with no agency responsible
                  for coordination and interagency communica-
                  tion. It must also address the issue of en-
                  forcement. Lack of follow-up and enforce-
                  ment of WRP requirements has resulted in
                  situations where, for example, public access
                  commitments are not fully satisfied.

                  The Comprehensive Waterfront Plan may be
                  able to act as a catalyst for coordination.




























                                                                                                                       15























































                                                                                                                                                                                                                                                                                                                                                                  11 ...                               11









                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                       i                                                                                  I'
                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                          I..                             ...
                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                          ...
                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                   ...
                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                            T





























                                                                                                                                                                                                                                                                                                                                                                                                           ....





                                                                                                                                                                                                                                                                                                                                                                                                                la@







                               THE NATURAL WATERFRONT


                   New York City is a dense urban forest of                    E  control the land and water uses that could
                   steel, concrete, stone and glass. It is also a                 conflict with or impair natural waterfront
                   deep water world port, white sand beaches,                     values;
                   extensive tidal systems and the home of                     0  define areas of special environmental
                   nearly eight million people who are depen-
                   dent upon this complex natural, social and                     significance; and
                   economic infrastructure.                                    M  bring together local, regional, state and
                   Protecting and enhancing the city's natural                    federal programs to form an effective
                   waterfront is a paramount goal of the Com-                     strategy for protecting and enhancing
                   prehensive Waterfront Plan. As a result of                     natural areas and resources.
                   federal and state legislative programs, wetlands
                   and water bodies are no longer indiscriminate-              WATERFRONT RESOURCES AND
                   ly filled, and dumping raw sewage into our                  THEIR SIGNIFICANCE
                   waterways has been largely curtailed. Govern-
                   ment actions spurred by the environmental                   Living organisms need an abundant supply of
                   movement have led to greatly improved water                 clean air, food, sunshine and water to survive
                   quality and a cleaner harbor. Indeed, new                   in health. As responsible land stewards, we
                   opportunities for waterfront recreation, hous-              need to safeguard for future generations the
                   ing, and mixed commercial uses have been
                   made possible as a result of these often dra-               life support systems of surface and ground
                   matic improvements.                                         water, plant communities and animal habitats.
                   This is not to say that existing legislation and            Natural waterfront resources are clearly pre-
                   programs are completely adequate or that New                cious in our dense urban environment. For
                   York City has fully integrated its environmen-              centuries New York City filled in many of its
                   tal values with those of commerce and private               wetlands and waterways, and released the by-
                   land use. The need to balance environmental                 products of business and communities directly
                   values with other legitimate social and eco-                into surrounding waters. Until relatively re-
                   nomic needs still requires attention.                       cently, the environmental legacy of this great
                   How much of the remaining natural waterfront                city was compromised without restraint.
                   is necessary to sustain city, regional and nation-          The reemergence of significant fish and shore
                   al interests? What are the intrinsic values of the          bird populations is evidence of water quality
                   natural waterfront in terms of food chain, flood            improvements. Wetlands and shallow waters
                   protection, water quality and quality of life?              within Jamaica Bay, the Arthur Kill and
                   How are the economic, social and health values              Pelham Bay Park offer superb feeding and
                   of the natural waterfront factored into land use            breeding habitat for vast numbers of resident
                   decisions? Are there natural areas which merit              and migratory shorebirds. The waters of the
                   special protection?                                         Hudson River support many fish species,
                   To address these questions, the plan for the                including striped bass. Natural areas inter-
                   Natural Waterfront seeks to:                                spersed with other uses along the shore pro-
                                                                               vide important flood protection, opportunities
                        articulate the values of natural waterfront            for commercial fishing and recreation, and
                        resources and increase public awareness of             scenes of great natural beauty.
                        their importance;


                                                                                                                                17























                                         MW
                                        ..........





















                                          W







                   A,
                    k
                        kv
                Wetlands in Jamaica Bay



                WETLANDS

                Wetlands are areas frequently inundated or               It was not until the 1960s that the value of
                saturated by surface water or groundwater.               wetlands began to be recognized.
                Saltwater tidal wetlands and inland freshwater
                wetlands are among the most productive                   Heightened public attention translated into
                environments in the world, from two to eight             federal legislation in 1970 with the passage of
                times more productive than the most inten-               the National Environmental Policy Act and the
                sively farmed land. They support an amazing              Clean Water Act soon after. The State of New
                variety of plant and wildlife species; they              York followed with its own Environmental
                absorb and dissipate wind-driven storm waves             Conservation Law, Articles 24 and 25, which
                and act as flood water storage areas; and they           regulate land use in both tidal and freshwater
                trap sediment to naturally cleanse urban runoff          wetlands and their adjacent buffer zones. The
                of phosphorus, nitrogen and other water                  1977 amendments to the Clean Water Act
                pollutants. (Map 3.0.)                                   (Section 404) authorize federal regulation of
                                                                         the placement of dredge and fill materials.
                Wetlands were once viewed as wastelands and              Section 404 is administered jointly by the U.S.
                sources of disease that were to be filled in and         Army Corps of Engineers and the U.S. Envi-
                destroyed. Of the estimated 224,000 acres of             ronmental Protection Agency (EPA).
                freshwater wetlands in the area of New York
                City before the American Revolution, less than           Both state and federal regulations require
                3,000 acres exist today. Of the original 16,000          permits to develop within wetlands.
                acres of tidal wetlands in Jamaica Bay, only
                4,000 acres remain.




                18











                                                                                                                                                                                                                                                                                               ........ ..
                                                                                                                                                                                                                                                                                               ...........
                                          MAP 3.0                                                                                                                                              .......

                                                                                                                                                                                                                                                                                               ...........

                                                                                                                                                                                                                                               . . . .......


                                                                                                                                                                                                                                                                                               .............


                                                                                                                                                                                                                     Vie
                                                                                                                                                                                                                   Brbnx


                                                                                                                                                                            X..


                                                                                                                                                                                                                                                               . .........


                                                                                                                                                                                                                                                                ...........
                                                                                                                                                                   X.-
                                                                                                                                                                                                                  ..........


                                                                                                                                                                                          X
                                                                                                                                                                                                   X..
                                                                                                                                                                                                                             r
                                                                                            Now
                                                                                                                                                                                                                                                                       ::::,.y .41
                                                                          x.              Jersey
                                                                                                                ...                                   .......





                                                                                                          X

                                                                                                       X.:
                                                                                                                                                                                                                                      Queens
                                                                                                                                                                   ...........
                                                                                                ......                                                             ...........




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                                                                                              Staten
                                                                                                                                                                                                                                                                                               .........
                                                                                              Island
                                                                                                                                                                                                                                                           .. . ... .......
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                                                                                                                       ..........                                                                                                                ............                ......
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                                                        ..................



                                                                                                                                                                                             .....                                                                ............

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                                                                                                                                                                                                                                                                     ...........
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                                                                                                                                                                        .... ...........
                                                                                                                                                                            .....  ....                                                               . . . . . . . . .
                                                        4b
                                                                                                                                                                                        ...........
                                                                                                                                                                                   ................
                                                                                                                                                                                   .....................
                                                                  . . ............                                                      . ....                     ...  ......                                                                                       ..........
                                          ...............                                                                                                          ........
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                                                    ........... ....
                                                                                                                                                                                                                                                                            . . . ........
                                                                                                                                                                   .......         .....                                                                                            xxxxxx"..""'.
                                                                                                                                                                               X.:
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                                                                                                                                      ... . . ..... .. .                                           ..                                                                 ...............   _6  .....   .......


                                   Wetlands



                                                                     major tidal wetlands


                                                                     major freshwater wetlands within the Coastal Zone



                                    Source: NYS Department of Environmental Conservation


                                      Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                                                           Natural Waterfront









                   Tidal Wetlands                                                  quiring many of Staten Island's freshwater
                   The State Department of Environmental Con-                      wetlands and stream corridors to              control
                   servation (DEC) regulates virtually all actions                 flooding and pollution     and to protect impor-
                   in mapped tidal wetlands and within a 150-feet                  tant habitats.
                   buffer area adjacent to them. Exceptions to the
                   buffer requirement occur when the elevation of                                                                  .................
                                                                                                                                   ..........
                   the adjacent area exceeds ten feet above mean
                   high water or when a man-made structure
                   such as a bulkhead exists. DEC uses its own
                   tidal wetland maps to determine whether a
                   permit is required for any proposed activity
                   within tidal wetland areas. A proposed action
                   may also require an application to the U.S.
                   Army Corps of Engineers, which determines
                   the type and level of permit review needed.
                   Most of New York City's tidal wetlands, which
                   constitute almost 20 percent of the state's
                   25,000 acres, are located in Jamaica Bay. Other
                   large concentrations of tidal wetlands are
                   found along the Arthur Kill, at Fresh Kills, at
                   Pelham Bay Park and along the intertidal
                   shorelines of Long Island Sound. Small areas                    Restri.cted area signage
                   of tidal wetlands and inter-tidal mud flats are
                   also found along the shorelines of all five                     Wetland Issues
                   boroughs. In addition to tidal wetlands, lands                  Although wetlands are regulated by several
                   under water support a great variety of plants                   agencies, overlapping and often confusing
                   and organisms that are integral to the food                     regulatory regimes may not adequately protect
                   chain for fish, shellfish and other wildlife.                   them. For example, the Corps of Engineers
                   These areas are under state jurisdiction and are                does not regulate adjacent areas, and DEC
                   being inventoried by DER                                        does not regulate upland areas adjacent to
                   Freshwater Wetlands                                             wetlands if they are the result of fill and are
                   DEC regulates activities occurring within                       more than 10 feet above sea level. Construc-
                   designated freshwater wetlands and within a                     tion in these unregulated areas can generate
                   100-foot buffer area. Staten Island is the only                 runoff and other disturbances that may harm
                   area within the city's coastal zone that contains               adjacent wetlands. Even when regulated, some
                   DEC-designated freshwater wetlands; however,                    buffer areas may not be deep enough to pro-
                   DEC recently released a draft map of fresh-                     tect the wetland ecosystem which may contain
                   water wetlands in Queens, some of which are                     important grassland and woodland habitats.
                   in the coastal zone. DECs jurisdiction covers
                   wetland areas over 12.4 acres and smaller                       Although many of the city's wetlands, both
                   wetlands of "unusual local importance."                         tidal and freshwater, are within parks and
                                                                                   therefore can be managed and protected prop-
                   Staten Island's 2,000 acres of freshwater wet-                  erly, others may warrant special attention to
                   lands have been designated by DEC because                       avoid cumulative impacts from surrounding
                   their hydrologic connections provide impor-                     land uses. The effects of development on the
                   tant storm water management benefits, en-                       integrity of the larger watershed must be
                   hance water quality, and serve as important                     considered, and stepped-up state and federal
                   wildlife and bird habitat corridors. The city's                 surveillance and monitoring may be necessary
                   Departments of Parks and Recreation (DPR)                       to enforce regulations.
                   and Environmental Protection (DEP) are ac-


                   20









                    Because the exact boundaries of wetlands are                 flourish. These areas usually provide a combi-
                    not always clearly defined by the agencies that              nation of environmental and biological condi-
                    regulate them, landowners may not know how                   tions well-suited to the needs of threatened or
                    much of their property can be developed and,                 rare species. Fisheries and aquatic habitats
                    consequently, wetland values may be impaired                 include shellfish beds, surf clam areas, prime
                    by inadvertent filling. The current wetland                  fishing areas and finfish migratory pathways.
                    maps, dating back to 1974, are at a scale that               Significant wildlife habitats occur within spe-
                    makes accurate delineation difficult. DEC is                 cific areas known to serve an essential role in
                    revising the maps (by transferring them to the               maintaining wildlife, particularly in wintering,
                    State Plane mapping system) to allow for                     breeding and migrating.
                    easier and more accurate interpretation.                     In response to the Department of State's com-
                    For wetlands outside city, state and federal                 mitment to designate significant coastal fish
                    parklands, the lack of clear jurisdictional re-              and wildlife habitats throughout New York,
                    sponsibility often makes them a no-man's-land                DEC has identified, evaluated and recom-
                    subject to illegal fill, unsightly dumping and               mended areas it considers significant coastal
                    vandalism. Some of these wetlands eventually                 fish and wildlife habitats. DEC defines a habi-
                    will be annexed to adjacent parks; other isolat-             tat as significant if it exhibits one or more of
                    ed wetlands face a continuing need for main-                 the following characteristics:
                    tenance and management.                                      0   It is essential to the survival of a large
                    SIGNIFICANT CoAsTAL FISH AND                                     portion of a particular fish and wildlife
                    WILDLIFE HABITATS                                                population.
                    Significant coastal fish and wildlife habitats are           E   It supports populations of species that
                    areas needed by certain species, either season-                  are endangered, threatened or of special
                    ally or permanently, if they are to survive and                  concern.




















                                                                  R,
                                                              R



                    Black-crowned Night Heron, Four Sparrows Marsh, Brooklyn                              Source. Mike Feller DPR-NRG

                                                                                                                                   21









                  ï¿½   It supports fish and wildlife populations             The city has raised concerns about the need to
                      that have significant commercial, recre-              balance protection of significant coastal re-
                      ational or educational value.                         sources with economic and social goals. Desig-
                  ï¿½   It is of a type not commonly found in                 nated habitats in parks and lower-density
                      the state or the New York City region.                residential areas generally do not present a
                                                                            problem. Where proposed habitats coincide
                  Based on DECs evaluation, the New York                    with important economic generators like JFK
                  Department of State's Division of Coastal                 Airport and the West Side Passenger Ship
                  Resources and Waterfront Revitalization has               Terminal, however, a balanced approach is
                  proposed 15 New York City coastal fish and                essential. A case in point is the proposed
                  wildlife habitat areas for designation under the          Hudson River designation - a significant
                  city's Waterfront Revitalization Program. The             aquatic resource adjacent to a highly urban
                  proposed designations are: Lemon Creek, Fresh             waterfront with active port facilities, existing
                  Kills, Prall's island, Sawmill Creek Marshes,             and planned mixed use development, and
                  Goethals Bridge Pond, Shooter's Island, Lower
                  Hudson River, North and South Brother                     opportunities for greatly expanded waterborne
                  Islands, Pelham Bay Park Wetlands, Little                 transportation and waterside public access and
                  Neck Bay, Alley Pond Park Wetlands, Udalls                recreation. In response to the city's concerns,
                  Cove, Meadow and Willow lakes, Jamaica Bay                the state's draft impact assessment guidelines
                  and Breezy Point. Breezy Point, North and                 for the Hudson River support habitat protec-
                  South Brother Islands, Prall's Island and                 tion goals and, at the same time, acknowledge
                  Shooter's Island provide upland nesting and               the special navigational requirements of the
                  roosting shorebird habitat; the other designat-           passenger ship terminal. The draft guidelines
                  ed areas are open water and wetlands. All are             are also consistent with the planning goals of
                  within the WRP Coastal Zone. (Map 3. 1.)                  the West Side Waterfront Panel.
                  Designation of these areas would provide
                  locational specificity to WRP Policy 7, which             In other proposed habitats, such as Lemon
                  states that "significant coastal fish and wildlife        Creek, the guidelines must be flexible enough
                  habitats will be protected, preserved, and,               to allow for recreational activity as well as
                  where practical, restored so as to maintain               habitat enhancement. To the extent that the
                  their viability as habitats." Proposed actions            guidelines for the Significant Coastal Fish and
                  within the city's coastal zone boundary would             Wildlife Habitat designations are sensitive to
                  then be reviewed for their potential to harm a            these distinctions, they will become a model
                  designated habitat.                                       for revising and refining WRP policies.
                  Coastal Fish and Wildlife Habitat Issues                  BEAcHEs AND COASTAL EROSION AREAS
                  The Department of State expects to adopt the              Natural features such as beaches, bluffs, dunes
                  Significant Coastal Fish and Wildlife Habitat             and near-shore shallow waters absorb wave
                  designation program later this year. Questions            energy and protect coastlines from wind and
                  remain, however, as to the completeness of the
                  designations and the scope and interpretation of          water erosion and storm-induced high water.
                  environmental impact assessment guidelines                Beaches and bluffs are a source of sand for
                  which have been proposed for each area. The               other beaches and for offshore sandbar and
                  designation program employs a Habitat Impair-             shoal building. Dunes and their associated
                  ment Test which establishes thresholds to deter-          vegetation provide additional protection from
                  mine a proposed activity's potential to signifi-          storm-driven waves and high water, and they
                  cantly impair or destroy a habitat. The program           provide nesting sites for waterbirds such as
                  provides Impact Assessment Guidelines for each            terns and plovers.
                  designated area, with generic examples of activi-
                  ties that could impair the habitat.


                  22













                                                                                                                                        -X
                             MAP 3.1


                                                                                                                                                                                                             ...... ....
                                                                                                                                                   Pelham Be
                                                                                                                                ... ..                                                                       . .......
                                                                                                                                                                      y
                                                                                                                                                                      Park
                                                                                                                                                                      etiands


                                                                                                                                                                             .... ....                       ...

                                                                                                                                                                             ..........


                                                                                                                                                                             .................................

                                                                                                                        ...                                                                                  ........
                                                                                                          Lower
                                                                                                        Hudson
                                                                                                                        X
                                                            X.
                                                            A,                                                                     N. & S.
                                                                                                                              Broth.          .. .................... .
                                                                                                                                      er, I
                                                                                                                                              .. ....                                                        Little Neck
                                                                                                                        :X

                                                                                                                                                                      ......                                 ay
                                                                                                                                                                      :                                      B
                                                                                                                                      . ...   . . . ....
                                                                                                                                                 .. . ..                                                     .....
                                                                                                                                                                                                             dall's
                                                               New
                                                                                                                                 ;X-
                                                                                                                                                                                                             Cove
                                                                                                                                                                      :X.
                                                              Jersey
                                                                                                                                                                             Alley Pond
                                                                                                                                                                                                             Park
                                                                                                                        X.:
                                                                                                                                                                      Meadow &
                                                                   X     X.-                                                                                          Willow Lakes



                                                                                                              ..... .... ..







                                                                                              .... . ....

                                                                             .... .........
                                                                   9         ........  .........

                                                            ......                            ........
                                                ...         .......                           ............
                                                                                              ..........                                                              ............
                                                                                              ..........                                           .. .. ........
                                                                                              ..........
                                                            Goethals
                                                            Bridge Pond
                                                                                                                                                                             ..X
                                  Prall's                   Saw Mill
                                  Island                    Crook Marshes
                                                                                                   X                              . ..... ..
                                                                                                     .......                      .. .... .
                                                                                                                                                                                                             .. ........
                                                                                                                                                                                                             ............
                                                                                              .............. .....                                                                                           . .. ...........
                                                                                                   ............                                                                                              .. ............... .........
                                                                                                                                                                      .. . . ........
                                                            Fresh                             ............                                                                                                   . . .... ..................
                                            ...                                               .......                                              ...........                                               . .... .. ....... ........
                                            ...                                               ......................                                                                                         ........
                                                                                                                                                                      . . . .........                        ......
                                                                                                                                                                             ......... ...
                                                                                                                                                                                                             .. ... .............................
                                                                                                                                                                                                             . .. .........................
                                                                                      ...........                                                                                                            ..........
                                                                                                                                                                                                             XXXXX..
                                                                                                                                                                      . .............                        .... ......
                                                            Kills
                                                                                                                                                                                                             ......................
                                                                                                                                                                      ..... ......... ... .......... ...
                                                                                       ......                           ....                                          X......
                                                                                   ... ..........                                                                     ........ . ......... . ..
                                                                                    ...............                                                                   .............
                                                                                                                                                                      .........
                                     . ....                                         ..........                                                                        .....                                  ..........................
                                                                                                                        ....                       . ......           .. .......
                                                                                                                                                                      ..............                         ...........................
                                    ... .......                                    .............                                                                      .................                      X.,
                                                                                                                                                                             ..........                      ........... . ...................
                                                                                                                                                                             ........                        ... ... ...
                                                                                                                                                 ... ................. .........                             ......
                                                                                                                                                                                                             ... ........
                                                                                . ..............                                                                      ..................
                                                                                    .............                                                                     . ............
                                                                                                                                                                      ...... .................
                                                                                              -X
                                                                                                                                                   .....              ............... ...... .........
                                                                                    ............
                                                                                                                                                                                                             ..............................
                                                                                                                                                                                                             ...........
                                                                                                                        ............
                                                                                                                                                                                                             . .. ...... ...
                                                                                                                                                                      Xx                                     . .. .....
                                                                                                                                                                      X.,                                    .... . ...................... ..........
                                                                                                                                                   . ... ......                                              ............
                                                                                                                                                   .......            ... ........... .
                                                                                                                                                                                                             ............... X.X.........
                                                                                                                                                                                                             .......... .........
                                                                                                                        .............
                                                                                                                                                 ... .............
                                                                                                                        X...............
                                                                                                                                                                                                             ------ .........
                                                                                                                                                                                                             ............
                                                                                                                                                                                                             ..................
                               ......                                                                                           ........
                                                                                                                            0         ..............
                                                                                                                                                                      .. ...... ... ........                 .......................... ... .......
                                                                                                                                                                             . ..................................
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                                                                                                                                                                                                             .......................
                                                                                                                                                                                                             ..........................
                                                                                                                                                                      . .... .                               xx.:
                                                                                                                                                                             .............
                                                                                                                                                                             ............
                                                               ........                       ...........                                                             ........... ...
                                                                                                                                                                                                             ..............
                                                  L
                                                                                                                                                                                                             ............................. .
                                                                                                                                                                                                             . . . . ......
                                                                                                                                                                                                             .. . . . . ....... ................... ... ...
                                                                                                                                                                                                             ........ .....
                                                            ............
                                                                                              . . ......... ..                                                                                               .......
                                                            ............
                                                            ...........
                                                            ...........                       ... ..... ....                                                          ............
                                                  : :":     .........                                                   ...                                           ...... .. ...                          ....
                            ....                 ..             ......                                                                                                                                       .... ........
                            ....             ......                                                                                                                                                          XXXI--111,11,1111",
                                                                                                             ... .........
                                               . .. ..... . .                                            . ................                                           .. . .........                         ................. I........,................,.........
                                                                                                                                                                                                             ................
                                                             . . . . . . . . . .                                                                                                                             ......
                                                                                                                                                                                                             ...............
                            j:j::     ...... .....                                                         ix                                                                                                .....................
                                      .............                                           ............                                                                                                   ......
                           ,   :,-   - -, ..,               .                                                                                                                                                ...... ....................
                                                                                                   -X                                                                                                        .... .......
                                                            . ......... ..                                        ..........
                                                              . ..........
                                                                                                                                                                                                             :-X...
                                                                                                                                       .......... . .............
                                                 . ....... ..                        ..............                                    .........
                                                                                                                                                                                                             ...........
                                         ...........                                                                    ....
                                          . ...... ....... .
                                                                            -------                         xx:
                        X.,              . ........
                         `x
                                                                                                                                         ...........
                          X
                         :::,:::                                                                                           ............... .. ....
                                           ........ ... ...                          ......... ... .. ... X.               ...........................                                                       . ...............
                                         . ........                         ...........                                                                                                                      ....... ...........
                                                                                                                                                   .......................... . ..................
                        Significant Coastal Fish and Wildlife Habitat Designations




                                             rea propose
                                           A                    d for designation







                           Source: NYS Department of State (199 1)

                           Comprehensive Waterfront Plan                                           NYC Department of City Planning                                           Natural Waterfront









                 Protection of these shoreline features is regu-        changing environment of shifting sands and a
                 lated by Article 34 of the State Environmental         relatively static environment of buildings and
                 Conservation Law, the Coastal Erosion Hazard           infrastructure. Beaches, boardwalks and shore-
                 Areas Act. Pursuant to the act, DEC has                front communities are valuable assets that
                 mapped coastal erosion areas in New York City          must be protected and maintained. If placed
                 where coastal storm damage is likely to happen.        inappropriately and without effective shore
                 New York City is fortunate to have a signifi-          protection, these assets can be destroyed or
                 cant stretch of Atlantic Ocean beachfront along        become prohibitively expensive to maintain.
                 the Rockaway Peninsula and Coney Island.               In its August 1989 Flooding and Erosion
                 The south shore of Staten Island also faces            Report for the Arverne Urban Renewal Area
                 seaward across the wide mouth of the Raritan           the Department of City Planning reviewed
                 Bay. All three areas are characterized by erod-        techniques for shore and flood protection
                 ing sand beaches buffeted by coastal storms            along Rockaway's Atlantic shoreline. The
                 and wind-blown waves; all three are state-             report found that without aggressive shore
                 designated coastal erosion hazard areas. Other         management, the shoreline would retreat
                 shorelines in the city, though not designated          considerably over the next 30 years. The
                 hazard areas, sustain intermittent erosion             Arverne report recommended a variety of
                 damage. (Map 3.2.)                                     nonstructural erosion control measures in-
                 Coastal Erosion Issues                                 cluding beach nourishment, dune field cre-
                 Effective management of the city's Atlantic            ation, and siting all development upland of
                 Ocean shoreline requires a balance between a           the DEC Coastal Erosion Hazard Line.










                                                       00 "Ite,










                                                                             YF



                 Coastal erosion at Plumb Beach, Brooklyn

                 24






                                           MAP 3.2                                                                                                                                                      .......


                                                                                                                                                                                                   ........                                                                                                              ...


                                                                                                                                                                                                ...........
                                                                                                                                                                                                                                                          rc,
                                                                                                                                                                                                                                                       0' h rc                                                     .........................
                                                                                                                                                                                                                                                         B46SC           .... .X.
                                                                                                                                                                                                                                                                                                                   ...........


                                                                                                                                                                                                                                                                ..........                                         ........
                                                                                                                                                                                                                                                                                                                   X........
                                                                                                                                                                                                                                                               .... ...... ............
                                                                                                                                                                                                                                                                           ...................

                                                                                                                                                                                                                                                                         ....... 1 11 11 1.
                                                                                                                                                                                                                                                                    .. ....................
                                                                                                                                                                                                                                                                    ..........    . ........
                                                                                                                                                                                                                                                                     . ...... . .........
                                                                                                                                                                                                                                                                        .... . . .........



                                                                                                                                                                                                                                                                                .............
                                                                                                                                                                                                                                                                                     .........
                                                                                                                                                                                                                                                                                    ..........
                                                                                                                                                                                                                     .. ........ .. .                                                .........
                                                                                                                                                                                                            X.                                                                       .........
                                                                                                                                                                                                                                         ..................
                                                                                                                                                                                                                       .. ........                                              X.:
                                                                                                                                                                                                                                                                                     ..........
                                                                                                                                                                                                                                                                                   ............
                                                                                                                                                                                                                                                                                     ...........
                                                                                                                                                                                                   X,        : @i@    ,
                                                                                                                                                                                                  X                                .......
                                                                                                                                                                    :X.
                                                                                                                                                                    X


                                                                             X.

                                                                                                                         ..                                       .......




                                                                                      ....                                                                  .......
                                                                                                                                                           ........                  ....
                                                                                                                                                           ........                 ....


                                                                                                                                                         .......                 ....
                                                                                                           ...                                                             ......





                                                                                                                                     .... .. . ...
                                                                                                                                       ........ . ..... ........
                                                                                                                                          .....          ......
                                                                                                                                               NOW""'.
                                                                                            ...........
                                                                                                                                 ii*x.           .4t
                                                                                                                                   ............
                                                                                                                                  ............
                                                                                                                                ....... ....... .. .
                                                                                                                                          ...............                                                                                ...
                                                                                      .... .......
                                                                                                X.                                       .....

                                                                                                                                                                                                                           . . ......... .
                                                                                                                                                                                                                          .. . ...........
                                                                       ....                                                                                                                                                 . .....      *** .. .. .
                                                                                                                                       .........                                                                               ............          ... .

                                                                                                                                                                                                               .... .............

                                                                                                                                                                                                                       .........         ... .... .
                                                                                                                                                                                                                                         . .. . . .... . ... . ....
                                                                                                                                                                  Brooklyn
                                                                                                                                                                  Lower
                                                                                                                                                                      Bay
                                                                                                                                                                                                                           ...............

                                                                                                                                                                                                                                                                       ...........

                                                                                                                                                                                                ......                                                    ...
                                                                                                                                                                                                                                                                                                                   .............
                                                                                            Staten Island                                                                                                                                                                                                          .............
                                                                                                                                                         ..                                            .. ...
                                                                                                                                                                                                              ..................                     ...                              ........ .........
                                                                                                                                                                                                                                                                                                                   .. ........
                                                                                                                                                                                                                                                                                                                   ....... ..........
                                                                                                                                                                                                                                                                                                                   ......... ....
                                                                                                                                                                                        ..                                                                                                ......
                                                                                      "South Shore                                                        ... . .                8 Im...
                                                               .....                                                                                        .....
                                                                                                                                                                                                                                                                                                                   ........ .. .....
                                                                                                                                                                                                                                             .....                                                                 ..............
                                                                                                                                                                                                                                                                                                                   .. ...... ...
                                                                                                                                                                                                                       X
                                                                                                                                                                                                                                                                                        .... ............
                                                                                                                                                                                                                                                                                                                   ............
                                                                                                                                                                                                                  ..........                         .....
                                                                                                                    :.X,                                                                                                   .. .....                                                                                .............. .;.X.X:X-:-
                                                                                                                                                                                                               . ............... .....                                                                             . . ..................
                                                                                                                                                                                                                                                                                                                   ....................


                                                 X-X
                                                                                                                                     .. ............. ..
                                                                                                                                                                                                                                                                                                                         X.:
                                                                                            ............
                                                                                            ...........
                                                                                            ...........
                                           .....                                            ..........
                                                                                                                                                                                                                                                                                     x                             . ...... .
                                                                                            .........
                                                                                                                                                                                                                                                                                                                   . ......... ...
                                                                                                                                                                                                                                                                                                                   ............
                                                                                                                                                                  ......                                                                                                               .............
                                                                                                                                                                                                                                                                                       .............
                                                                                                                                                                                                                                                                                      ....... .
                                                                                                                                                                                                                                                                                                                   ...........
                                                                                                                                         ... ..... . ..                                                                                                                                ...........
                                                                                                                                                                                                                                                                                        ............
                                                                                                                                                                         XX:
                                                                                                                                                                                                                       . ............    ..........                                                                .........
                                                                                                                                                                                                                                                                                                                   ... . ..........
                                                                                                                                                                                 x
                                                                                                                                                                                                           . .... . . . ............. ....
                                                                                                                                                                                 ......... X.X-                   .....                  . .............
                                                                                                                                                                                                                                         ...........
                                                                                      . ...........
                                                                                            . ........
                                                                                   ..... x*- ...- ...                                     .........
                                                        ............                                                                      ........
                                        X  .....
                                                                                                                                                                                 .. . . . ...... .....                                                                                                             .... .
                                                                                                                                                                                                                                                                                                                   ..................
                                                                                                                                         .....                                   ... ...                                                                                 ........ ...
                                                                                                       . ........... .                                                                                                                   ................
                                                                                                                                                                                                                                                                                                                   .. .......
                                                                                                                                                                                                    .. ...... . .                                                                ...                               ...........
                                                                                                          ...........                                                                                                                                                                                              .........I..........
                                                                                                                                                                                                                                                                                                                   .::: ..................
                                                                                                       ... ..........
                                                                                                                                                                                                                                                                                                                   ...............
                                                                                                                                                                                                                                                                           :X                                      . .....
                                                     . .....       .............
                                                         .......... .......................


                                     Erosion Hazard Areas



                                                                              designated coastal erosion hazard areas

                                                                              sandy beaches





                                        Source: NYS Department of Environmental Conservation
                                        Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                                                                      Natural Waterfront








                  Another important coastal erosion planning                WATER QUALITY
                  study, Proposed Long Island South Shore                   New York Harbor, or more accurately the
                  Hazard Management Program, 1989, exam-                    Hudson-Raritan estuary, lies at the center of a
                  ined the exposure and vulnerability of Long               large integrated coastal system consisting of the
                  Island's south shore. The report called for a             Hudson River, a network of tidal straits (Ar-
                  comprehensive, coordinated, long-term ap-                 thur Kill, Kill Van Kull, Harlem River, East
                  proach to erosion and flooding problems, and              River), open and enclosed bays (Raritan,
                  it assessed erosion management options                    Jamaica and New York bays) and Long island
                  similar to those explored in the Arverne                  Sound.
                  study. It recommended the establishment of
                  an erosion monitoring program, including                  New York Harbor is subject to large loadings
                  data base maintenance, beach profile surveys,             of municipal and industrial wastewater and
                  aerial photography, wave gauge deployment                 non-point runoff from city streets and the
                  and shoreline response modelling. The pro-                surrounding urban complex. Water quality
                  gram would extend from Coney Island to                    conditions have significantly improved in most
                  Montauk Point.                                            areas of the harbor in the last 20 years, pri-
                  New York City has been invited to participate             marily because of the city's investment in
                  in the Long Island South Shore Monitoring                 enhanced control of sewage and industrial
                  Program as a member of a technical advisory               discharges.
                  committee. DCPs 1992 aerial photographs of                Signs of water quality improvement include
                  the city's entire natural coastline will provide          increased striped bass stocks; increases in
                  valuable base data for the program. The com-              dissolved oxygen; decreases in lead concen-
                  mittee will provide advice, technical oversight,          trations, PCBs and insecticides; and dramatic
                  and coordination of action plans, interagency             decreases in sewage bacteria. Wood-borer
                  agreements and funding efforts.                           infestation of marine pilings, re-establishment
                  At Coney Island, the Army Corps of Engi-                  of peregrine falcon and osprey breeding popu-
                  neers is proposing a beach nourishment                    lations, and the re-opening of Seagate Beach
                  project, which over the next 50 years will                on Coney Island after 40 years provide further
                  deposit nearly nine million cubic yards of                indications that water quality is improving.
                  sand to build and maintain the beaches. The               The Federal Water Pollution Control Act
                  new beaches will provide storm protection                 requires all waters of the United States to be
                  and recreational benefits.                                fishable and swimmable to the maximum
                  The south shore of Staten Island, though a                extent practicable. DEC has classified the
                  designated coastal erosion hazard area, is not            waters of New York Harbor based on four
                  currently included in the Long Island moni-               categories of best usage, each with cor-
                  toring program. Several other areas in Staten             responding water quality standards. Shellfish-
                  Island, including portions of the Kill Van                ing is the highest use category; bathing, fishing
                  Kull, and Alice Austen Park shorelines have               and fish survival require successively less
                  significant erosion problems due to unpro-                stringent water quality standards. Bathing
                  tected and exposed shorelines. These areas are            waters are called for in the Long Island Sound,
                  affected principally by vessel-gen e rated wakes          the Hudson River above Riverdale, the South
                  and by wind-driven waves and high water.                  Shore of Staten Island, Coney Island, Jamaica
                  Along the Kill Van Kull, erosion is so severe             Bay and the Rockaways. The city's compliance
                  that portions of the inactive North Shore rail            with water quality standards in 1990 was the
                  track have been undermined.                               highest ever recorded. (Map 3.3.)


                  26




                              MAP 3.3                                                                                                                                                                               :N&        ::::,.

                                                                                                                                                                                                               .. ... ..............

                                                                                                                                                                                                                               xx

                                                                                                                                                                                                                       ... . ...... .






                                                                                                                                                                                             . .. . .. ... ... ........
                                                                                                                                                                                                              . . .........


                                                                                                                                                                                         @ NXI,

                                                                                                                                                                                                      . .. ... ...
                                                                                                                                                                                                      ... . ... ...









                                                              ......  ....
                                                                                             Upper
                                                                                           New York
                                                                                               say
                                                  Newark
                                                      Say
                                                     (N.J.)
                                                                    ..........
                                                                    ...........
                                                                    ..........

                                                                   ..........
                                                                  .............
                                                            .. . .......
                                                            ...................
                                                               ............
                                                                                     Kull
                                                                               Va









                                                                                                                                                                                                                   . . ... . ....
                                                                                                                                                                                X
                                                                                                                                                                                                                              . ...........
                                                                                                                                                                                           . .............             .......... ..........
                                                                                                                                                                                  .................
                                                                                                                                                                                   ..........

                                                                                                                                                                   ..........                                                 ...............
                                                                                                                                                                    ........                   ...........
                                                                                                                                                                                                                          ..........
                                                                                                                                                                                                                      ........................
                                                                                                                                                                                      ..........
                                                                                                                                                                                                                      . .............. ....

                                                                                                                                                                                               .............         x A
                                                                                                                                                                                  ...............
                                                                                                                                                                                                  . ...... .......
                                                                                                                                                                                           . ...  ........
                                                                                                                                                                                                                 .................. ................
                                                                                                                                                             ..... .......

                                                                                                                                                                                              ...                 .. .... ..
                                                                                                                                                                                                        .............. .... .
                                                                                                                                                                                                                              ... ..........
                                                                   . . ...                                                                                 ........

                                                                                                                                                                                                                    ...............................

                                                                                                                                                                                                                           ..........

                                                                                                                                                                                                               .........................  X*:*i:
                                                                                                                                                      ...                 ..........                                                   ...

                                                                                                                                      .. ............
                                                                                                                                      .... ... ...........                                        xkx,
                                                                                                                                                               ..............

                         New York Harbor Water Quality Goals


                           1 .                         shellfish harvesting                                                            3.                              fishing


                           2.                          bathing                                                                         4.                              fish survival





                         Source: NYSDEC, Best Use Classifications for New York Harbor (1991)
                          Comprehensive Waterfront Plan / NYC Department of City Planning / Natural Waterfront





























                                                                                                                   NT






                                                    --------- -
                 Recreational boating in Long Island Sound


                 In areas of the city that are served by septic          ment master plan, were constructed at a cost
                 systems, Staten Island in particular, ground            of $1.4 billion: the North River plant began
                 and surface waters may be negatively affected           operations in 1986 and the Red Hook plant
                 when systerns are not designed properly or              in 1987. (Map 3.4.)
                 when ground water tables are close to the
                 surface. DEP is refining septic regulations to          In fiscal year 1991, the city's 14 water pollu-
                 deal with this problem.                                 tion control plants processed 1,611 million
                                                                         gallons per day (MGD) or 159 MGD less than
                 Sewage Treatment                                        their total State Pollution Discharge Elimina-
                 Since the 1930s, New York City has been a               tion System (SPDES) permit. Although most
                 national leader in the design and operation of          of the city's plants have excess permitted
                 wastewater treatment facilities. New York               capacity, two of them - Wards Island and
                 pioneered the use of modern wastewater                  North River - currently exceed their permit
                 treatment technology with the construction of           capacity. The Coney Island and Owls Head
                 the Coney Island treatment plant in 1935.               plants are operating at capacity. The city's
                 Three additional plants were constructed on             water conservation efforts are beginning to
                 the East River by 1938, and two plants dis-             show positive results. Newtown Creek flows
                 charging into Jamaica Bay were operating by             have decreased more than 20 MGD over the
                 1942. Five more plants, for a total of 11, were         last 12 months, which has brought it within
                 completed during the next 10 years. In 1967,            the limits of its permit capacity. Other treat-
                                                                                               o
                                                                         mant plant flows sh    uld show similar im-
                 the Newtown Creek plant became the city's               provements as the water conservation pro-
                 12th and largest plant. The 13th and 14th               gram is expanded citywide.
                 plants, which complete the city's sewage treat-



                 28







                              MAP 3.4

                            Water Pollution Control Plant                       Rated Capacity
                                                        Bowery Bay              150 MGD*
                                                      Coney Island              100
                                                        Hunts Point             200
                                                             Jamaica            100
                                                  Newtown Creek                 310                                                                                                                        ji
                                                                                                                                                                   HUnts
                                                         North River            170
                                                                                                                                                                   Point
                                                 Oakwood Beach                  40                                           RIVU....
                                                                                                                                                     ar                                                   . ......
                                                         Owls Head              120                                                                  irds
                                                                                                                                                     jai
                                                                                                                                                 Ii  a
                                                    Port Richmond               60
                                                           Red Hook             60                                                                          . . . . . . . . . .
                                                           Rockaway             45                                                                                                  Tall
                                                                                                                                                                                     Island
                                                    Tallman Island              80                                                                       Bowery
                                                          26th Ward             85                                                                           Bay
                                                      Wards Island              260
                                                                                *million gallons
                                                                                per day

                                                                                                                                  W`Wtown Criek

                                                                                                                             ..........


                                                                      ...........
                                                                                                                           Red
                                                                                                                          Hook
                                                                   ............
                                                                                        .. ..           ---       ...
                                                                                                        X0. W-                                                                    Jamaica
                                                                   ..........


                                                                                                                                                             26th
                                                                                             ........... . ..
                                                                                              . ....... .. .
                                                                                    ... ..                                                                  Ward

                                                                                                                0
                                                                   ......                                          wis
                                                                                                                Head
                                                                                Port
                                                                   Richmond
                                                                                                                                      Coney
                                                                                                                                       Island"


                                                                                                                                                                   .............

                                                                                                                                                               ...........
                                                                                Oakwood
                                                                                Beach
                                        e.........

                                .....                                                                                                                                     ...........
                                 ....                                                                                                                                    .......
                                                                                                                                                                          ............                       ......   .....









                                                                                                                                                                         .............


                         ..........
                                                                                                                                                                                 ..........
                                                                                                                                                                .. ..          .........
                                                                                                                                                               - - - -:::%::%%%::%:  ...........
                                                                                                                                                                .. ..     .. ...........
                                                                                                                                                                               .............
                                                                                                                                                                      ... .. . ........... .
                                                                                                                                                                     ....* I. ............ ......
                                                                     . . . . . . . .. . . . . . . . ..... .... . .....
                                                                                                                                                                                                 MEN=

                         Water Pollution Control Plants



                                               water pollution control plant


                                               service area of plant





                           Source: NYCDEP, NYC's Combined Sewer Overflow Program, (1991)

                           Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                Natural Waterfront









                  Eleven of the city's plants are operating at              The city's DEP, in cooperation with federal,
                  secondary treatment levels. The upgrading to              state, local and private interests, initiated a
                  secondary treatment standards of the Owls                 Floatables Action Program in 1989, in re-
                  Head and Coney Island plants is under way                 sponse to widely publicized beach closings the
                  and will be completed by 1995; the Newtown                previous summer. In that year almost 60
                  Creek plant upgrading will extend into the                miles of beaches in New York and New Jersey
                  next century.                                             were closed several times at an estimated loss
                  Combined Sewer Overflows                                  of $2 billion to marine and recreation busi-
                                                                            nesses. The Floatables Action Program, which
                  Combined sewer overflows            (CSOs) and            attempts to capture materials at their source,
                  stormwater discharges are a major source of               skims them from harbor waters and cleans
                  pathogens and floatable material now enter-               beaches, has been successful. Virtuaily no
                  ing New York Harbor. Combined sewer                       beaches have been closed in the last two
                  systems (75 percent of the city's 6,000 miles             summers due to floatables.
                  of sewers) transport both stormwater and
                  sewerage in the same pipes, which discharge               Non-Point Sources of Water Pollution
                  into the treatment plants. During heavy                   Non-point pollution is caused by runoff from
                  rainfall, however, untreated effluent bypasses            land surfaces. Runoff comes from residential
                  the plants and is discharged directly into                lawns, highways and urban streets, seeping
                  waterways.                                                septic tanks, leaking landfills, construction
                  The city's CSO abatement program is intend-               sites and chemical spills. It is a major factor
                  ed to eliminate unacceptable levels of water              in the continuing degradation of many coastal
                  pollution in vulnerable tributaries, bays and             waters. New York City's Local Law 7 (Section
                  inlets. Retention tanks will store combined               P110.0) sets standards for the design of
                  system effluent during rainfall and pump it               stormwater systems; its focus, however, is
                  back to treatment plants after the rain. Disin-           primarily on structural systems and efficient
                  fecting facilities also are envisioned as part of         removal of stormwater, rather than on non-
                  the CSO program. DEP anticipates that 12                  structural methods to minimize the effects of
                  retention facilities will be required, which will         pollution on receiving waterways.
                  take 10 to 15 years to complete at a cost of
                  approximately $1.5 billion. Planning for two              Runoff in New York City is typically captured
                  projects, Flushing Bay and Paerdegat Basin, is            in stormwater systems that eventually dis-
                  near completion. The first CSO abatement                  charge through one of 448 outfalls to the
                  facility began operation in 1972 at Spring                waters of the harbor. Most of these outfall
                  Creek in Brooklyn and has resulted in a                   structures are not regulated by permit al-
                  measurable improvement of the Creek's water               though they are conduits for much of the
                  quality. (Map 3.5.)                                       city's non-point pollution. DEP is embarking
                  Floatables Action Program                                 on a program to identify and classify storm-
                  Floatables discharged into the      harbor are a          water discharges resulting in water quality
                  problem for aesthetic reasons       and because           impairment and develop management stan-
                  they can hurt or kill marine mammals, sea-                dards to control them. In addition, illegal
                  birds and fish. It is estimated that 25,000               connections to storm sewer pipes are esti-
                  pounds of floatable material, much of it                  mated to contribute 1.9 million gallons of
                  plastic, is discharged from combined sewer                raw sewage per day to the harbor. DEP has
                  overflows each warm weather month. This                   completed a Shoreline Survey Program to
                  material is primarily street litter.                      identify sources of illegal discharge.


                  30







                                MAP 3.5


                                                                                                                                                                                    Hutch-
                                                                                                                                                                                    inson
                                                                                                                                                                                    River  "ORd
                                                                                                                                                                                    West-      V// . ... ..
                                                                                                                                                                Bronx
                                                                                                                                                                 River              chester
                                                                                                                                                                                    Creek
                                                                                                                                                                       "Pugsley-S
                                                                                                                                                                           Creek



                                                                                                                                                                                                           .. ........


                                                                                                                                                                                                                ............
                                                                                                                                                                                                    t
                                                                                                                                                                                           roi      t
                                                                                                                                                   ........        ....
                                                                       New
                                                                      Jersey                                                                                                               Flushing
                                                                                                                                                                                           Bay &
                                                                                                                     .....             .....                                               Creek

                                                                                                                                                      Newtown
                                                                                                                                                         Creek

                                                                                                                                                      A.
                                                                                                                               ...........


                                                                                                     ...............

                                                                                      Inner -14""ft                         Gowanu.
                                                                                                     . .................... .  Canal                     Hendrix Spring               Bergen
                                                                                           bjecti@i:. :            .,. '/,'
                                                                                                       'A" ... *'r"*,-,e'--""-*a"':""--*@'@                                                                                11
                                                                                                                                                         Creek Creek                   Basin
                                                                                              ..... ..................
                                                                                                ......................                                                                                Thurston
                                                                                                ...................
                                                                                                ...................
                                                                                                ....................                                     Fresh
                                                                                                                                                                                                           sin
                                                                                                     ............                                                            V,
                                                                                                                                                         Creek
                                                                                                                                                                                                        Be
                                                                                                                                       Paerclegat
                                                                                                     ..........
                                                                                                     .........
                                                                                                                                          Basin
                                                                              Kill Van Kull
                                                                                                                                                                                           13".
                                                                                                                                                               ............

                                                                                                                           Coney                                                           .. ......
                                                                                                                           Island
                                                                                                                                ek                                                                                               ........
                                                                                                                                                                                                                   . .......  ........
                                                                                                                                                                                                                  .... . ... . .......
                                      Arthur
                                        Kit
                                                                                                  ....                                          . .........
                                                                                                                                                                                                                  1x:
                                                                    Richmond
                                            U IF                       Creek


                                                    Lemon
                                                    Creek
                                                                              .......     ....









                                              ............
                          Combined Sewer Overflow Abatement Program


                            East River                        area-wide projects
                          Project Area

                                Lemon Creek                   tributary projects


                                                              waterway targeted for improvement




                             Comprehensive Waterfront Plan / NYC Department of City Planning / Natural Waterfront















                                                                   V 'E
                                                                                            W,
                                                                   3A  0
                                                            ........ . . . .
                                                                   7:__
                                                                                   .. .......



                                                                                    @g


                                               ... ..... . .

                                                                                  A




                                @A

                                                                                                                           V













                 Stormwater outfall


                 Recognizing this important issue, in 1990                For example, two Staten Island beaches, South
                 Congress established the Coastal Non-Point               and Midland, are consistently off limits to
                 Pollution Control Program (Section 6217)                 swimmers because of persistently high bacterial
                 which requires the coastal states to implement           levels. PCB and dioxin contamination have
                 policies and management measures to control              caused a ban on the consumption and sale of
                 non-point sources of coastal pollution. Both             18 species of fish caught in the harbor. Except
                 the Department of State and DEC (in consul-              in portions of the Lower Bay, shellfish harvest-
                 tation with DEP and DCP) will need to                    ing is severely restricted because pathogens and
                 develop non-point programs by the end of                 toxic chemicals may be present - a legacy of
                 1994, as required by Congress.                           past industrial practices.
                                                                          Removal of harmful sediments has been ham-
                 Water Quality Issues                                     pered by lack of agreement on safe dredging
                 The quality of New York City's waterways has             practices and disposal sites. This has been a
                 improved steadily and substantially as a result          particular problem in channels like Newtown
                 of the city's aggressive environmental leader-           Creek, where dredging is essential to the
                 ship and billions of dollars of investment in            industrial operations along its shores.
                 environmental infrastructure. Programs in                One of the more intractable problems is the
                 place - CSO abatement, treatment plant                   hundreds of small outfalls which discharge
                 upgrading and industrial pre-treatment - are             wastewater, stormwater runoff and street litter
                 addressing the principal contributors to pollu-          into the open waters of the harbor. Existing
                 tion in the city's harbor and tributaries. Never-        state and local laws and programs do not
                 theless, continuing vigilance will be necessary          appear adequate to control these numerous,
                 to counter a number of outstanding problems.             diverse sources of coastal pollution.


                 32









                    Public policies concerning water quality stan-                Wetlands acquisition, though not feasi-
                    dards need to be sharpened and refined so that                ble universally, is the preferred alterna-
                    they are better understood, more predictable,                 tive where management mechanisms are
                    and better tied to goals for individual water                 available. A coordinated acquisition pro-
                    bodies. WRP policies relating to water quality,               gram should include continued support
                    for example, make no distinction between the                  for DEP's acquisition of Staten Island
                    costs and benefits of water quality improve-                  freshwater wetlands as a means of storm
                    ments in Jamaica Bay and in the Gowanus                       water management and pollution con-
                    Canal - water bodies with vastly different                    trol; and, as funding is available, DPWs
                    uses and values.                                              continued acquisition of valuable wet-
                                                                                  lands where existing natural area parks
                    New waterfront development will place addition-               can be expanded or new ones created.
                    al demands on the city's wastewater treatment                 In addition, DCP will explore a Transfer
                    system. To control and reduce the quantity of                 of Development Rights program to shift
                    wastewater entering the plants that exceed                    development from ecologically sensitive
                    permitted capacity the city is evaluating and                 areas to less vulnerable sites.
                    pursuing several methods: accelerated water
                    conservation programs, including metering, to                 A realistic and achievable strategy is
                    reduce flow; better use of excess plant capacity              needed to attain the goal of "no net
                    where available; and expanded plant capacity                  loss" of wetlands, which has been pro-
                    when necessary. Adequate wastewater treat-                    posed as an amendment to the Clean
                    ment capacity is a citywide need that is not                  Water Act by the National Wetlands
                    unique to the waterfront; it is essential to the              Policy Forum. DEC and interested city
                    city's growth and prosperity and to the conser-               agencies should define acceptable miti-
                    vation of its valuable coastal resources.                     gation alternatives for proposed actions
                                                                                  that would adversely affect an existing
                    THE PLAN FOR THE NATURAL                                      wetland, and develop a database and
                    WATERFRONT                                                    tracking system to monitor changes in
                                                                                  the city's wetland inventory. A mitigation
                    The plan for the city's Natural Waterfront is                 program would include an inventory of
                    presented in two parts: a set of strategies to                potential sites and design standards for
                    address natural waterfront issues citywide; and               mitigation projects.
                    the designation of three natural areas with                   City agencies, including the Departments
                    special significance which merit heightened                   of Sanitation, Transportation, Parks and
                    attention and strategies tailored to their unique             Recreation, and Environmental Protec-
                    environments. This plan, along with the plans                 tion, should pursue a clean-up and
                    for the public, working and redeveloping                      guardrail program designed to stop
                    waterfronts, form a balanced and comprehen-                   illegal access and dumping in the most
                    sive vision for the future of the city's entire               vulnerable wetlands. The city should
                    waterfront.                                                   explore using the Department of General
                    CITYWIDE STRATEGY                                             Services' Land Reclamation Program,
                                                                                  which cleans and greens large tracts of
                    Wetlands                                                      inner-city vacant land, to maintain
                    Because activities in most wetlands are already               wetland areas unsuitable for parkland.
                    regulated by state and federal law, the appro-
                    priate protection strategy for the city's tidal
                    and freshwater wetlands is not additional
                    regulation. Rather, a set of management strate-
                    gies is needed to deal with land acquisition
                    priorities and regulatory coordination.



                                                                                                                              33









                 Significant Coastal Fish and Wildlife                      Habitats; DEP, DCP and DEC should
                 Habitats                                                   reexamine minimum buffer requirements
                 ï¿½  The city should support the state's pro-                applying to tidal wetlands adjacent to
                    posed Significant Fish and Wildlife                     filled land more than 10 feet above mean
                    Habitat designations, provided that:                    sea level, explore selective expansion of
                                                                            the 150-foot buffer area, and develop
                    DEC, the Department of State and the                    "best management" practices to control
                    Army Corps of Engineers agree on      coor-             runoff and guide development of storm-
                    dinated, flexible and achievable stan-                  water management systems.
                    dards for harbor dredge and
                    maintenance programs, which appro-                  Coastal Erosion
                    priately balance resource protection and            N   The federal government should pro-
                    economic development goals; and the                     vide uninterrupted funding cycles to
                    program is refined to clarify the scope
                    and interpretation of the proposed im-                  maintain beach nourishment programs
                    pact guidelines and provide for reassess-               at Rockaway and Coney Island, includ-
                    ment of the program every five years.                   ing Sea Gate and Plumb Beach. The state
                                                                            and city should explore other approach-
                 ï¿½  The city's Waterfront Revitalization Pro-               es, such as dune building, off-shore sand
                    gram should be amended to incorporate                   bar building and other innovative pro-
                    the designations, and in the interim, the               grams, which may reduce erosion.
                    designations should be used to guide the
                    application of WRP Policy 7 relating to                 The city should participate in the Long
                    habitat preservation.                                   Island South Shore Monitoring Program
                 ï¿½  For wetlands that are adjacent to or part               and extend such a program to eroding
                    of Significant Coastal Fish and Wildlife                Staten Island shorelines as well.







                                             N
                                              F  Ml@@.
                                                                                FIN/ vle_@@ 14'
                                                                               N
                                                        liv wtvv
                                                                                ewe























                 Wildlife habitat at Udalls Cove Preserve, Queens                                    Source: Aurora Gareiss


                 34















































                                                           @13


                  Shore protection jetties at Fort Tilden, Rockaway


                  Water Quality                                              Board, should develop a citywide strategy
                  ï¿½   The city should continue upgrading its                 to address non-point sources of pollu-
                      water pollution control plants, increase               tion, including stormwater runoff guide-
                      water conservation efforts to lessen the               lines to be incorporated in local law, as
                      volume of wastewater entering the plants,              necessary.
                      and advance the CSO Abatement Pro-                     Water quality enhancement programs
                      gram. Where feasible, CSO facilities                   including CSO and non-point runoff
                      should be designed to accommodate                      abatement, should be directed to the
                      waterfront recreation and access and, if               waterways that provide coastal signifi-
                      appropriate, environmental education.                  cant fish and wildlife habitat, support
                  ï¿½   DEP and DCP should accelerate their                    recreational use, or presently impede
                      inter-agency coordination efforts by                   redevelopment efforts.
                      establishing a land use and infrastructure
                      working committee to develop accurate              SPECiAiL NATuRAL WATERFRoNT AREAs
                      demand forecasts that would ensure ade-            Three geographic areas within New York City
                      quate wastewater treatment capacity for            possess special assemblages of significance for
                      all development.                                   the natural waterfront. They are the Jamaica
                  ï¿½   DEC, DEP, the Army Corps and the Port              Bay/Rockaway Peninsula; portions of the Staten
                      Authority should develop a safe, expedi-           Island coastline; and sections of the Long
                      tious and realistic dredging program to            Island Sound shorelines of Queens and the
                      remove and dispose of contaminated sedi-           Bronx. Each has a combination of important
                      ments, particularly within Newtown Creek,          natural features that are recognized and pro-
                      Gowanus Canal and Coney Island Creek               tected under a variety of regulatory programs,
                                                                         including proposed Significant Coastal Fish
                  ï¿½ DCP and DEP, in coordination with the                and Wildlife Habitats, Coastal Erosion Hazard
                      New York Soil and Water Conservation               Areas, and Tidal and Freshwater Wetlands.


                                                                                                                         35












                                                                             ..... . ..... ..    igw    ag
                                                                                                          K@l

                                                   10.-111111.'.. ..... . . . . . . .
                                                                          @w                W
                                                               0
                                                         gffi
                                                     2
                                  0,
                                 p
                                 A I
                                                   goo
                                                                             I fflmm@



                                                                                                         -E.















                  Jamaica Bay and Spring Creek,  Queens and Brooklyn


                  The Special Natural Waterfront Areas desig-                requirements for surrounding land uses, ap-
                  nated in this plan are areas in which natural              propriate dredging cycles to minimize impacts
                  values assume particular importance. Major                 on aquatic life, access limitations during bird
                  portions of all three areas are mapped park-               nesting periods, and restrictions on fill, excava-
                  land. in large parts of the remaining sections,            tion and shoreline construction that would
                  development is controlled by zoning and other              result in the loss of productive habitat in
                  regulations aimed at protecting natural re-                previously undisturbed areas.
                  sources. The designations call attention to
                  these enclaves of natural beauty which offer               Jamaica Bay Special Natural Waterfront
                  environmental benefits to all the city's citizens.         Area
                  It is a foundation for identifying gaps in
                  protection, opportunities for enhanced protec-             The quality and relationship of its natural
                  tive measures, and improved program and                    features, including wetlands, shallow water
                  policy coordination.                                       habitats and coastal beaches, make Jamaica Bay
                                                                             one of the few intact natural ecosystems in
                  In addition to strategies specific to each area,           New York City. The shoreline surrounding
                  enhanced protection for all three would be                 Jamaica Bay is mostly parkland, either part of
                  provided by modifying WRP policies to give                 the Gateway National Recreation Area or
                  added weight and greater specificity to natural            under the jurisdiction of the New York City
                  resource values in these areas. For example,               Department of Parks and Recreation. Low- to
                  WRP Policy 7 would be revised to include                   mid-density residential uses (R2 - R6 zoning),
                  review guidelines specific to each area with               large tracts of vacant city-owned land, JFK
                  respect to its designation as a Significant                International Airport and some industrial and
                  Coastal Fish and Wildlife Habitat. Guidelines              commercial uses occupy the remainder of the
                  would include such considerations as buffer                bayfront.


                  36







                                            MAP 3.6


                                                                                                                                                                                     Bergen                                 Queens
                                                                                                                                                    Shell-                             Basin
                                                                                                                                                     bank           Haw-
                                                                                                                                                     Basin tree
                                                    Brooklyn                                                                Spring                                 B@st    .n
                                                                                                 Fountain
                                                                                                                            Creek                                                                                                                           Thurston
                                                                                         Avenue Landfill                         -0                                                     ... ....
                                                                                                                                                                  K::                                                                                          Basin
                                                                                                                                                                                                                                                                                        Hook
                                                                                         Fresh
                                                                                                              Hendrix                                                                                                                                                                   Creek
                                                                                                                                                                                                                        JFK                                                     0-
                                                                                         Creek
                                                                                                                Creek


                                                                                                                           ...........
                                                                             Pennsylvania
                                                Paerdegat                                                 10
                                                                                                                                                                                      N
                                                                           Avenue Lan
                                                    Basin
                                                                                            . A
                                                                                                                                           ...... . ...........
                                                                                                                                                                                                    ..........
                                                                                                                                                                                   :.39..X
                                                                                                                                                                                                    ...........x
                                                                                                                                                                                                                            X.                    .... ......
                                                                                                                                          ...............
                                                                                                                                                          ........... .
                                                                                                                                                                                                                                                                                                     Nassau
                                                                                                                                                                                                                                  ............
                                                                                                                                          ................. N"
                                                                                                                                                                                 KUK
                                                                                                                                       ........                                                     .........
                                                                                                                                                                                   .......                                                                                    Mott
                                       Marine                         *"F
                                                                        out:::
                                                                                                 . .. ....                                       ......
                                        Park                                                                                                                                                        .... .                                                                    Point
                                                           Ax*i$
                                       AU
                                             ftl@fi             iii; Marsh '*`W
                                                                                                                                                                                                                                                             Edgemere
                                                                                                                                                                                                                  . . . . . . . . . . . . . ...... .... ......
                                                          k:
                                                                                                                                                                                                                                                                 Landfill


                                                                                                                                                                                                                                                                  :;iixi
                                                                                                                                             ....................                                                                                                                                    . ....................
                                                                                                                                                                                                                                                                                                     .......................
                                                                                                                                                                                                                                        .......   ................
                                                                                                                                                                                  ......... .....
                                                                                                                                                                               ............

                                                                                                                                                                                              c
                                                                                                                                                                                               VI

                                                                                                                                                                    or,
                                                                                                                                                                 Ft


                                                                                                         ..... ...............     ....
                                                                                                         ..... .......



                                                                      ...                                                                                                                                                                                                                                           ........

                                                                            . .........


                                                                                                                                                                                                                                                                                                                    .............


                                                                                                                                                                                                                                                                                                                    ...........
                                                               4
                                                                                                                                                                                                                                                                                                                    .........
                                                                                                                                                                                                            ...........                                                                                             ............
                                                                                                                                                                                                                                                                                                                    ...........
                                                                                                                                                                                                                                                                                                                    ..........
                                                                                                                                                                                                                                                                                                                    ............
                                                                                                                                                                                                                                              X X.:.Z..
                                                                                                                                                                                                                                                                                         .. ...                     . ........
                                                                                                                                                                                                                                                                               . ..............
                                                                                                                                                                                                                                                                                                                    ..........
                                                                                                                                                                                                                                                                                                     ............
                                                                                                                                                                                                                                                                                                     ...........    ............
                                                                                                                                                                                                                                                                                                             . ...........
                                                                                                                                                                                                                                                                                                     ............
                                                                                                                                                                                                                                                                                                     ... .....



                                                                                                                                                                                        ...                                                                                                          ..........
                                                                                                                                                                                                                                                                                                     ..........
                                                                                                                                                                                                                                                                                                                    ............


                                                                                                                  .........                                                     ...........
                                                                                                                                                                                                    ......................  ........
                                                                                                                              ...                                                                                  ..........



                                                                                                                   ...........
                                                                                   ........      ..... .
                                        ................


                                     Jamaica Bay Special Natural Waterfront Area
                                                                                                                                                                                                                                                                                                     The
                                                                                                                                                                                                                                                 ED
                                                                                                                                                                                                                                                                                  ::jj


                                                                      tidal wetlands                                                                                              city-owned property
                                                                                                                                                                                                                                                                                                     Owers
                                                                      proposed Significant Coastal                                                                                 airport
                                       bold                           Fish & Wildlife Habitat
                                      name
                                                                                                                                                                                                                                                                          Brook-
                                                                                                                                                                                                                                                                             lyn
                                                                                                                                                                                                                                                               n
                                                                                                                                                                                                                                                                        ....                         .... ....
                                                                                                                                                                                                                                                                        .....                        ... ..  ......
                                                                      park
                                                                                                                                                                                                                                                                                                     .... .......
                                                                                                                                                                                                                                                                                                     ..........
                                                                                                                                                                                                                                                                     .. ........          .. .....
                                                                                                                                                                                                                                                                                           . . ......
                                                                                                                                                                                                                                                                                                     o@k
                                                                                                                                                                                                                                                                                                     'ek















































































                                                                                                                                                                                                                                                                                    ............
                                                                                                                                                                                                                                                                                            ..........
                                                                                                                                                                                                                                                                         ......                      ... ... ................


                                     Comprehensive Waterfront Plan                                                                                 NYC Department of City Planning                                                                            Natural Waterfront









                 Two of the 15 proposed Significant Coastal               Despite this panoply of protective regulation,
                 Fish and Wildlife Habitats are located in the            the waters of Jamaica Bay receive pollutants
                 Jamaica Bay/Rockaway Peninsula Area. The                 from various sources. Leachate enters the bay
                 Jamaica Bay designation is the largest in the            from the inactive Fountain, Pennsylvania
                 city. The open waters and tidal marshes of               Avenue and Edgemere landfills. Untreated
                 Jamaica Bay are within the Atlantic Flyway,              stormwater entering the bay from both point
                 one of the major pathways in the western                 and non-point sources contains petrochemicals
                 hemisphere for migratory birds; the bay sup-             and floatables that contribute to the overall
                 ports more than 300 species of birds. It is also         degradation of water quality. The construction
                 a productive area for marine finfish and shell-          of JFK and the 1962 extension of a runway
                 fish. It serves as a nursery and feeding area for        into Grassy Bay has impaired water quality by
                 winter flounder and bluefish, among other                interfering with the bay's natural counterclock-
                 species, and it supports shellfish populations           wise circulation.
                 including hard clams, soft clams, mussels, rock
                 crabs and summer feeding of Kemp Ridley                  DEP's Combined Sewer Abatement Pro-
                 turtles, an endangered species. The second               gram-including the Jamaica Bay area-wide
                 proposed habitat designation, Breezy Point, is           program and the retention facilities planned
                 one of the few areas of undeveloped barrier              for its tributaries including Paerdegat Basin-
                 beach habitat in New York State and is home              will address one of the major sources of
                 to a number of endangered species including              pollution in the bay.
                 the least tern and piping plover. (Map 3.6.)             Further efforts to protect and improve the
                 The area contains one of the two coastal                 quality of the bay's rare ecosystem are made
                 beaches in New York City, and much of the                possible by a fortunate combination of cir-
                 shoreline around the bay is tidal wetland.               cumstances. The first is the existence of an
                 Many of the wetlands are on the islands in the           active Jamaica Bay Task Force of public and
                 bay's interior, which are part of the Gateway            private members committed to coordinated
                 preserve. Large expanses of former wetland               policy and program development. Task Force
                 fringing the bay have been filled to create              members include federal, state and city agen-
                 developable upland. Much of the Flatlands and            cies, universities and institutions, community
                 Canarsie sections of Brooklyn, JFK Interna-              and environmental organizations, elected
                 tional Airport, the Park Landfill and the Foun-          officials, community boards and individual
                 tain and Pennsylvania Avenue landfills are               citizens. A second important advantage is that
                 located on filled areas originally occupied by           most of the bay's natural systems are in
                 salt marsh, meandering tidal creeks, and the             public ownership, allowing greater control
                 open waters of the bay.                                  and sensitivity in the disposition, develop-
                                                                          ment and management of these parcels.
                 In addition to the protections offered by
                 parkland and wetland designations, and the               The strategy for Jamaica Bay capitalizes on
                 proposed Significant Coastal Fish and Wildlife           these assets. It attempts to resolve competing
                 habitats designations, DEC designated the bay            proposals for the use of city-owned land, and
                 as a Critical Environmental Area in 1990. The            it looks to the Jamaica Bay Task Force as the
                 designation requires closer scrutiny of potential        principal agent for coordinating responses to
                 environmental impacts (under state and city              area-wide issues.
                 environmental review procedures) for discre-
                 tionary actions within the bay or DEC-regu-
                 lated wetlands.


                 38












































                                                       P,








                    Illegal dumping at Edgemere, Queens


                    Strategy for Jamaica Bay Special Natural                      An inter-agency committee (DCP, DEP,
                    Waterfront Area                                               EDC and the National Parks Service)
                    Policies and Programs                                         should work with the Port Authority to
                    ï¿½   The city in consultation with the Jamaica                 minimize and reverse adverse water qual-
                        Bay Task Force should develop specific                    ity impacts caused by JFK operations. It
                        buffer and non-point runoff guidelines                    is important, however, to balance this
                        for Jamaica Bay. The guidelines would be                  objective with the airport's safety re-
                        incorporated into applicable WRP poli-                    quirements and its critical role in the
                        cies for review of discretionary actions in               city's economy.
                        the area and, if appropriate, would be                    The Department of Sanitation and Envi-
                        added to other local regulations.                         ronmental Protection should develop
                    ï¿½   The city, in consultation with the task                   and initiate containment plans for the
                        force, should develop interim and long-                   Edgemere, Pennsylvania Avenue and
                        range strategies to maintain and protect                  Fountain Avenue landfills, including
                        isolated wetlands and other natural re-                   consideration of innovative bio-tech-
                        sources inappropriate for parkland designa-               nology approaches.
                        tion. Measures should include stepped-up             Land Disposition
                        enforcement of the Department of Sani-               As a general policy, this plan recommends
                        tation ban on illegal dumping, installa-             consolidation and transfer of the most eco-
                        tion of bollards or fences to prevent                logically sensitive sites, including adequate
                        vehicles from entering the areas, and                upland buffers, to the Department of Parks
                        participation of community boards and                and Recreation, which would serve as land
                        local civic and homeowner associations               steward. Other sites, i.e., those that are highly
                        as land stewards.                                    disturbed wetlands or previously filled areas,

                                                                                                                             39









                 may be developed for other uses provided                      Spring Creek, straddling the Brooklyn-
                 that care is taken to ensure that development                 Queens border, contains one of the
                 is sensitive to the surrounding natural areas.                most important wetlands in Jamaica Bay
                 In accordance with the city's property dispo-                 as well as extensive upland vacant par-
                 sition procedures for sites deemed "signifi-                  cels. The wetlands complex, with a
                 cant," site planning guidelines would be                      meandering natural creek, is about 40
                 developed by DCP in consultation with DPR,                    acres in size. The area generally south of
                 DEP and other affected agencies. The guide-                   Flatlands Avenue, which contains Old
                 lines would ensure appropriate relationship of                Mill Creek, associated tidal wetlands
                 development and natural features by address-                  and buffer areas, should be mapped as
                 ing such considerations as the use, density                   an addition to Spring Creek Park. To
                 and configuration of development; adequate
                 buffer areas; non-intrusive access locations;                 consolidate the parkland assemblage,
                 and runoff management.                                        several privately-owned parcels should
                                                                               be acquired and certain streets de-
                 The following strategies are recommended for                  mapped. The remaining upland parcels
                 each bayfront area with a significant concen-                 lack ecological significance and are
                 tration of city-owned vacant land. The rec-                   appropriate for a variety of uses. Vege-
                 ommendations are informed, in part, by the                    tated buffers along Hendrix Creek should
                 1987 Buffer the Bay report issued by the                      be included in the Spring Creek Urban
                 Audubon Society and the Trust for Public                      Renewal Plan and around the proposed
                 Land, and subsequent analysis of the bay's                    sludge dewatering facility on the western
                 natural systems by DCP.                                       side of Hendrix Creek.
                 ï¿½   Four Sparrows Marsh, a 77-acre site, con-                 The Hook Creek area near JFK and the
                     tains a large, vigorous and undisturbed                   Nassau County border contains more
                     wetland along Mill Basin Creek. Because it
                     is one of the finest natural areas in the                 than 100 acres of undeveloped city-
                     city, most of the site should be transferred              owned land mapped as Public Place.
                     to DPR and mapped as park. Develop-                       The parcel is mostly undisturbed tidal
                     ment of an elevated boardwalk along the                   wetlands and should be consolidated
                     wetland edge would allow for non-intru-                   under DPR jurisdiction.
                     sive public access to connect to Flatbush
                     Avenue. A 12-acre upland parcel adjacent                  Mott Point in Far Rockaway offers an
                     to Flatbush Avenue, zoned C-3, can be                     opportunity to connect valuable wetland
                     developed for residential uses under R3-2                 habitat to state and city parks that oc-
                     zoning regulations, provided an appropri-                 cupy most of the shoreline. Acquisition
                     ate buffer is maintained.                                 of an intervening private parcel by the
                 ï¿½   Paerdegat Basin has been dredged and                      city or state and street dernapping are
                     channeled and most of its adjacent                        recommended.
                     marshes filled. The quality of its badly                  Conch and Sommerville Basins on either
                     polluted waters will improve with the                     side of the Edgemere landfill are edged
                     planned installation of a CSO facility at                 by tidal wetlands. The newly established
                     the head of the basin. The remaining                      Dubos Point wildlife sanctuary frames
                     wetland on the southwestern shore                         Sommerville Basin to the west. DCP's
                     should be transferred to DPR as an                        Edgemere Neighborhood Land Disposi-
                     addition to adjacent McGuire Park.
                     Once the CSO facility is in place, some                   tion Plan recommends the designation of
                     of the remaining city-owned land can be                   additional parkland as well as natural
                     redeveloped for housing with generous                     shoreline preservation areas to preserve
                     open space buffers and public access                      the shorefront within the proposed
                     provided along both banks.                                Edgemere Urban Renewal Area.


                 40










                       Vernam/Barbadoes Peninsula contains 24                 Staten Island contains most of the city's desig-
                       acres of city-owned land with intertidal               nated freshwater wetlands. They were once
                       marsh along its perimeter and an upland                contiguous systems, but road and rail develop-
                       habitat of open shrub land. The parcel,                ment has separated them, impeding the flow of
                       which is zoned for light manufacturing                 water between them. The wetlands continue,
                       use, can be appropriately developed if                 however, to be hydrologically interconnected,
                       development is restricted to the prev-                 serve the functions of flood control and
                       iously disturbed upland area to the                    ground water purification, and are important
                       maximum extent practicable, and is                     marine and bird habitats. Most of Staten
                       buffered to preserve the wetlands and                  Island's freshwater wetlands are within city and
                       upland habitat.                                        state parks, and many others are being ac-
                                                                              quired or transferred, if city-owned, to DEP to
                   Staten Island Special Natural                              implement its "bluebelt" natural storm water
                   Waterfront Area                                            management program. Other important wood-
                                                                              land or wetland habitats are being acquired by
                   The southern and      northwestern   portions of           DPR as funding becomes available.
                   Staten Island are enriched by a confluence of
                   freshwater and tidal wetlands, coastal beaches             Because much of Staten Island's shoreline was
                   and wildlife habitats. The northwestern qua-               not bulkheaded, vast portions of it remain in
                   drant, currently the least protected natural               a relatively natural state. These natural sections
                   area, merits designation as one of the three               support a broad system of tidal wetlands
                   Special Natural Waterfront Areas in the city.              primarily along the Arthur Kill, Fresh Kills and
                   The Raritan Bay shoreline is predominantly                 the south shore, with the largest concentra-
                   beachfront parkland mixed with low-density                 tions in the northwest quadrant of the island.
                   residential development. The western coast                 The southeastern shore contains significant
                   along the Arthur Kill is zoned mostly for                  stretches of coastal beachfront including South
                   manufacturing use and is dominated by the                  Beach, Midland Beach, Oakwood Beach and
                   3,000-acre Fresh Kills landfill and extensive              Great Kills Park. Large sections of this beach-
                   wetlands, with scattered residential enclaves              front are designated Coastal Erosion Hazard
                   inland.  (Map 3.7.)                                        Areas by DEC.













                            N
                   Con Edison power plant on  the Arthur Kill, Staten Island


                                                                                                                               41









                   These sensitive natural features are afforded                 Nursery, which has been acquired and
                   additional protection by the city's zoning                    transferred to DPR, is a link between the
                   regulations. The Special South Richmond                       wildlife refuge and the rookeries and
                   Development District, encompassing the                        foraging grounds in the Harbor Herons
                   southern portion of the island, regulates devel-              Complex.
                   opment with respect to tree removal, curb                     Prall's Island is a breeding area for her-
                   cuts, parking lots and street trees. The special
                   district protects valuable wetlands and wood-                 ons and other waterbirds. The 80-acre
                   lands through a system of Designated Open                     island is under DPR jurisdiction and is
                   Spaces intended to remain in their natural                    managed by the NYC Audubon.
                   state. In addition, Special Natural Area Zoning               Saw Mill Creek Marshes, including
                   Districts, with a required review procedure for               Chelsea Marsh, contain tidal and fresh-
                   development, encompass the steep slopes,                      water wetlands which are presently
                   ponds, lakes, swamps and creeks of the island's               compromised by abandoned cars and a
                   central section.                                              junkyard located along the shoreline of
                   The least protected of the island's natural                   the creek. Most of the city-owned marsh-
                   resources are in the northwest along the Ar-                  es are to be transferred to DPR.
                   thur Kill and the western portion of the Kill                 Goethals Bridge Pond, a 33-acre parcel,
                   Van Kull. This area, bounded by the Isle of                   consists almost entirely of freshwater
                   Meadows in the south, Holland Avenue, South
                                                                                 wetlands. The pond is a feeding site for
                   Avenue and the West Shore Expressway on the
                   north and east, contains one of the harbor's                  wading and waterbirds; it has been ac-
                   most extensive wetlands systems. It has recent-               quired by the Trust for Public Land for
                   ly been colonized by several species of herons,               conveyance to DEC, with management to
                   egrets and ibises and is identified as "the single            be provided by DPR. Efforts continue to
                   most important colonial waterbird rookery                     acquire privately-owned parcels in the
                   complex in New York State" by the Trust for                   pond's watershed.
                   Public Land and the Audubon Society in their                  Shooter's Island, in the Kill Van Kull
                   Harbor Herons Report. The 1990 report rec-                    near Port Ivory, is a significant colonial
                   ommends acquisition and management of the                     waterbird rookery. The island is unin-
                   most sensitive areas as the primary means of                  habited and surrounded by derelict ves-
                   protection.                                                   sels and the remains of a World War
                   Six of the 15 Significant Coastal Fish and                    One.shipbuilding facility. Ownership of
                   Wildlife Habitats proposed by the Department                  Shooter's Island is split: the northern
                   of State are in Staten Island. Five of the six                portion is owned by two New Jersey
                   are located in the northwest section of the                   counties and the southern two-thirds by
                   island- the Harbor Herons Complex. All or                     New York City, which manages the is-
                   portions of these proposed habitat areas are                  land under a Management Agreement.
                   publicly-owned or slated for acquisition as
                   parkland or open space, which provides                    The northwestern section of Staten Island is
                   added protection.                                         blanketed with an interlocking network of
                                                                             creeks, tidal and freshwater wetlands, swamps
                       Fresh Kills includes the William T. Davis             and marshes. From north to south, they in-
                       Wildlife Refuge (part of the Staten Island            clude: Mariner's Marsh, a fragile complex of
                       Greenbelt) and other open water and                   freshwater marshes and ponds, meadows,
                       wetland areas. The 260-acre wildlife                  woods and streams near the Arlington Yards;
                       refuge sustains more than 100 different               Graniteville Swamp, a mostly privately owned
                       species of birds. The former Mohlenhoff               intact swamp forest north of the Staten Island

                   42








                  MAP 3.7
                                                   Bridge
                                                    Creek

                                                                                                                        :j:j.
                                                                              . . . . . . . .......                        ......
                                                                                                                        . . ........
                                                                                                 . ..... .....
                                                                                                 .. ...... ..

                                                   .. ...                                           ...
                                                                                                                   a  a
                                     Old Place                                 Madner's
                                                                                Marsh
                                       Creek                                            W
                                                                                                   rail line
                                                                     a     so
                                                                                        Goethals
                                                                                     Bridge Pond

                                 GuffpDrt                                              Graniteville
                                 Marsh                                                    Swamp

                                                     -ab-




                                                                                               A


                                                                                                            Expressway
                                                        7
                                      Pral
                                     is a

                                                                                           Staten
                    New                             .::j.                                  Island
                                                                                          Teleport
                   Jersey
                                                 ......                     -Wb-





                               Nock
                               Creek
                                                                                       Davis
                                                                     . ................ Wildlife
                                                                                       Refuge


                                                                                                            Staten
                                                                                                             Island

                                      ..... ......
                                             ..........


                                                                ....       Fresh
                                                                            Kills







                                        MILE


              Staten Island Special Natural Waterfront Area
                                                                                                                    ho







                                                                                                                    Oueem
                       wetlands                                      open water

                       shrub grasslands woods                        highway

                       proposed Significant Coastal       . . . .    rail line
               bold    Fish & Widilife Habitat
               name




              Comprehensive Waterfront Plan               NYC Department of City Planning             Natural Waterfront










                                                                            eventually drains into Saw Mill and Old Place
                                                                            Creeks. Development intruding into these
                                                                            areas could subject the marshes of Old Place
                                                                            Creek and Saw Mill Creek to spring floods,
                                                                            lower summer water levels and increased
                                                                            pollution.

                                                                            The Howland Hook Container Port and other
                                                                            inactive or underutilized industrial facilities
                                                                            occupy the northernmost portion of this
                                                                            special Natural Waterfront Area, and contain
                                                                            both fresh and tidal wetlands.

                                                                            Strategy for the Staten Island Special
                                                                            Natural Waterfront Area
                                                                            An array of zoning regulations, environmental
                                                                            regulations and land acquisition programs
                                                                            provide a remarkable level of protection for
                                                                            natural features in most of Staten Island. In
                                                                            these areas, the strategy focuses on continued
                                                                            implementation of existing and planned pro-
                                                                            grams. (See Appendix A, Summary of Reach
                                                                            Recommendations for South Shore and Arthur
                                                                            Kill South.) Only in the Harbor Herons Com-
                                                                            plex is a more integrated approach necessary
                                                                            to ensure adequate protection and manage-
                  Howland Hook cargo cranes, Staten Island                  ment of its unique resources.

                  Expressway; Old Place Creek, a drainage outlet                The city should explore the establishment
                  for an extensive watershed and a feeding                      of a natural resource management and
                  ground for egrets and other wading birds;                     research program for the Northern Arthur
                  Gulfport Marsh surrounded by an enormous                      Kill area. Various state and federal fund-
                  oil tank farm; Neck Creek, a highly productive                ing sources should be examined. The
                  tidal and freshwater marsh complex and forag-                 rare mix of active maritime uses and
                  ing link between Prall's Island and the Davies                industry in this large and varied ecosys-
                  Wildlife Refuge; and Isle of Meadows at the                   tem creates a unique opportunity for
                  mouth of Fresh Creek south of the landfill, a                 coordinating best management practices
                  rookery for several species of wading birds.                  with resource protection and economic
                                                                                development.
                  Staten Island Corporate Park (SICP) is part of                As proposed in the Harbor Herons Re-
                  the watershed that drains into Old Place Creek                port, the city should continue active
                  and Saw Mill Creek. The southern portion of                   efforts to acquire land in the areas rec-
                  the park, occupied by Teleport, contains signif-              ommended. The acquired land, together
                  icant wetlands and cattail marshes. Large areas               with the most sensitive portions of city-
                  of swamp forest containing rare plant species                 owned property, including adequate
                  surround the marshes. At one time subject to                  upland buffers, should be transferred
                  frequent dumping, the wetlands are currently                  to DPR or sold to private land trusts
                  fenced off for protection. The SICP wetlands                  for care.
                  help control flooding and filter water that


                  44









                     ï¿½  Development of city-owned property in                 The shores of northern Queens and southeast-
                        environmentally sensitive areas should be             ern Bronx are lined by inlets and coves sur-
                        guided by "significant site" controls im-             rounded by wetlands. The rocky intertidal
                        posed prior to disposition. Site Planning             shoreline is a geological extension of the New
                        guidelines would be developed by DCP                  England Coast and provides a habitat type rare
                        in consultation with DPR, DEP and                     in New York State. Fragments of once exten-
                        other affected agencies                               sive swamp forest are scattered in Udalls Cove
                     ï¿½  The Department of City Planning should                and Alley Pond Park in Queens and along the
                        examine the suitability of land use con-              mouths of the Bronx and Hutchinson rivers in
                        trols to guide industrial development on              the Bronx. In addition to its habitat value, this
                        private land in a manner that protects                special area offers a natural setting of scenic
                        drainage corridors and natural features.              and recreational value, providing opportunities
                     ï¿½  DEP and DCP should work with the Soil                 for swimming, fishing, boating and wildlife
                        and Water Conservation Board to devel-                observation. (Map 3.8.)
                        op buffer and non-point runoff guide-                 Like those in Jamaica Bay and Staten Island,
                        lines for the Staten Island Special Natural
                        Waterfront Area. Guidelines should be                 this Special Natural Area is characterized by
                        incorporated into WRP policies and, if                extensive stretches of mapped parkland, in-
                        appropriate, into other city regulations.             cluding Pelham Bay, Soundview, Ferry Point
                                                                              and Pugsley's Creek parks in the Bronx and
                     Long Island Sound/Upper East River                       Alley Pond, Udall's Cove and Little Bay parks
                     Special Natural Area                                     in Queens. The remaining shoreline is mostly
                     The north shore of Queens and the southeast-             lower-density residential with industrial uses
                     ern shore of the Bronx along the upper East              concentrated in College Point and scattered
                     River and Long Island Sound have a concen-               elsewhere.
                     tration of natural features including tidal
                     wetlands, estuarine rivers, bays and lagoons             In spite of extensive land filling, small pockets
                     that warrant designation as the city's third             of tidal wetlands remain along the Queens
                     Special Natural Waterfront Area. This portion            shoreline near College Point, along Fort Tot-
                     of the city's waterfront has regional signifi-           ten, and along the eastern edge of the Cross
                     cance because Long Island Sound extends                  Island Parkway. There are also some freshwater
                     eastward along the coasts of Connecticut and             wetlands in Alley Pond Park.
                     Nassau and Suffolk counties.

















                                             wm@





                     Pelham Bay Park shoreline


                                                                                                                              45







                      MAP 3.8
                                                                                                                               0%
                                                                                 Hutchinson
                                                                                                              Kj.
                                                                                                   13
                                                                                                                                                                        *K*K
                                                                                         River
                                                                                                                                       X.
                                                                                                              -0.k .. 0.@


                                                                                                                                       ..............
                                                                                                                                X
                                                                                                                                  OM

                                                                                                                                                       ............
                                                                                       Pelham
                                                                                          Bay                                            . . ....
                                                                                       Landfill    V1101R.
                                                                                                                   .............





                                           Bronx
                                            River    P
                                                                     Westchester
                                                                                                                                                                                         . ...... ................ .......
                                                                              Creek


                                                                                                  1/4"k
                                                                                                                                    . . . . ...... . . .


                                             Soundvi
                                                                                 YF@
                                                      Park







                         ..................

                     .....                                                                                                          ......
                                        r-South
                          BrothA

                                       ............... ...
                                       ..............
                                                                                                              0 ell's
                                       .................
                                                                                                                                                                                                          Nassau
                                                                                                           Cove                                                                                           County
                                       ..........



                                                                                                                                                                      K
                                                                                                                                             Alley
                                                                                                                                                                               Udalls
                                                                                     ... .                                                   Pond
                                                                                                                                              Park                                 Cove
                                                   Flushing
                                                                                                                                                            . .......              & Ravine
                                            Bay & Creek
                                                                             X.I. K.-


                                                                                                                                                                Alley
                                                                                                                                                               Pond
                                                                                                                                                                Park

                                                                   Flushing
                                                                 .Meadows-                           Meadow Lake
                                                                                           Z.
                                                                    Corona                                    and
                                                                      Park                             Willow Lake


                                         I MILE



               Long Island Sound Special Natural Waterfront Area
                                                                                                                                                                                                            The




                                       major waterfront park                                                           wetlands                                                  ..      .........
                                                                                                                                                                                                                ou"M

                                                                                                                                                                               ... .. .......
                                                                                                                                                                                                Brook"
               bold name               proposed Significant Coastal                                                    waterway targeted for
                                       Fish & Wildlife Habitat                                                         CSO abatement                                           StMen
                                                                                                                                                                               151
                                                                                                                                                                                                                  ............. ...


                                                                                                                                                                                                                . . . . .....
                                                                                                                                                                                            .. . . ..........    . ...... .....


                                                                                                                                                                                                . .......... . .


               Comprehensive Waterfront Plan                                                       NYC Department of City Planning                                                 Natural Waterfront









                     Tidal wetlands as well as important upland                      left along the Queens side of the Long
                     habitat in the Bronx are concentrated in                        Island Sound, providing habitat for nu-
                     Pelham Bay Park along Goose Creek Marsh on                      merous species of water and wading
                     the Hutchinson River.                                           birds. Most of this area is owned by
                     This section of the waterfront contains only                    New York State and the city. All pub-
                     one beach; Orchard Beach is a manmade                           licly owned land is managed by DPR
                     facility developed in the 1930s. However,                       under a license agreement with DEC.
                     degraded water quality threatens its integrity.                 The proposed Coastal Fish and Wildlife
                     The Pelham Bay landfill, closed in 1978, is a                   Habitat for this area encompasses ap-
                     primary source of polluting leachate. DEP is                    proximately 120 acres of tidal shallows
                     developing an abatement program to reduce                       and undeveloped upland areas.
                     landfill leachate.
                                                                                0    Meadow and Willow Lakes in Flushing
                     Six of the 15 proposed Significant Coastal Fish                 Meadows Corona Park are one of the
                     and Wildlife Habitats are located within the                    largest expanses of freshwater in New
                     East River/Long Island Sound area. Four of the                  York City. Meadow Lake is approximate-
                     six - Meadow and Willow Lakes, Little Neck                      ly 100 acres; Willow Lake is approxi-
                     Bay, Alley Pond Park and Udalls Cove - are                      mately 40 acres. Willow Lake provides a
                     in Queens. Two, Pelham Bay Park Wetlands                        combination of wildlife habitats rarely
                     and North and South Brother Islands, are                        found in the metropolitan area and both
                     located in the Bronx.                                           lakes support a relatively productive
                     ï¿½   Little Neck Bay, located between Fort                       warm weather fishery.
                         Totten and Little Neck, comprises ap-                  0    Pelham Bay Park, the city's largest green
                         proximately 1,400 acres. This open water
                         fish and wildlife habitat extends to                        space, contains natural areas that sup-
                         Willets Point on the west and the village                   port a wide variety of plant and animal
                         of Kings Point on the east. It is one of                    life. The park is edged by extensive
                         five major waterfowl wintering areas on                     coastal wetlands; 661 of the park's 2,764
                         Long Island's north shore, and a produc-                    acres are under water. Along its 13
                         tive area for finfish and shellfish.                        miles of shore are 195 acres of salt wa-
                     ï¿½   Alley Pond Park, located at the southern                    ter marsh and 161 acres of salt flat. The
                         end of Little Neck Bay, is one of the few                   489-acre Thomas Pell Wildlife Sanctu-
                         parks in New York City offering both                        ary, which includes Goose Creek Marsh,
                         active recreation and a natural setting of                  supports wading birds such as herons
                         wetlands and wildlife habitat. The 654-                     and cormorants.
                         acre park contains forests, several ponds,             0    North and South Brother Islands are
                         salt marshes and Alley Creek, which is                      located just outside the Special Area in
                         one of the few undisturbed marsh sys-                       the East River west of Riker's Island.
                         tems in the city. The Grand Central                         South Brother Island is approximately
                         Parkway, Long island Expressway, North-
                         ern Boulevard, Cross island Parkway and                     10 acres in size, uninhabitated, rocky
                         the Long Island Railroad traverse the                       and wooded; North Brother island is
                         park, severely limiting the ranges of                       15 acres in size, with a mix of aban-
                         reptiles, amphibians and mammals.                           doned buildings and deciduous woods.
                     ï¿½   Udalls Cove and Ravine, in the north-                       Both islands are city-owned and togeth-
                         eastern corner of Queens includes one of                    er they comprise one of the three largest
                         the last undeveloped tidal salt marshes                     waterbird rookeries in the region.

                                                                                                                                 47





















                                                                          pm








                                                                                            . . . . . . . . . . . .









                     . . ... . .











                                                                 ...... . ..

                                                                . . . . . . . . . .




                 Wetlands at Hammond Cove, the Bronx



                 Many of the natural features in this area are            outfall. DPR has proposed a waterfront park at
                 protected by DEC wetland regulations, their              the eastern end of Powell's Cove and has
                 location in public parks and the proposed                obtained 1986 Environmental Quality Bond
                 Significant Coastal Fish and Wildlife Desig-             Act funds to purchase private parcels. With
                 nations. In addition, the Fort Totten Special            proper planning, the site could support both a
                 Natural Area District is mapped near the                 waterfront park and natural conservation areas.
                 mouth of Little Neck Bay. It was mapped to
                 facilitate the orderly redevelopment and proper          The city-owned Soundview Lagoons in the
                 use of the land in the event that the federal            Bronx are salt marshes between Soundview
                 government disposed of the property. Its                 Park and the Harding Park neighborhood that
                 natural resources include wetlands, forested             support various water birds and marine life.
                 areas, historic sites and the steep rocky shore-         The recently upgraded sewer system in Har-
                 line. The district protects them through estab-          ding Park has greatly improved the water
                 lished development guidelines for review of              quality in the lagoons and may allow for the
                 land use actions.                                        creation of new wetlands. Hammond Cove,
                                                                          also known as Locust Point Harbor, has an
                 Powell's Cove, located in the northern portion           intertidal marsh on its west shore and a nar-
                 of College Point, covers approximately 31 acres          row band of intertidal marsh and a triangle of
                 of private and publicly owned land; 16 acres             high marsh on the east shore. Mapped but
                 are under water. The shoreline contains tidal            unbuilt city streets traverse the wetlands.
                 wetlands that appear to be in good condition
                 but may be affected by discharge from two
                 combined sewer overflows and a storm drain



                 48









                   Strategy for Long Island Sound/                        0    The mapped but unbuilt streets travers-
                   Upper East River Special Natural                            ing the Hammond Cove wetlands in the
                   Waterfront Area                                             Bronx should be dernapped.
                   The issues affecting natural areas in this sec-         M   DPR should develop a wetlands resto-
                   tion of the city are typical of an urban envi-              ration and management plan for the
                   ronment. They include degraded water quality                city-owned Soundview Lagoons and
                   caused by oil spills, leachate from closed                  incorporate them into Soundview Park.
                   landfills, combined sewer discharge and run-            M   DEP should finalize and begin imple-
                   off from adjacent developed areas. Combined                 mentation of a containment program
                   sewer discharge is of particular concern in the             for the Pelham Bay landfill, including
                   Flushing Bay and River where 14 combined                    consideration of innovative techniques
                   sewer outfalls spill 60 million gallons or more             such as using man-made wetlands to
                   of wastewater during an average rainstorm.                  filter leachate.
                   Cleaning up these sources of pollution and
                   providing undeveloped upland buffers are
                   effective ways of protecting these natural
                   resources.


                   ï¿½   The city should transfer the most sensi-
                       tive city-owned portions of Powell's
                       Cove, including wetlands, water areas
                       and adequate upland buffers, to DPR
                       for preservation as coastal fish and
                       wildlife habitats. Waterfront park devel-
                       opment would be appropriate on the
                       remaining upland portions of the site
                       provided that there is adequate protec-
                       tion from runoff.

                   ï¿½   A portion of land on the eastern side of
                       Udalls Cove and in the Ravine should
                       be acquired and transferred to DPR.

                   ï¿½   City, state, and federal agencies should
                       develop buffer and non-point runoff
                       guidelines for development near signif-
                       icant natural features in the Long Island
                       Sound/East River Special Waterfront
                       Area. The guidelines, developed pursu-
                       ant to the federal 6217 program, would
                       be incorporated into WRP policies.

                   ï¿½   Under the auspices of the Flushing Bay
                       Task Force, city agencies should work
                       with the Port Authority to develop envi-
                       ronmental controls and mitigation strat-
                       egies to improve water quality in the
                       bay, while permitting necessary safety
                       and other operational improvements at
                       La Guardia Airport.


                                                                                                                       49

































                                                                                                                                                                                        ss:






















                                                                                                                                                                                                                                     . .... . .........









                                                                                                                                                                       ssoi







                                 THE PUBLIC WATERFRONT


                    Waterfront views and easy access to the water-             Today, the balance between commerce and
                    side for recreation and relaxation are eagerly             public access is shifting. With the decline of
                    sought amenities in cities everywhere. New                 the city's manufacturing base, the shipping
                    York City is fortunate to have a vast, unique              industry in particular, new economic uses of
                    system of public parks that covers more than               waterfront land are emerging. Most are com-
                    40 percent of its shoreline. A Sunday afternoon            patible with and often are enhanced by public
                    picnic in Pelham Bay Park, a swim in the                   spaces and activities.
                    Atlantic, an evening jog along the East River
                    Esplanade, and a view of the harbor from the               An overriding principle of this waterfront
                    Brooklyn Heights Promenade are among the                   plan is to re-establish the public's connection
                    most inviting experiences New York City offers             to the waterfront by creating new opportuni-
                    its residents and visitors.                                ties for visual, physical and recreational
                                                                               access. This goal can be realized in various
                    Against this remarkable backdrop, there is                 ways: by extending and improving a network
                    another legacy - undeveloped waterfront                    of public spaces through parks, street ends
                    parkland, derelict harborfronts, and unevenly              and numerous publicly owned properties
                    distributed waterfront access opportunities that           along the shoreline; and by enhancing and
                    have left many of the city's communities with              connecting these spaces with public access
                    little or no connection to the water's edge.               along the waterfront on private properties
                                                                               where compatible redevelopment is taking
                    The west side of Manhattan south of River-                 place. Consequently, the plan for the Public
                    side Park, once a bustling shipping hub                    Waterfront seeks to:
                    lined with piers, has become a virtual no-
                    man's-land of rotting piles and parking lots,              E    identify opportunities for improved
                    cut off by highway traffic from densely                         linkages to and along the waterfront;
                    populated upland communities. Vacant but                   E    ensure high quality public spaces at the
                    inaccessible waterfrontage, which once was
                    port-related, lines much of the Queens and                      water's edge by establishing design
                    Brooklyn East River shoreline. Even where                       guidelines;
                    there is waterfront parkland - along the                   E    encourage publicly oriented water-
                    Cross Island Parkway in Queens or                               front-dependent and waterfront-
                    Brooklyn's Shore Parkway, for example -                         enhancing uses;
                    major transportation corridors often sepa-
                    rate neighborhoods from the water's edge.                  0    preserve and enhance visual corridors
                    The conflict between developing the water-                      from the upland to the waterfront and
                    front for commerce and developing it for                        special views seen from the water's edge;
                    public use has been with us since 1811 when                N    retain and expand recreational oppor-
                    the plan for Manhattan was laid out. Com-                       tunities that are enhanced by a water-
                    mercial use, considered incompatible with                       front location; and
                    recreation, was given clear preference. Later,
                    in 1835, in a discussion about the potential               0    plan for the development and
                    development of Stuyvesant Cove for a park,                      future maintenance of the public
                    it was argued that it would be a waste of "a                    waterfront.
                    great front for shipping on the East River."


                                                                                                                                51









                  THE EXISTING PUBLIC                                        New York City is more fortunate than many
                  WATERFRONT                                                 other cities planning for renewal of their
                                                                             waterfronts because so much of its shoreline is
                  The publicly accessible waterfront comes in                in public ownership, mostly parkland. Some
                  many forms. it may be a continuous linear                  parts of the waterfront are easily accessible.
                  corridor along the water's edge for hiking,                Other parts are difficult to reach because they
                  strolling or cycling, from a highly urban espla-           are far from population centers or separated
                  nade like the one at Battery Park City to a                by topographical or land use barriers. The
                  simple trail along the Bronx River or northern             extent to which the waterfront is used by the
                  Queens shoreline. Public access may also be                public depends upon its accessibility and
                  11point access" - a path that takes people to              physical characteristics, and the density of
                  the water, most often a street that ends at a              adjacent communities.
                  pier or small sitting area. It may be a recre-             To plan for the extension and enhancement of
                  ational hub that capitalizes on a waterfront               the public waterfront, it is important to under-
                  location or, where direct access is not possible,          stand its distribution, its relation to population
                  a vista or visual corridor that provides a broad           density, the locations of water-related recre-
                  panoramic view over the water or a more                    ational activities, and the problems and oppor-
                  fleeting glimpse of open sky and water from a              tunities associated with waterfront     access in
                  street or public way.                                      each borough.











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                                                                                                             4




                                                                                   .......... . .


                                                                                       . . . . .. ..
                  Fishingfrom a rip-rap shoreline, Brooklyn

                  52











                  THE BRoNx
                  Northeastern Bronx enjoys a rich and varied
                  public waterfront with extensive views and
                  many opportunities to get to the water. Most
                  of the population in the Bronx, however, is
                  concentrated in the western and southwestern
                  sections where the waterfront is dominated by
                  industry (the South Bronx) or rendered inac-
                  cessible by the steep slopes and transportation
                  corridors next to the Harlem and Hudson
                  rivers. (Map 4.0.)
                                                                                                       ..... .. .. ..
                  The East Bronx,    from Pelham Bay Park to
                  Soundview Park,     is well served with 3,421
                                                                                                                    . . . . . . . . . . . . .
                  acres of mapped parkland covering more than                         'it
                  20 linear miles of waterfront, although much
                  of it is undeveloped. The northernmost park,

                                                                                               M
                  Pelham Bay, which includes Orchard Beach,
                  is separated from Co-op City by the
                  Hutchinson River, and local access points to
                  the park are limited. City Island, a major
                  boating center, is connected by a bridge to
                  the mainland at Pelham Bay Park.                         Orchard Beach, Bronx

                  From Pelham Bay Park to the Soundview                    ational facilities, is close to the Bronx shore-
                  peninsula, the protected waters of Eastchester           line, but the only public connection is via the
                  Bay and the East River support numerous                  Triborough Bridge, more than a half mile
                  boating facilities. Low-density residential              from the nearest residential area.
                  communities between Pelham Bay Park and
                  Ferry Point Park can reach the waterfront                Transportation corridors and steep slopes
                  only at a few street ends and at a neighbor-             create barriers to the waterfront for upland
                  hood  .park. Population density increases on             communities along the entire length of the
                  the Soundview peninsula where much of the                Harlem River. A notable exception is Roberto
                  acreage along the waterfront is either unde-             Clemente State Park which has a waterfront
                  veloped park or in its natural state.                    esplanade.

                  West of the Bronx River and along the                    The 97-acre Riverdale Park extends along
                  Harlem River, shoreline land use changes to              most of the Bronx portion of the Hudson
                  industrial with limited public open space,               River but offers only visual access to the
                  except for a few mostly undeveloped street               water because active railroad tracks intervene
                  ends. Industrial uses, the railroad and the              along the shore. The upland Riverdale com-
                  Bruckner Expressway make this section of the             munity is low-density residential and is well
                  waterfront difficult to reach. The upland                served by open space.
                                                                                5
                                                                              I'll @",l
                                                                              I ... I.... .







































                  communities in this part of the Bronx are
                  among the least served by open space in the
                  city. Randalls Island, with extensive recre-


                                                                                                                          53










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                                                                                                                                                                                                                                                                                                                 Existing Waterfront Public Access / The Bronx




                                                                                                                                                                                                                                                                                                                 @existing continuous or general public access@existing point access
                                                                                                                                                                                                                                                                                                                 (including bridges with pedestrian access)
                                                                                                                                                                                                                                                                                                                 '!'!'!'"* upland extent of major waterfront park ----------- significant barrier (highway, rail, slope, etc.)
                                                                                                                                                                                                                                                                                                                 ..:-'.-'I'.-'.---'. [email protected]..
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                                                                                                                                                                                                                                                                                                                 Comprehensive Waterfront Plan / NYC Department of City Planning / Public Waterfront























                                            '100,








                                                                                          M,


                    D








                   East River piers, lower Manhattan


                   MANHATTAN

                   Much of the waterfront in Manhattan is                  ties. However, barriers such as steep slopes,
                   publicly owned but, as in the other bor-                the railroad on the Hudson River, and the
                   oughs, recreation areas are unevenly distrib-           Harlem River Drive limit direct access to
                   uted. Lower Manhattan has no extended                   the waterfront.
                   linear waterfront parklands (except for East
                   River Park) because it was first developed as           Although the borough is encircled by arterial
                   a commercial seaport. It does, however, con-            highways, it has long stretches of esplanade
                   tain several unconnected public waterfront              that link many of the waterfront parks. The
                   spaces that are unsurpassed in historical sig-          East River Esplanade runs continuously from
                   nificance and the variety of experiences offered        East 60th Street to East 125th Street, and
                   to the public: South Street Seaport, Battery            small sections have been completed farther
                   Park, Battery Park City Esplanade and the               south. The Battery Park City Esplanade will
                   recently completed North Park, and the                  soon connect to Battery Park and the planned
                   national parks at Ellis Island and the Statue           visitor's center on Pier A, part of the city's
                   of Liberty. (Map 4. 1.)                                 Harbor Park system. (The other Harbor
                                                                           Parks, part of the state's Urban Cultural Parks
                   The northern end of the island, on the other            Program, are the Snug Harbor Cultural Cen-
                   hand, is almost entirely ringed by waterfront           ter in Staten Island, Fulton Ferry Park in
                   parks: Riverside, Fort Washington, Inwood               Brooklyn and Liberty and Ellis Islands.)
                   Hill and Highbridge. These quite remark-                Major proposals along the west side offer the
                   able linear parks provide much of the open              promise of an almost continuous route along
                   space for the nearby residential communi-               the Hudson River shoreline.


                                                                                                                          55










                                                                                                                                                 Inwood
                                                                                                                                                    Hill
                            MAP 4.1
                                                                                                                                                   P"



                                                                                                                                                            ........... ..

                                                                                                                                                                                      M:
                                                                                                                                                                                                                                      The
                                                                                                                                                      .... ... ...                                                                  BronK
                                                                                                                                                                                f              Harlem
                                                                                                                                                                                                 River
                                                                                                                       Riverbank                                                               Driveway
                                                                                                                           State
                                                                                                                           park








                                                                                                                               .............
                                                                                                                                                                                        Randalls
                                                                                                                                                                                          Island
                                                                                                                                                                                ....                            ...........
                                                                                                                                                                                            P
                                                                                                                                                                                                          ..........

                                                                                                                                                                                b


                                                                                                                                                                                                      ...............
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                                                                                                                           . . . . . .                                                              ........
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                                                                                                                                                                                                                                 ..........
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                                                                                                                 .......                                              ....                  ....
                                                                                                                                                                                                                         . ......        . .. ...
                                                                                                                                                                                                                       .................

                                                                                                                                                                                                                      .......... .  .. ...........
                                                                                                                                                                            .......                                        ......
                                                                                                                                                            A                                  Wards
                                                                                              .. ........                                                                                      Island
                                                                                                                                                                                   Cad         Park
                                                                                                                                                                                Schurz
                                                                                      ............ ......
                                                                                      ...................
                                                                                                                                                                                   park
                                                                                           .............
                                                                                      ...............
                                                                                                ...                                              .....  .......
                                                                                           ......                                                .....  .......
                                                                                                                                                                        Roosevelt
                                                                                                                                                 ..........
                                                                                                                                                                           Island





                                                                                                                                                                                                                   OUGens
                                                       gangly
                                                         PEA
                                                                       .............
                                                                                                                       East
                                                         city
                                                                                                                       River
                                                                                                                       Park
                                                                                           ftttely


                                                                                                               . .... ......................
                                                                                                                                 ..........

                                                ...          . ... .......
                                              .... ..                                         ..............
                                                                            .............
                                                                               ..........
                                                                                             .................
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                                                                                   ......... . . . . . . ...............
                                                                                        ..........
                                                                                                  ............
                                                                                                             SouthSt.
                                                                                                                                                 BrookJyn
                                                                                                       ...    SaaPort
                                    ........      ...... .
                                                                                              ...........
                                                                                              ..........
                                     ....... ....
                                                                                           ............
                                                              .. .. ..      . . .. ............


                        Existing Waterfront Public Access                                                                                                     Manhattan



                                                    existing continuous or general access                                                                                       existing point access
                                                    (including bridges with pedestrian access
                                                    and Roosevelt Island tramway)

                                                    upland extent of major waterfront park                                                          - - - - - - -               significant barrier (highway, rail, slope, etc.)




                      Comprehensive Waterfront Plan / NYC Department of City Planning / Public Waterfront









                  Visual access to the water in Manhattan is               BROOKLYN-QUEENS
                  possible at many locations because the street
                  grid and topography provide many streets                 The Brooklyn-Queens shoreline is the longest
                  with water views and grade-level access to the           continuous stretch of waterfront in the city
                  water's edge.                                            and serves many communities. The most
                  The Roosevelt Island open space plan pro-                common barriers to the waterfront are high-
                  vides considerable waterfront open space, a              ways and industrial or municipal uses such as
                  waterfront esplanade, and water views from               utility and water pollution control plants.
                  the developed northern section. The southern             (Maps 4.2 and 4.3.)
                  part of the island contains much undeveloped             Northeastern Queens has an abundance of
                  open space with great potential for waterfront           public open space, including an esplanade
                  activities. Here, the aerial tram offers spectac-        on the west shore of Little Neck Bay along
                  ular views of the river and skyline, as do the           the Cross Island Parkway. Farther west,
                  many East River bridges.                                 Flushing Meadow/Corona Park, a 1,257-acre
                  Randalls/Wards Island contains many recre-               regional facility, has a waterfront prome-
                  ational facilities and an opportunity for more.          nade separated from the rest of the park by
                  Access to the island is difficult, however,              an arterial roadway.
                  which limits its use.
































                                  . . . . . . . . . . .














                  Socrates Sculpture Park, Queens


                                                                                                                           57
























                                                                        ..........












                                                                                       MOW
                                                   -Alk











                                                                                   Afel
                  Shore Parkway esplanade and bikeway, Brooklyn


                  From Flushing Meadow/Corona Park west-                    Owls Head Park, overlooking the harbor, is
                  ward to Astoria Park, the northern shoreline              the northern terminus of the Shore Parkway
                  is dominated by La Guardia Airport and                    esplanade and bicycle path, which extends
                  industrial uses; access to the waterfront is              just over four miles to Bensonhurst Park.
                  extremely limited. Astoria Park and several               Several highway overpasses provide access to
                  others with esplanades afford magnificent                 this important waterfront resource. Dreier
                  views of the East River and Hell Gate. From               Offerman Park and Coney Island Boat Basin
                  the Queensborough Bridge to the Brooklyn                  have some playing fields, but large portions
                  border, there is limited access to the water-             of the park remain unimproved.
                  front because of its current use as industrial            Coney Island's famous beaches and boardwalk
                  land. This situation could change dramatically            are heavily used public open spaces of region-
                  with the redevelopment approved for                       al and local significance. An esplanade runs
                  Hunter's Point and the RAK Tennis Club site,              along much of Sheepshead Bay, a major
                  both of which would provide public access.                commercial and recreational boating center.
                  From the Brooklyn boundary at Newtown                     The public waterfront along Jamaica Bay is a
                  Creek south to Owls Head, access is limited               mix of street ends and city, state and federal
                  by major roadways and industrial areas.                   parkland. The bay's numerous small islands,
                  Densely populated upland communities have                 meadows and marshes are protected on the
                  few opportunities to enjoy the water. Empire              south by the Rockaway Peninsula. Although
                  Stores State Park (Fulton Ferry) between the              the sensitive ecosystems of Jamaica Bay gener-
                  Brooklyn and Manhattan bridges is the only                ally restrict public access, the National Park
                  sizable park directly on the waterfront, but it           Service is rehabilitating the Canarsie Pier for
                  is underutilized because of its distance from             recreational use. Rockaway's Atlantic beach-
                  residential communities. The Brooklyn Bridge              front offers magnificent white sand bathing
                  pedestrian walk and the Brooklyn Heights                  beaches and a public boardwalk. The waters
                  Promenade are well used local amenities and               of the bay are a major regional fishing and
                  tourist attractions.                                      recreational boating resource.

                  58











                                                                                                                                       ..                                 .........

                                                                                                                              . ...........
                                                                                                                             ............. .                              .........
                                                                                                                        ..... ..................
                                                                                                                             .................                            ...........
                                                                                                                              . . .........                                             . .....
                                                                                                                   ..... .. .
                                                                                                    ... .....
                          MA                   2
                                                                                               .. . ...........
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                                                                                                                        :X..                                              .....
                                                                                                . .........                    Frands                                     .........
                                                                                                                                                                          ..............
                                                                                                                                Lewis
                                                                                                                                Park            cross
                                                                                toda                                                            Island

                                          IN,
                                                           #wz Rainey Park
                                                                                                                                                                          . . . . . . . . . .@:-ximix:x.
                                                     "S'      Oueensbridge
                                                                    Park                           f7ushing
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                                                                                                  Meadows
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                                               Brooklyn


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                                                                                                                             ................


                       Existing Waterfront Public Access                                                                           Queens


                                                    existing continuous or general                                                                                        existing point access
                                                    public access
                        N=                          upland extent of major                                                         ------------                           significant barrier
                                                    waterfront park                                                                                                       (highway, rail, slope, etc.)




                       Comprehensive Waterfront Plan                                               NYC Department of City Planning                                           Public Waterfront







                        MAP 4.3



                                                                             Manhattan



                            New                                                                    ...........
                          Jersey
                                                                                                                                                                     Oueens





                                                                                        Ernpire   FL41on
                                                                                        Ferry State Park
                                                                       Brooklyn Hts.
                                                                         Esplanade
                                                                       (visual access)











                                                                                                                                                                           -.A
                                                                            Sunset Park
                                                       ead
                                                                          (visual access)
                                                     Park                                                                                                                            . ........ .
                                                                                                                                            Canarsie
                                                                                                                                          Beach & Pier
                                                                                                                                                                                     . .........
                                                                                                                                                                                     I ....     . ....
                                                                                                                                                                                   .. . ......
                                                                                                                                                                                   ............ ....    ...
                                                    Share
                                                                                                                                             (GNRA)
                                                  Parkway                                                                                            ...::.S.A
                                                                Dyker                                                       Royd
                                                               Beach                                                      Bennett              . . . . . . . . . . . . . . . . . . . . .
                                                                                                                                                ... ......
                                                                 Park                                                       Field
                             .......... ...
                                                          :.- ': -1Z                                                      (GNRA)
                   S.).              ......
                                                                                                               Marine
                                                                                                                                                                           ............
                                                                                                                Par*
                                                                         sonhurst
                                                                                                                                               ... ..........
                                                                        Park


                                                                                                                         .... .. .... ..
                                                                              Dreier
                                                                             Offerman
                                                                                                                                                                                   ...            ... ........
                                                                                Par*
                                                                       ... ...... .

                                                                                                                                                - ----                           ........
                                                                                        Coney
                                                                                        Island
                                                                                                               7    1 ...
                                                                                                                                                                .. ...........

                                                                                                                                                       ...........
                                                                                                                                                      .. ...........
                                                                             ..........
                                 ...........                           ................ ... .
                       .............                                   .. ...........                            ... ...                                                           ...              .........
                                                                       ..........  .......... ....             ......                                  ....
                                                                       ..... ....... .... .



                                    . . .........


                 Existing Waterfront Public Access                                                                       Brooklyn



                                       existing continuous or general access                                                            existing point access

                                       upland extent of major waterfront park                                  --------------           significant barrier
                                                                                                                                      1@







































                                                                                                                                        (highway, rail, slope, etc.)





                  Comprehensive Waterfront Plan / NYC Department of City Planning / Public Waterfront









                    STATEN ISLAND                                                The waterfront from Great Kills south to
                                                                                 Conference House Park, which extends more
                    Staten Island's extensive public waterfront is               than two miles along the waterfront at the
                    on the south shore of the island; the northern               southern tip of the island, is relatively undevel-
                    and western shores are largely inaccessible.                 oped and natural in character, Public access is
                    (Map 4.4.)                                                   limited from Conference House Park north
                                                                                 along the western shore. The Arthur Kill
                    Along the   north shore, from Snug Harbor to                 shoreline north of the Outerbridge Crossing is
                    Fort Wadsworth, there is limited public access               both industrial and remote. Although most of
                    to the waterfront because of barriers formed                 this area is zoned for manufacturing, much of
                    by rail lines and grade changes. However, three              it is in a natural state supporting valuable
                    of the city's most dramatic waterfront parks                 wetlands and intertidal habitat. In general, this
                    are located along this section: Alice Austen                 shoreline does not provide public access, and
                    and Von Briesen parks and the Snug Harbor                    the upland is sparsely populated.
                    Cultural Center. South of Fort Wadsworth,                    The Kill Van Kull shoreline is industrial. Public
                    continuous public beaches line the waterfront                access is limited, but unlike the Arthur Kill, it is
                    down to Great Kills, which is part of Gateway                adjacent to residential communities. Faber Park,
                    National Recreational Area. Great Kills and                  serving the Port Richmond community, has
                    Lemon Creek accommodate most of the mari-                    recently been renovated and includes a swim-
                    nas and yacht clubs in Staten Island.                        ming pool and public esplanade,























                                                                                                           . . . . . . . . . . . . . .



                                                            @7771, ,4










                    Sailing off Conference House Park, Staten Island


                                                                                                                                    61








                                                                                                                                                                               ..........

                          MAP 4.4

                                                                                                                               ..........




                                                                                                                                                     ...... . . . .



                                                                                                                                                                                    No
                                                                                                                                                                                   Shore
                                                                                                                                     Faber                      sailors         Esplanade
                                                                                                                                                                                                    .........
                                                                                                                                                                 Snug
                                                                                                                                     Par*
                                                                                                                                                                                                 ...........
                                                                                                                                                                Harbor

                                                                                                                                                                                                               . ..........
                                                                               ...........                                                                                                                  .....


                                                                                ........                                                                                                                 ...

                                                                                                                                                                            Alice Austen Park
                                                                                ........  .....
                                                                                ......  .....
                                                                                                               William T. Davis                                       Arthur Von Bnesen Park
                                           Now                                                                 Wildfile Refuge
                                         Jersey
                                                                                                       X.   .:jV



                                                                                                             Staten
                                                                                                              Is a
                                                                                                                I  nd                  . . . . .                                           . ....
                                                                          ...............
                                                                                                           G1     nbeft                                     Miller
                                                                          ..........                                                                       Field
                                                                                                 . . . . . . . . . . .
                                                                          ..........
                                                                          ..........                                                                     (GNRA)
                                                                          ..........




                                                                                                                                 Great Kills
                                                                 ......                                                             Park                                           ..... ...                              ........ ....
                                                                                                                                                                           .... .......
                                                                                                                                                                                                                            ..........
                                                                                                                                                      .....       . ....                                                  . .......
                                                                                                                                  (GNFM)
                                                                                                                                                                                                                    .......... ........
                                                                                                                                                                                                                     ..................
                                                                                                                                             .. . . . . . . ..........




                                         ................
                                         ...............
                                         .................
                                         ................
                                         .................
                                         ................
                                            ............
                                         ................
                                         ............. .
                                                                                          te,    s
                                         ................
                                         ................
                                         ...............

                                         ...............
                                                                            Lemon          Pond
                                                                             Creek         Park
                                                                              Park



                                               Conference
                                               House Park

                               ...............
                                                                                                                                                                                                            MEN=

                                                                                 .................
                                                                                                                                ..........................
                                                                                         .......... .......
                                               .....                                     ........                                 ....         . . .....
                                                                                                                                 ........       ...........


                                                                                                                                                                   .. .......  ....   ........
                     ..... ..........          ...... ...........


                    Existing Waterfront Public Access                                                                                    Staten Island



                                                     existing continuous or general                                                                            existing point access
                                                     public access
                                                     upland extent of major                                                      --------------                significant barrier
                                                     waterfront park                                                                                           (highway, rail, slope, etc.)





                   Comprehensive Waterfront Plan                                                      NYC Department of City Planning                                                  Public Waterfront










                   THE ACCESSIBLE WATERFRONT:                              Waterfront Parks
                   ISSUES AND OPPORTUNITIES                                Waterfront parks serve a variety of active and
                   The city's considerable public waterfront re-           passive recreational needs, including access to
                   sources can be expanded, and more equitably             and along the waterfront. Fully developed
                   distributed, through both public and private            parks, such as Roberto Clemente and Astoria
                   redevelopment.                                          parks, provide many different park uses. Some
                                                                           waterfront parks, such as Ferry Point Park, are
                   The public sector can ensure that its proper-           partially or totally undeveloped. Other parks
                   ties - parks, streets, bridges and municipal            are primarily natural preserves in which hu-
                   facilities - maximize public access to and              man intrusion is limited to protect sensitive
                   along the waterfront. Over time, judicious              ecosystems. A few parks, like Alley Pond and
                   investments can fill missing links in otherwise         Marine, combine active recreational uses with
                   continuous esplanades and bikeways; provide             wildlife conservation areas.
                   modest street end improvements in industrial            The city's waterfront parks are primarily under
                   areas and communities with no other options             the jurisdiction of the New York City Depart-
                   for reaching the water; create new water-relat-         ment of Parks and Recreation (DPR). State
                   ed activity centers in formerly underused or            parks, managed by the Office of Parks, Recre-
                   inaccessible parks; and improve or create               ation and Historic Preservation, include
                   pedestrian and mass transit connections to the          Roberto Clemente in the Bronx, Fulton Ferry
                   water. In certain instances, municipal agencies         in Brooklyn and Riverbank in Manhattan. The
                   that have responsibility to manage city owned           National Park Service oversees the extensive
                   waterfront property may not have sufficient             Gateway National Recreation Area properties
                   resources to respond to public access goals.            on Staten Island and Jamaica Bay, as well as
                   Criteria for establishing public expenditure            the Statue of Liberty, Ellis Island and Castle
                   priorities will be necessary in view of compet-         Clinton. Each of these agencies has devoted
                   ing needs for limited public funding.                   considerable attention to enhancing its water-
                   In addition to a limited number of opportuni-           front parks. In addition to master plans for
                   ties for creating new parkland, expanded                individual parks, for example, DPR has issued
                   public access to and along the waterfront will          a citywide management plan for its waterfront
                   result from the conversion of manufacturing-            parkland to promote water-related activity and
                   zoned land to residential and mixed uses. The           better connections between parks.
                   shift away from a maritime and manufacturing            As the parks are developed or redesigned,
                   shoreline in New York City has occurred along           waterfront access and water-related activity
                   most of the nation's urban waterfronts. Boston          can be incorporated into the plans. For in-
                   Harbor, Baltimore's Inner Harbor, the Miami             stance, the master plan for Soundview Park
                   River, Seattle Harbor, and the Hudson shore-            will capitalize on its waterfront location by
                   line of New Jersey are examples of this trans-          providing inland links to the shore and walk-
                   formation, in which public access is integrated         ways along the shore. In some large, deep or
                   with new land uses.                                     hilly parks, the shoreline is far away or inac-
                   How successfully these public spaces are joined         cessible from centers of activity inside or
                   with other land uses will depend on the estab-          outside the park. Because safety is an impor-
                   lishment of realistic and predictable standards         tant concern, waterfront areas must be visually
                   for their configuration, use, design and man-           and physically connected to centers of activity,
                   agement. As the number of privately developed           with frequent, direct and safe paths to super-
                   public spaces increases, issues of maintenance,         vised areas or public streets. In some parks,
                   management and enforcement of public access             ferries bringing people to the water could
                   requirements will assume greater importance.            enhance park usage and safety.


                                                                                                                          63







                        1::s,,-,s,_:,@ sl@@'::,@                           major issue. Even in the best of times, it is
                                                                           d
                                                                             ifficult to provide sufficient funding for
                                                                           maintenance of the city's enormous park-
                                                                           land inventory. In difficult economic times,
                                                                                         maintenance is a tempting area
                                                                           open space
                                                                           in which to   reduce spending.

                                                                           Alternative   funding sources are sometimes
                                                                             ailable. Large portions of the East River
                                                     s@-Osl -7s,
                                                                           av
                  . .. ....                                                Esplanade    were rehabilitated with private
                  1 JAE
                                                                           funding and an endowment fund was estab
                                                                           lished to provide for routine maintenance
                                                               s:: s,
                                                                             nd
                                                                               er DPR direction. This technique was
                                                                           u
                                                                           possible because several development projects
                                                                           adjacent to the esplanade were required to
                                                                           provide environmental mitigation. Revenue-
                                                                           producing activities on waterfront public
                                                                           lands, the proceeds of which could be dedi-
                                                                           cated to maintenance, may be another fund-
                                                                           ing source.
                                                                           Other Publidy-Owned Waterfront
                                                                           Properties
                                                                           Aside from parkland, much of the remaining
                                                                           waterfront is publicly owned. Many of the
                                                                           properties are actively used by municipal
                                                                           facilities, some are partially occupied and
                                                                           others are vacant. Because this land is in the
                                                                           public domain, it presents opportunities for
                  Brooklyn Bridge walkway and bicycle lane                 waterfront public access when municipal
                                                                           facilities are developed or improved. Public
                                                                           access suited to individual site conditions can
                                                                           be incorporated if it is considered early in the
                  Some city parks, such as Battery Park, Astoria           planning process and made an integral part of
                  and Pelham Bay, offer superb waterfront views.           the design. Although it is not feasible or ap-
                  With suitable redesign and landscaping treat-            propriate to provide access at all municipal
                  ment, visual corridors can be created in other           facilities (for example, at marine transfer
                  waterfront parks as well, particularly those in          stations), some facilities, such as the Tallman
                  which direct access to the water would be                Island Sewage Treatment Plant in Queens,
                  unsafe or excessively costly.                            have successfully incorporated public space
                                                                           along the water's edge.
                  Even some inland parks can provide water-                As a general rule, public access on city-owned
                  front views. Spectacular views of New York               property to be used for industrial-type func-
                  Harbor and lower Manhattan are the main                  tions should be considered only when it
                  attraction of the Brooklyn Heights Promenade.            would not compromise the facility's opera-
                  The view from the promenade over a highway               tions and security or the safety of potential
                  and piers is so valued that a special zoning             users. When access is feasible in connection
                  district was created to protect it.                      with non-industrial facilities, however, its
                  Financing the development and mainte-                    configuration and design should be guided by
                  nance of such waterside improvements is a                the zoning standards proposed in this plan.


                  64












                                                                  ON,
                                                                                                        Oos























                                      . . . . . . . . . . . . . .



                    Volunteer clean-up at East River street end, Brooklyn


                    Although the city is obligated to maintain                  dernapping proposals require a discretionary
                    these public spaces, it does not always have the            review that allows communities, planners and
                    money to do so. Problems similar to those                   elected officials to consider a street's potential
                    regarding park maintenance may develop, with                value for visual and physical access. In some
                    only the most heavily used access points re-                areas, dernapping an unimproved street
                    ceiving attention. City-owned land that is                  should be considered only when an alterna-
                    leased to private developers also can encounter             tive access system is available or can be pro-
                    maintenance problems.                                       vided. In other areas, demappings are appro-
                                                                                priate to protect sensitive natural areas such
                    The Street Network                                          as wetlands. In general, however, the city's
                    The street network can     help or hinder access            street system and, in particular, streets that
                    to the waterfront. Public roadways along the                terminate at the water's edge should be con-
                    shoreline sometimes provide continuous water-               sidered an important public resource to be
                    front access and sometimes prevent it. Streets              preserved and enhanced.
                    perpendicular to the shoreline provide links                Because streets are no-build areas, they func-
                    from points inland and connections with the                 tion as visual corridors at intervals as regular
                    rest of the street system. Streets that terminate           or irregular as the street grid itself Criteria are
                    at the waterfront present opportunities for
                    point access, or scenic overlooks. These van-               needed to provide adequate sightliness, spacing
                    tage points may be the only form of public                  and width for visual corridors. Where streets
                    access in low-density residential areas and                 terminate at the first upland property, it may
                    waterfront manufacturing zones.                             be necessary to carry the view corridor
                                                                                through the intervening property in order to
                    Mapped but unimproved streets         offer poten-          prevent "walling off" of the view.
                    tial for securing access to the water. Street


                                                                                                                                  65









                 Some large waterfront parcels with develop-               The Hudson River Trail, part of the proposed
                 ment potential do not have a street grid. As              Hudson River Greenway from New York to
                 part of the discretionary review for . these              Albany, would run from the Battery in Man-
                 parcels, consideration should be given to                 hattan to Westchester County. The trail would
                 increasing access by mapping public streets,              be part of the proposed Boston to Washington
                 upland public access connectors and view                  East Coast Greenway. Some parts of the system
                 corridors.                                                exist and major sections are in various stages
                 When highways and major arterial roadways                 of planning, but several connectors are needed
                 block the waterfront, access can be achieved by           to complete the trail.
                 at-grade crossings, signalization or pedestrian
                 bridges. Even though Manhattan is surrounded              The East River Trail in Manhattan would
                 by arterial highways, its well used East Side             create a continuous bike/pedestrian trail from
                 Esplanade has been made accessible by a series            Battery Park to 145th street. It would have
                 of bridges and crossings. Improvements devel-             connections across the East River bridges to
                 oped in conjunction with the proposed River-              Brooklyn, Queens and Randalls Island, and it
                 side South project and the reconstruction of              could be linked to the proposed Bronx routes.
                 Route 9A will enhance access to the Hudson                Because of the limited width of the Esplanade,
                 River shoreline.
                                                                           and significant gaps in its continuity, upland
                 Responsibility for maintaining public streets             alternative connections may be appropriate, at
                 and pedestrian bridges rests with the Depart-             least in the short-term.
                 ment of Transportation. Maintenance of these
                 spaces must compete for funding with other                The Brooklyn-Queens Greenway would pro-
                 transportation maintenance and improvement                vide a connection between Long Island Sound
                 needs. The identification of specific street ends         at Fort Totten in Queens and the Atlantic
                 and bridges that could provide direct or visual           Ocean at Coney Island.
                 waterfront access to neighboring communities
                 would allow for a concerted approach to the               The Shore Parkway Bikeway, one of the few
                 improvement, signage and maintenance of                   remaining bike paths developed by Robert
                 these valuable but often overlooked resources.
                                                                           Moses, is being upgraded by DPR with state
                 Boroughwide and Interborough                              Environmental Quality Bond Act funding.
                 Waterfront Traits                                         One section reaches from Owls Head Park to
                 Bicycling and walking are growing in impor-               Bay Parkway; another portion travels through
                 tance as recreational activities. They have               Gateway National Park along the shores of
                 potential as environmentally friendly alterna-            Jamaica Bay. This trail could connect with the
                 tives to motorized transportation. New York               Brooklyn-Queens Greenway and with the
                 State is developing a program of urban bike-              Verrazano Narrows Bridge for access to
                 ways and pedestrian routes that could be                  Staten Island.
                 funded under the 1991 Federal Interstate
                 Surface Transportation Efficiency Act (ISTEA).            The North Bronx Bikeway includes the
                 To qualify for these funds, New York City has             Pelham Parkway bike path, which could be
                 formed a bicycle and pedestrian working group             extended at both ends to link the Hudson
                 of public and private organizations to develop            River with Pelham Bay Park. It would provide
                 a plan for on-road bikeways, off-road multi-              important access to Orchard Beach and City
                 use trails, and other programs. Some parts of             Island for Bronx and Manhattan residents.
                 the proposed trail system are adjacent to. the
                 waterfront, some provide access to waterfront             The South Bronx Bikeway would include an
                 recreational areas, and others are inland links           improved bridge to Randalls Island and would
                 connecting waterfront trails. The major com-              connect Soundview Park and the Bronx River
                 ponents of the proposed trail system are                  trail with inland communities.
                 shown on Map 4.5 and described below.


                 66






                            MAP 4.5
                                                                                                                                                                                                                 X


                                                                                                                                                                                                                 X!


                                                                                                                                                                                                      ... .................



                                                                                                                                                         -----------








                                                        ;X.

















                                                                 ......                     ..........





                                                                                                                                                                -- ---------------------
                                                                                              .. . .. .. ..


                                                                                               ........ ...

                                                                  . ...........             ... ......
                                                              .....                         .... . .



                                                                                            011                                                                ..                                           ....

                                                                                                                                        ......... ..

                                                                                                                                          .... .....

                                                                                                                                                                                                                 X
                                                                                    .....                                                                                                                     ...

                                                                                                              ....                                                                                          ........








                            ......        ....
                                                         ...............
                                                                                                                                                                                          ...............
                                                       . ...........
                                                                                                                                                             .........................................................
                                                                                                                                                             ...........................................................
                                                                                                                                                             ...........................................................
                                                                                                                                                             .........................................................
                                            ..........                                                                                                       .................  ......................................
                                                                                                                         ..................
                                                                         ...... .. ..                                   .......................
                                                                                                                         ..........-                         ..........................................................
                                                                                                                               .......                       .......................................................... . ......
                                                                         .........                            .......  .........                             .........................................................
                                                                                                                                                             ......................................................... ........
                                                                                                                                                             ..........................................................
                                                                                                  X.          XX : ;;,.                                      ...  .................................................... .....
                                                                                                                        ......................... .                                                         ....
                                                                                                                 . . .........
                                                                                                                                   ....                                        ........... ............
                         Waterfront Greenways


                                                existing waterfront greenway                                                                        borough boundary

                          .........             proposed waterfront greenway                                                                        potential regional connection

                         ----------             major upland connection                                                                             existing Harbor Park site




                          Comprehensive Waterfront Plan                                              NYC Department of City Planning / Public Waterfront









                 The West Queens bike route would provide a               redevelopment can be a resource for public
                 north-south link from northern Astoria along             access to the waterfront. Under current zon-
                 the East River to the Queensborough Bridge               ing regulations, public access areas can be
                 and the East River Trail.                                achieved only case-by-case for discretionary
                                                                          actions subject to WRP consistency review. A
                 The Staten Island Bike System would use the              predictable method is needed to reestablish
                 abandoned Staten Island North Shore rail line            appropriate public access on private land that
                 and various parks to create a loop system for            can be redeveloped as-of-right or is suitable
                 both transportation and recreational uses. The           for rezoning from manufacturing use             to
                 rail line would be used on an interim basis              residential and mixed use.
                 and perhaps permanently if the trail could
                 coexist feasibly with a planned commuter and
                 freight line. The trail would connect many
                 island institutions and provide a link to
                 Manhattan via the ferry and to New Jersey's
                 Delaware and Raritan Canal trail to Trenton.

                 The city's many bridges can offer the pedes-
                 trian and cyclist marvelous water views and, in
                 some cases, fishing opportunities. However,
                 many waterways crossings are not open to
                 pedestrians and cyclists.
                 Encouraging Water-Dependent
                 Recreation
                 Water-dependent recreational uses include
                 boating, swimming and fishing. The city's
                 swimming     beaches are at Orchard Beach,
                 Coney Island, Rockaway, Gateway and the
                 south shore of Staten Island. Major boating              Kayaks on the East River
                 waters are Long Island Sound, Jamaica Bay,
                 Lower Bay, Raritan Bay and the Upper                     The amount and type of public access that is
                 Harbor. Recreational boating includes fishing,           appropriate varies with land use and density.
                 waterskiing, cruising and use of non-motorized           Each land use presents its own opportunities
                 craft such as sailboats and row boats.                   and constraints. In general, as density of
                                                                          development increases, so does the need for
                 Additional docking facilities would encourage            public access and the financial feasibility of
                 boating in residential areas. Docking facilities         developing it.
                 are limited by zoning regulations that allow
                 docking slips in residential zones to be used            In low-density residential zones, the benefits
                 only by the residents of a development to                of linear public access must be balanced with
                 which they are an accessory use. The use of              demand for public open space. The burden
                 small boats is limited also by the lack of public        on  'small property owners of requiring physi-
                 boat launching areas, which could be provided            cal access would be high compared to the
                 on city-owned property.                                  benefits obtained. Visual access and point
                                                                          access through the street network are general-
                 Land-based fishing occurs in almost any New              ly more appropriate. Waterfront access or
                 York City waterbody, although areas with good            connections to the upland may be necessary
                 water quality are more popular. This activity            only in the case of large-scale development.
                 could be encouraged by providing additional              in most cases, public access along the water's
                 public piers in popular fishing areas.                   edge in low-density residential areas is neces-
                                                                          sary only to link adjacent waterfront parks or
                 Land Use and Public Access                               to bridge a small gap in an otherwise contin-
                 Although much of the waterfront is held in               uous linear walkway.
                 public ownership, private land undergoing


                 68









                    Higher-density residential development has a             Other conditions unique to the waterfront
                    greater need for open space and for access to            such as development on extremely large or
                    the waterfront. Waterfront access areas and              elongated zoning lots, also can block access. A
                    upland connectors are necessary for all high-            predictable means of providing visual connec-
                    density development.                                     tions is needed, particularly for as-of right
                    Waterfront public access is compatible with              development.
                    commercial use and often makes it more                   Building form can enhance or detract from a
                    successful. In some places, such as South Street         visual corridor. Buildings set back from the
                    Seaport, the waterfront is the major attraction.         waterfront and waterfront yards would provide
                    Similar rules should apply for commercial as             a greater sense of openness and expanded
                    for residential uses, i.e., selective access for         visual access along the  shoreline,
                    low-density zones, mandatory physical and
                    visual access for higher-density zones. Never-
                                 -scale commercial uses in low-
                    theless, large
                    density districts and in manufacturing districts
                    should provide public waterfront access.
                                                                                             'A
                    Mandatory public access generally is not ap-
                    propriate for industrial uses because of limited
                    demand and safety or operational consider-
                    ations. Street ends or nearby public land can
                    be preserved or improved, particularly in areas
                    where upland residential populations do not
                                                                                     ................
                    have other waterfront access options.
                    Ensuring the Quality of Waterfront Pub-
                    lic Spaces and Views
                    To ensure that public access areas look and
                    feel public, standards are needed for each type
                    of access (such as walkways, overlooks and
                    upland connectors), particularly when access is
                    provided in conjunction with private develop-
                    ment. The standards need to establish mini-
                    mum dimensions, fixtures, landscaping and                Queens Bridge Park, Queens
                    other amenities, and permitted obstructions.             Guidelines are required for locating floating
                    Standards related to the density of as-of-right
                    development would set a benchmark for local              structures and other in-water and over-water
                    access plans and discretionary reviews.                  structures so they do not block visual corri-
                                                                             dors unnecessarily. Development over the
                    Views to and along the water add          to the         water, for example on piers, can have a sub-
                    economic value of development and         to the         stantial effect on views along the waterfront,
                    quality of life in both public and private spac-         either by adding interest to a featureless area
                    es. Skylines, bridges and landmarks are perhaps          or by blocking a scenic view. Regulations to
                    most memorable when reflected in the water               establish height, setback, yard and public
                    against a changing sky. Waterfronts are among            access areas are necessary for new in-water
                    the few places the city that offer wide vistas.          and over-water development.
                    The city's zoning regulations lack generic
                    controls to preserve views and visual corridors          Establishing Realistic Management
                    to and along the waterfront, Streets generally           Procedures
                    provide visual corridors at fairly regular inter-        Establishing a maintenance and management
                    vals, but the standard street and block configu-         program for the public waterfront is as im-
                    rations do not exist in many waterfront areas.           portant as providing the space itself. Too

                                                                                                                             69









                  often, concern for the usefulness and quality              public waterfront spaces, some relatively small
                  of public spaces stops at the point of con-                or scattered, could exacerbate maintenance
                  struction and does not take into consider-                 problem and liability issues.
                  ation day-to-day operation and maintenance.
                  Without a well-conceived plan for upkeep,                  The gap between "paper" requirements and
                  public spaces can fall into disrepair, and                 what is actually provided comes about be-
                  become less inviting to users. New York City               cause enforcement resources are scarce. Un-
                  has a wealth of experience in this area as a               less this problem is resolved, adding more
                  result of its plaza programs, business im-                 public space requirements to the Zoning
                  provement districts (BIDs), and the work of                Resolution could be a hollow promise.
                  the Department of Parks and Recreation and                 Approaches worth exploring include the
                  open space conservancies and advocacy orga-                creation of a privately financed public or
                  nizations. The programs provide a solid                    non-profit entity with responsibility for
                  foundation from which to develop compre-                   maintaining private spaces. One financing
                  hensive management and maintenance pro-                    option would be pooled contributions of
                  grams for waterfront public access areas.                  annual fees from adjoining development,
                  Because private lands are scattered and are                similar to the way a BID functions. It remains
                  owned by many parties, it is difficult to a                to be seen how these fees would affect the
                  coordinate the documentation, enforcement                  broad array of development projects, many of
                  and maintenance of privately owned public                  which would occur as-of-right at a small
                  access areas.                                              scale. The potential costs and benefits of such
                                                                             a program would have to be studied.
                  The ability   to enforce the right of public
                  access across private property begins with the             THE PLAN FOR THE PUBLIC
                  ability to identify the properties and the                 WATERFRONT
                  required amenities. There is now no require-               Recommended actions to increase public
                  ment for registering public access spaces. A               access to the waterfront include broad regula-
                  readily available repository of information on             tory changes and site-specific proposals for
                  all required access and amenities is necessary.            each borough. The regulatory recommenda-
                  For projects that provide public access pursu-             tions would ensure that public access is
                  ant to the Zoning Resolution, registration                 provided with all new mid- to high-density
                  should be a condition for obtaining a certifi-             residential and commercial development.
                  cate of occupancy. in addition, permanent
                  on-site signage listing the access requirements            REGULATORY STRATEGY
                  can make the public aware of its rights and                The city's main too] to ensure that develop-
                  responsibilities.                                          ment occurs in an appropriate manner is the
                  Maintaining private lands is the responsibility            Zoning Resolution. The Resolution requires
                  of the property owner. However, the city's                 all development to meet standards that vary
                  experience in enforcing access to public                   by zoning district and establishes criteria for
                  spaces that were required in private develop-              developments subject to discretionary review.
                  ment under incentive zoning programs is not                To foster usable and attractive public spaces
                  encouraging. Even in midtown Manhattan,                    on the waterfront, the zoning regulations
                  where open space is at a premium and has                   must be amended. Two zoning techniques are
                  high visibility, public spaces do not always               proposed: generic' requirements applicable
                  provide the required amenities. Some plazas                throughout the city, and local area plans where
                  and indoor public spaces are closed, ill-main-             conditions warrant special consideration.
                  tained, privatized, or operated in a manner                For mid- to high-density development, and
                  that makes them uninviting to the public.                  large-scale multi-family development in lower-
                  The growing number of privately developed                  density areas, these revisions would include:

                  70









                     ï¿½  Continuous linear waterfront public                    the public waterfront. The proposed amend-
                        access located parallel and adjacent to the            ments include height and setback requirements
                        shore. No-build buffer zones adjacent to               to ensure that, among other objectives, new
                        these access areas would ensure privacy                development allows room for physical and
                        and a transition between private and                   visual access. The proposed design standards
                        public uses.                                           would help to ensure that the public area feels
                     ï¿½  Upland connectors "perpendicular" to the               public and is usable, enjoyable and safe.
                        shoreline to allow access from the first               Mechanisms for the maintenance and man-
                        upland street or other public area to a                agement of publicly accessible areas in private
                        linear waterfront public access area. A                developments need to be developed. Relevant
                        no-build buffer zone adjacent to this                  city agencies, including the Departments of
                        access would be necessary.                             City Planning, Buildings and Parks and Rec-
                     ï¿½  A minimum percentage of lot area (in-                  reation, should develop guidelines for the
                        clusive of all public access areas), aggre-            management of these properties, not least to
                        gated to provide usable public open                    ensure that required public spaces are con-
                        space as part of any large development.                structed as planned, properly maintained and
                                                                               kept open to the public. Liability issues also
                     ï¿½  No-build setbacks along the shoreline in               must be examined.
                        low-density districts, which need not be               Public a encies that manage city owned water-
                        publicly accessible, to keep development                       9
                        away from the shoreline and to allow for               front properties should be given the necessary
                        future public acquisition should access be             resources to properly maintain and support
                        deemed appropriate.                                    public access goals.
                     ï¿½  Minimum standards for the development                  Mix AcCESS OppoRwNrrms
                        of all public access areas regulating di-              The waterfront reach studies, summarized in
                        mension, paving, seating, landscaping,                 Appendix A, identify numerous opportunities
                        lighting, signage and other amenities to               to preserve or enhance waterfront public
                        ensure the quality of public access.                   spaces and views, and to create new points of
                     ï¿½  Minimum standards for visual corridors to              access throughout the city. Some new access
                        provide unobstructed waterfront views.                 areas would be integrated in new waterfront
                                                                               developments in accordance with the proposed
                     The size and type of access areas would vary              zoning regulations. Others would come about
                     by land use and level of development. Public              as a result of future rezonings, as recommend-
                     access would not be required in manufacturing             ed in the plan for the Redeveloping Water-
                     districts, except for large commercial develop-           front. Still others are beyond the scope of
                     ments along the shoreline.                                redevelopment activity and would have to be
                     Waterfront Access Plans would provide pre-                provided by the city. To determine investment
                     dictable controls tailored to special local condi-        priorities for public actions, consideration
                     tions. These local area plans would be adopted            should be given to the extent to which each
                     by the City Planning Commission and the City              proposed access improvement would:
                     Council and mapped as part of the Zoning                  0    correct imbalances in the availability of
                     Resolution. The plans could supplement or                      waterfront open space for adjacent com-
                     modify the generic requirements in zoning                      munities;
                     districts that permit multi-family residential or         0    extend the existing network by linking
                     commercial development.                                        unconnected segments of the system;
                     Chapter 7 describes the zoning revisions pro-             E    promote tourism and provide visual
                     posed to implement the Comprehensive Wa-
                     terfront Plan, including recommendations for                   relief in highly developed areas;

                                                                                                                                71









                  ï¿½   improve the possibilities for in-water                 In the industrial waterfront of the South
                      activities;                                            Bronx, improved street end access is proposed
                  ï¿½   createIsafe, well-used and adequately                  at several locations. A new access route to
                      maintained public spaces.                              Randalls Island would be provided through the
                                                                             Harlem River Yards site. A new park is recom-
                  Specific recommendations for the city's public             mended for the Hunts Point Marine Transfer
                  waterfront, by borough, are shown on maps                  Station site, when that facility is vacated by the
                  4.6 - 4.10 and described below and on subse-               Department of Sanitation. Along the Bronx
                  quent pages.                                               River, a number of improvements and exten-
                                                                             sions of the existing park and parkway system
                  Bronx                                                      are proposed.
                  An upland bicycle path in Riverdale, and a
                  connection over the Henry Hudson Bridge, are               Improvements, including esplanades, boat
                  recommended for the Hudson River shoreline                 launches, and fishing piers, are proposed for
                  as part of the Hudson River Greenway. The                  Soundview, Ferry Point, and Pugsley Creek
                  Spuyten Duyvil Shorefront Park would be                    parks in the East Bronx. A series of street end
                  expanded by the acquisition of the Penn                    access points are proposed for the lower-densi-
                  Central Triangle, at the mouth of the Hudson               ty residential neighborhoods of the East Bronx.
                  River. A Harlem River waterfront esplanade, in             (Map 4.6.)
                  conjunction with redevelopment, would extend
                  north from High Bridge.




                                                                                                    U













                                                                                                             41A
                                                                                                               "T












                                                                                  NOW,










                  Amtrak rail line along Riverdale Park, Bronx


                  72








                                                                             ............


                                                                           ...............
                                                                         ....... ........
                                       MAP 4.6                                                                    Develop link
                                                                          ...................
                                                                         ..........:
                                                                                                                  with rem of
                                                                                                                  Hudson River
                                                                                                                  Greenway



                                                                                                                                                                                                                                                                  ..............
                                                                                          ......                                                                                                                                                                ....................
                                                                                                                                                                                                                                                                ...................
                                                                                                                                                                                                                                                                ....................
                                               A.                                         .... 1.                     W/O,

                                                                                                                                                                                                                                                                .................
                                                                                                                                                                                                                                                                ... ......    ...
                                                                                                                                                                                                                                                                .................
                                                                                                                                                                                                                                                                ..................
                                                                                                                                                                                       Hutchinson
                                                                                                                                                                                            River
                                                                                                                                                       ...                                                                                                      .........     ......
                                                                                                                                                                                                                                                                .................
                                                                                          ...                                                                                                                                                        .. ..................
                                                                                                                                                                                                                                                    .. ..............         . .....
                                                                                                       Develop bicycle access
                                                                                                     over Hen Hudson Bridge
                                                                                                                                                                                                                                                                ............. ....
                                                                                                                  ry
                                                                                                                                                                                                                                                                              ..........
                                                                                                      and upland In Riverdale                                                                            04f                                                                  ...........

                                                 ..........
                                                                                                    Aoqulre Penn                                       Designate                New park
                                                                                                                                                       bikeway
                                                                                                  Central Triangle                                                              on top of
                                                                                                     s
                                                                                                       it                                              north of
                                                                                                        a for park                                                              C-SO tank
                                                                                                                                                       Bronx Park




                                                                                      -.0                 W. 193 St.


                                                                                  40


                                                                                                  179 St.
                                                                                                                                                                                         Watt Ave.


                                                                                                                                                                                                                                                                              ..........
                                                                                                                                                                                     Outlook Ave.
                                                                                                                                                                                                                                                                ... ............
                                                                                                                                                                                                                                                   ....................................
                                                                                                                                                                                                                                                    .............................
                                                                                                                                                                                                                                                                ..................
                                                                                    W* 176 St,
                                                                                                       Develop pedestrian                                                                                  . . . . . . . . . .
                                                                                                           and bil,                                                                                                                   .......
                                 ......... ...
                                                                                                                      w trails                                               _:i:@   Layton
                                                                                                            south of zoo                                                                                                  .............i...
                                                                                                                                                                                                                          ........... ...
                                                                                                                                       A;                                             Randall Ave.                           ... .
                                                                                                                                                                                                                                      .....                                   ........
                                                                                                                                                                                                                   ..........................
                                                                                  W. 165 St.                                                                                    ]:i:   Lafayette Ave.
                                                                                                                                                                                                                   ................
                                                                                                                                        Develop esplanad                                                                  .........   .......
                                                                                                                                                                    ein
                                                                                                                                                                                                                        ...................
                                                                                                                                                                                                                          ...................
                                                                                                                                           Soundview Park,
                                                                                                                                                                                        Lafayette Ave.                    . . . .........
                                                                                                                                              Lagoons,and
                                                                                                                                       Shorehaven        Castle Hill            .:@i:
                                                                                                                                                                                                                                                                ...............I..........
                                                                                                                                                                                                       Hammond                                                  ........... . .......
                                                                                                                                                                                                           Cove
                                                                                                                                                                             @@!!111  Ferry       0
                                                                                                                                                                                                                                                                . ...................
                                                                                                                                                                                     Point
                                                                                                                                                                                                                                                                X: .................
                                                                                                                            Improve
                                                                                                                                                                                      Park
                                                                                  Uncoln
                                                                                                                             Tiffany
                                                                                  Ave.                                                                                                                                                                            ........... -
                                                                                                                                                                                                                                                                .... ..................
                                                                                                                                 Pier
                                                                                             Now
                                                                                          acoessto                                                                                                                                                              .......
                                                                                                                                                                                                                                                                ......................
                                                                                                                                                                                                                                                                ............................
                                                                                          Randalls                                                                                                                                                                            .............
                                                                                                                                                                                                                                                                .....................
                                                                                                                                                                                   ............                                                                 ..........
                                                                                                                                                                                     . ....                               .......................               ...........
                                                                                             Island
                                                                                                                                                                                                                          ...........
                                                                                                                                         .............. i;
                                                                                                                                                                                                                                                                ........      .........
                                                                                                                                                                                                                          ................... . ................................ ......
                                                                                                                                                                                                                          .............
                                                                                                                                                                                                                     .. .. ......... .........
                                                                                                                                                                                                                       ....................                                   . ........
                                                                                                                                       .................                                                           .. .......                                   ...................
                                                                            .....                                          ............                                                                            ...........................                                ........
                                                                                                                             ..........

                                                                                                                                                                                            ...... .                         .... .....
                                                                                                                                                       ............. . .
                                                                                                                                                    . .........
                                                                                                                                                                                            ..........
                                                                                                                                                                                                                                                                              ............
                                                                                          . . .....                                                                                                                                                                           ....
                                                                                                                                                       . .......... .
                                                                                                        . . . . . . . . . . . . . . .                                                                                                                                         . . . . . . . . .
                                                                                                          . . . . . . . . . . . . .
                                                                                                          . . . . . . . . . . . . .
                                                                                                                  . . . . ..                        .. . . . . . . . . . .                                                                                                    . . . . . . .
                                                                                                                                                    X.: ..... . . . . . . .
                                                                                                                      ...                           . . . . . . . . . . . . .
                                                                                                             . . . . . . . . . .                                                                                                                                              . . . . . . . . .
                                                                                                                                                    . . . . . . . . . .
                                                                                                                      ...                           . . . . . . . .... . .
                                                                                  ....                      ...........                                                                                       Queens
                                                                ..... . . . .......                               ......                            :-X ............
                                                                                                                                                                    ..............
                                                                                                                                                       .........................
                                                                                                                  .........
                                                                                                                  ..........                                        ............
                                                                                                                      ...........
                                                                                                                                                       .................
                                                                                                                                                       ............



                                  Public Waterfront Recommendations                                                                                                                The Bronx




                                  klaMOMM                   existing continuous or general public access                                                                           proposed or improved point access or crossover

                                                            proposed continuous or general public access                                                  -----------              upland connection
                                            ir



































                                    Comprehensive Waterfront Plan                                                                 NYC Department of City Planning                                                              Public Waterfront


















                       40"
                                          7
















                                   7



                E@N














                Children's play area at newly opened Hudson River Park, Manhattan




                Manhattan                                               Links over the Harlem River would connect to
                                                                        the Hudson River Greenway and the Bronx
                The plan for Manhattan's public waterfront              Harlem River Esplanade. South of the
                envisions an esplanade encircling the island,           Macombs Dan Bridge, the esplanade would
                consistent with the draft recommendations of            continue through an improved Harlem Beach
                the Manahattan Borough President's water-               to the existing East River Esplanade. Gaps in
                front plan. A new West Side Waterfront Park             the East River Esplanade would be closed by
                would extend from Battery Park City to 59th             waterfront or upland connectors.
                Street. North of 59th Street, a waterfront
                esplanade component of the proposed River-              At the southern tip of Manhattan, access
                side South development would extend to                  improvements across West and South streets,
                Riverside Park at 72nd Street. The gap between          renovation of existing esplanades and publicly-
                the northern and southern portions of                   oriented waterfront features are recommended.
                Riverside Park would be closed by Riverbank             Additionally, gaps in public access at Pier A,
                State Park and the Harlem- on -the- Hudson              the Ferry Terminal, the Battery Maritime
                development at West 125th Street.                       Building, and north of the South Street
                                                                        Seaport, should be closed. (Map 4.7.)


                74








                                                                                                                         Connect R. Washington                                                       Improve bicycle
                                                                                                                    Park with Inwood Hill Park
                                                                                                                  ugh new Dyckman St. Marina                                                        Henry Hudson Bridge
                                                                                                                                                        .......... ........
                                    MAP 4.7                                                                 thro                                                                                    connection over
                                                                                                                                                        ................
                                                                                                                                                             ...........                  ---
                                                                                                                   Close gap in                                                                     Connect to proposed Harlem
                                                                                                                  Ft. Washington Park                                                               River Esplanade on Bronx
                                                                                                                  (181 - 187 Sts.)
                                                                                                                                                                                                    shore over Broadway Bridge

                                                                                                                                                                                               Sherman Creek
                                                                                                                         Deve
                                                                                                                               lop                                                              Rowing Center
                                                                                                                  new parkland
                                                                                                            155th - 158th Sts.


                                                                                         Connect Riverside Park
                                                                                        North and South through
                                                                                    Harlern on the Hudson and                                                                     Connect to proposed Harlem
                                                                                                                                   xx
                                                                               alongside Riverbank Slate Park
                                                                                                                                                                                  River Esplanade on Bronx shore
                                                                                                                                 .... .... .  ..
                                                                                                                                . ............
                                                                                                                                                                    UAW
                                                                                                                              .............. ...                     ....         over the Madison Ave., 145th St.,
                                                                                                                              ...................
                                                                                                                                                                              :   or Macornbs Dam bridggs
                                                                                                                                   ............


                                                                                                                                                                                                                          ...         .....
                                                                                          Close gap in
                                                                                                                                                                                                                          ....               ....
                                                                                                                                                                                  Deve
                                                                        Riverside Park esplanade                                                                                                                          ...                ...
                                                                                                                                                                     ...                lop Harlem                        ".. .......
                                                                                    (86th - 90th Sts.)                                                                            Beach and.ponn
                                                                                                                                                                                                       ect
                                                                                                                                                                                                                          ..: .............
                                                                                                                                                                                                  ..........              ..............................
                                                                                                                                                                                  to East RJl*`.'-"-',: "de-

                                                                                                                                                                                                                                        .........
                                                                                                                  ............. ......                                                      ...................
                                                                                                                                                                                              ...... ........ .....                          ...
                                                                                                                                                                                            ........ .........                        .........
                                                                                                                                                                                                        ....                          .........
                                                                                                                                                                                            ................ . .
                                                                                                                  ............
                                                                                  New park
                                                                                                                                                                                                                                      ..........
                                                                             at proposed
                                                                                                                                                                         Q
                                                                        Riverside South
                                                                                                                                                                                        euse
                                                                                                                                                                                                   ...........
                                                                                                       ..........
                                                                                                  ............
                                                                                                                                                                                                   ..........
                                                                                                  .. ... ......
                                                                                                  .......... ..                                                                                .. ..........                          ...
                                                                                                  ............. ....
                                                                                                            .... ....                                                             Improve ac                              ......................
                                                                                                                                                                                                                                 ............
                                                                                                                                                                                  (103rd - 125th ï¿½1144::
                                                                                                                                                                                                                                  .. ........
                                                                                           .......... ......
                                                                                                                                                                            Rehab 91st to
                                                                                                                                                          ...                                                                         .........
                                                                                                                                                                                                                                      ..........
                                                                                                                                                                                                                               .... ...........
                                                      New West Side                                                                                                         94th Sts.
                                                                                                                                                                                                                                      ...........
                                                       waterfront park
                                                          & esplanade
                                                                                                                                                                Adapt E.601h St. MTS
                                                                                                                                           ............
                                                                                                                                                                for open space use

                                                                                                                                  ......   ....
                                                                                                                                                 United Nations


                                             Increase access                 .......................Z                                              Inteiftosplanade
                                                                                                                                 .. ........
                                              across West St.
                                                                                                                                                   34th -
                                                                                                                                                                h Sts.


                                                                                                                                     .........
                                                                                                                                  ............
                                                                                                                                  .............
                                                                                                                                                  Esl:&na&
                                                                                                                                 ............
                                                                                                                                                 Stuyvesant Covol        .....

                                                                                ..........                                     ....


                                                                    .......... .................
                                             Connect
                                                                                                                                           ncwrat
                                                                                                            '06' I'l .. ...........                     e access
                                 Battery Park with
                                                                             ...............           .............        ...... ... .   in reuse of Pier 36
                                 Battery Park City
                                                                             .. .. .......                               ...............
                                                                                                  ....                       ..........
                                                                                                  . ....... ......
                                            at Pi A':'::                                                                     Catherine Street
                                                                                                  . . ...........
                                                                                                                    Upgrade existing portion of esplanade
                                                                       .. ....       ..... ..
                                                                                         . . .... .....
                                                                                                                  E lanade connection at ferry terminal and
                                                                       .....                      .........
                                                                           . ....                 ..........      interim access at East River Docks
                                                                                          ..... ..........
                                                                    .....     .......

                                                                                            ...........
                                                                               .... ..    .............



                               Public Waterfront Recommendations                                                                                              Manhattan




                               =%Iwlq@                         existing continuous or general                                                                            proposed or improved
                                                               waterfront access                                                                                         point access or crossover
                               1111411119111                   proposed continuous or                                                  .............                     upland connection
                                                               general waterfront access





                                Comprehensive Waterfront Plan/ NYC Department of City Planning / Public Waterfront






































               Poppenhusen Avenue street end park, Queens



               Queens
               Redevelopment of the Long Island City wa-              In Jamaica Bay, limited public access should
               terfront can increase public access opportuni-         be provided to the bay's natural shorelines.
               ties and link existing public spaces. On the           New public boat-launch sites within the bay
               north shore, rehabilitation of the Flushing            would increase recreational opportunities.
               Bay Marina and Esplanade should include a              Public and privately owned natural areas on
               boat trailer ramp and improved access at               Jamaica Bay's Rockaway shoreline are appro-
               Harper Street. The Port Authority ballfield at         priate for environmentally- oriented park use.
               19th Street and Bowery Bay can be enhanced             (Map 4.8.)
               for recreation and public access.

               Street end point access is recommended for
               the College Point industrial area, and new
               public waterfront spaces can be provided at a
               number of redevelopment sites. The feasibility
               of park use of the historic batteries at Fort
               Totten should be explored. Expanding the
               existing bikeway from Northern Boulevard
               would improve access to the fort. Appropri-
               ately designed public access to Udalls Cove
               and Ravine and the wetlands at Powell's Cove
               would provide opportunities for environmen-
               tal education and passive recreation.



               76









                                      ..........                                                                                    .....   .............. ......

                                                                                                                                                                       ...........
                                                                                                                                             .. .................

                                                                                                                                                                       X......
                                                                                   .............
                             MAM4.8
                                                                                                     Wit
                                                         esplanaide'::'::
                                                                                                                                                                                en
                                                       link througl;:
                                                                    On                                                                                                          r
                                                                                                                                                            .. ........... ..
                                                                                                                                                           .....................
                                                                                         ...         .....                                   PoweTrs                            k
                                                               p
                                                   redevelo rA,
                                                                                                                                transfer                               ........ .
                                                                                                     . .... . .                                                                 fit. at
                                                                                                                                                                                'y
                                                                                                                                Cove to DPR
                                                Socrates                                                                                                               .......
                         ff                                                                                                                                            -r       Wn
                                                                                                                               access points
                         *    ' %,                                                                       ï¿½i'x@'xj'x                                                    . 'I..
                                                      Park..--.-Q:::-                                                          at College Pt.
                                                                                       develop for
                                                                                                                                    ss as part
                                                                    33rd Rd.,              access                              acce
                                                                                                                               of Downtown               complete con nuous
                                                                    35th Ave.          & recreation                                                                    ti
                                                                                                                               Flushing Plan             Brooklyn-Queens
                                 public acce                          sites                          improve                                             Greenway from Cross
                                         throuiWi@:@                                                                  add boat
                                              "R                                                     access
                              redevelopom -iiiif@i:                          River                   to and rehab     trailer ramp                       Island Parkway to Coney
                                                            ...' Tennis Oub                                                                                            Island
                                                                                                     esplanade
                                                       Hunte rg:::                                   & marine
                                                       Point


                                   ......... ...



                         ....                                                                                                                                                                   Nassau









                                                                                                                                                                       transfer
                                                                                                                                                                       to DPR

                                              8-klyn
                                                                                                     .. ... .....
                                                                                                                         ......................
                                                                                                                            .........................
                                                                                                        ....................
                                                                                                     . .........

                                                                                                               .........
                                                                                                            ............. .                   ... .
                                                                                                     x


                                                                                       .......... .                                  X.                  ....
                                                                                          . ... ........ ..........
                                                                                                     ............................
                                                                                                     .... ...................

                                                                                                        .........     ...
                                                                                                            ... ....    .....


                                                                                                                      ...............
                                                                                                     ................



                                                                                                                                                                                    ....... ...            .......
                                                                                                             ................ ......                                   ........       ...... ..       ......
                                                                                                                            ..........                   ....................... ..
                                                                                                     .....................
                                                                                                     .....................                               ... ...........
                         . .......                                                                   .....................                               ........  Xx
                         ..........
                                                                                                                                                                                    ............................................
                                                                                                                      ...........                                      ................................ ::  .............................................
                                                                                                                                           ............  . .. ....................................... .       .......
                         .....                                                                       ....................                                @w                                  .......%.. . ..... ....
                                                                                                                                                                                       ... ...............................
                                                                                                                                                                                    ............................................
                                                                                                                                                                                     ...........................................
                                                                                                     .......................           ..................... . .
                         ...........

                                                                                                                               ........ ...
                                                                                                                                                                                                     ...................
                                                                                                                                          .................... ....                                 .................
                                                                                                                                                         U
                                                                                                                                                                                                 ............
                                                                                                                                                                       . . .......................................................
                                                                                                                                                                                 ........                  .........
                            ... ..            . ..................... .....                                                                                                     ............................................. ............
                                                                                                                                                                       .............................................................
                                                                                                                                                                                                           .............
                                                ........... ..............                                                                                             . .......
                           ...             ... .... ..............
                                 ......... ...... .. ............ ... .....                                                                                                       .......         .......      ......
                                                                                                                      ............           ......                    ... ......
                                                                                                                                                                                    Q   .....
                                                                                                                                                                                                ................. ............
                                                                                                                                                                                        .... ..................................
                                                                                                                                                                       ....................................................................
                                                                                                                                                         .......................................................
                                                                                                                                    ... ........................                                           .. ........
                                                                                                                                                         ...... ..............................................
                                                      .............
                                                                                                                                                                                                    ......................
                                                                                                                                                                       ................
                                                 ...........................                                                                             ........................................
                                              ..............................                                                                                                          ...............................
                                     *X                                                                                                                                                                    ............
                                                                                                                                                                                        ...............
                                                                                                                                              ..........               .. .....................................
                                                                                                                      . .... ....
                                                                                                     . . . . . .. . . . . .. . . . . .. . . . . . ...... . .........
                                                                                       ..........                                                                                     ................
                                                                                                                                          ..........         ................................
                                                                                                                                         ...............................
                                                                                            .....       ........        .1:
                                                                                       ...... ......................................................................................................... .................
                                                                                                                                                                                    ... ..........         ............
                                                                                                                                                                       ........ .. ..
                                                                                                                                             ...............................
                                   .. ....        ..............................
                                                                        ................                                                                                                                   .........
                                                      . . ...... ..........


                         Public Waterfront Recommendations                                                                                   Queens



                                                      existing continuous or general                                                                                   proposed or improved
                                                      public access                                                                                                    point access or crossover
                                                      proposed continuous or general                                                - - - - - -                        upland connection
                                                      public access




                         Comprehensive Waterfront Plan                                               NYC Department of City Planning / Public Waterfront









                Brooklyn
                New parks and mixed-use developments can
                increase public use of the East River and
                Upper Bay waterfront. Currently, opportunities
                are limited by the area's industrial nature. In
                Greenpoint, the WNYC Transmitter site
                should be developed for park use, and the
                Noble Street Pier, when vacated by the Sanita-
                tion Department, should be rehabilitated for
                public access. Public access would also be
                provided at former industrial sites that are
                                                                                        g 'I's
                suitable for redevelopment.


                                                                                                       ................
                Farther south, improvements to Fulton Fer-
                ry/Empire Stores State Park, and complemen-
                tary uses on adjacent city-owned parcels, are
                proposed. Redevelopment of Piers 1-5 beneath
                Brooklyn Heights should include substantial
                open space. Public access should be a compo-
                nent of redevelopment in Red Hook, from Van
                Brunt Street to Wolcott Street, including the
                                                                            so, W  -,L\\,
                new recreational Coffey Street Pier. There may
                also be opportunities for limited public access
                in conjunction with new industrial develop-                      OWN
                                                                                 NN
                ment in Sunset Park.


                Proposed enhancements to the Shore Road
                Esplanade include an improved link to Owls
                Head Park, development of Denyse Wharf for             Brooklyn Heights Promenade
                educational/recreational use, and extension of
                the bike path to Stillwell Avenue and Coney
                Island. Access to the water should be incorpo-
                rated in the development of Dreier-Offerman
                Park, which should be linked to the bike path
                and to a public access component or residen-
                tial development in the White Sands area.

                Public access along Manhattan Beach's seawall
                should link Brighton Beach and Manhattan
                Beach Park. Improved signage would increase
                public awareness and use of Kingsborough
                Community College's waterfront esplanade. A
                new parking area and improved visual access
                are recommended in the Shell Bank Creek/
                Plumb Beach area. In the Jamaica Bay area,
                environmentally sensitive public access should
                be provided at Four Sparrows Marsh,
                Paerdegat Basin and Fresh Creek. (Map 4.9.)


                78










                                                                                                                   ....... .....
                                                                                                                   ....... .....
                                                                                                                   ....... .....
                                                                                                                  ....... .....

                                                                                                                 ..............
                                                                                                                ..............
                                                                 Am
                                                                 MAP 4.9               Manhattan
                                                                                 ....                         ..............
                                                                                 ....                         ..............

                                                                 ...... ... .......
                                                                 ..........................
                                                                 ...........
                                                                      ..............
                                                                 ... .. X-X ............ . Develop
                                                                 ................. .......
                                                                      ..                WNYC site
                                                                                 ....                       .......
                                                                                                                       Public*       as
                                                                                          for park         .......
                                                                                                                       through "velopment
                                                                      ...                                  .....
                                                                                                            .........
                                                                      X                                   ..........
                                                                      :X.
                                                                 ...........................                                                  .....
                                                                 ...........................                                                  ....
                                                                 ....... ..... ......                                                         .........
                                                                 X.,
                                                                                                                       Public access
                                                                                                                       Noble St. Pier,:::::::'::
                                                                 AfewX
                                                                                                          ...               ng
                                                                 ....................
                                                                                                                       (in lo
                                                                 Jersey
                                                                                               ... ...........



                                                                                                                                                                                       Oueens
                                                                                            ublic open space on Piers 1 - 6
                                                                 ...........
                                                                 ............
                                                                 ...........


                                                                 X................
                                                                 ...................
                                                                                       Continuous public access:
                                                                 ......... ... .... ................
                                                                 .................. .
                                                                                       Van Brunt to Wolcott St.
                                                                 ....................................
                                                                 . .............. . .....
                                                                 . ...........................................
                                                                 ............ ......%......
                                                                 . ...... .........
                                                                 ....... :: ............
                                                                 ..............
                                                                 ...................
                                                                 XXX,@X.
                                                                 ...... .....
                                                                 .........................
                                                                 ............. ... . .
                                                                 .........
                                                                 .............
                                                                 ................
                                                                 ...........
                                                                 ... . . .. . ...... ..............

                                                                 ..... I ... .. ... ....................
                                                                 .. 11 . .... .. ..................
                                                                 ... ..................
                                                                                                                                                       Transfer city-owned
                                                                 ....................                                                                       land at Fresh
                                                                 .... .....
                                                                 ............................
                                                                 .... .......... Develop public access where
                                                                                                                                                            Creek to DPR
                                                                      ap                                                                                                               .....
                                                                                 propriate in Sunset Park
                                                                 X. ........
                                                                 Xx X.:.X.-.-
                                                                 X
                                                                 .....                                                                                                                                            ..... ... ..
                                                                 X,
                                                                 X                                                       Continuous public                                                                        ........
                                                                                                                                                                                                                  .........
                                                                 Improve linkage: Owls                                                                                                                            ...............................
                                                                 X...'...                                              access on both sides
                                                                                                                                                                                   ... .......                    ............-........
                                                                                                                                                                                                                  ........... ..................
                                                                                                                                                                                   ...... ................................... ....
                                                                                                                                                                                   :..... ....................................
                                                                 Head Park & 69th St. Pier                             of Paerdegat Basin

                                                                                                                                                                                   . .................            . . ..........
                                                                                                                                                                                   .................
                                                                                                                                                                                                                  ...... ................. .....
                                                                                                                                                                                                                  Y-.X...
                                                                                                                                                                                       .....                      .. ................
                                                                                                                                                                                   .....................          ... .................
                                                                                                                                              ....                                 ......                         .......
                                                                                                                                                                                                                  . . . . .... . . . . . . . .
                                                                 X::.:: : : : : : : : : : :`: :":                                             *,-.*                                ... .... . .. .:               .: :. .. . ..
                                                                                                                                                                                   . . . . . . . . . . . . . . . . . . . . . . . .. . . .
                                                                                                                                                                                   . . . . . . . . . . . . . . . . . . . . . . . . . . . ..,. . . . . . . . . .
                                                                 . ......... .....                            Provide public access                                                                               ........
                                                                                                                                                                                   ..........
                                                                                                                                                                                   ......................         .........
                                                                                                                                                                                   ...................
                                                                 Reuse of                                                                                                          ..........                     ... .... ...
                                                                 .... .......:.... . .                                                                                             ........                       .... ..........
                                                                 11 ........                             through rezoning and new
                                                                                                                                                                                   @ansfe-..*..*..'..'..'..'      ..................
                                                                 ............ Denyse                                                                                               f
                                                                 .... ...                                                                                                          ..  ....
                                                                                                         street system in Mill Basin                                                                              ............
                                                                 .. ..                                                                                                                 .........................
                                                                                                                                                                                       ...... .....
                                                                                                                                                                                                                  ...........
                                                                                                                                                                                                                  ...........
                                                                 Wharf                                                                                          ..........             ...........
                                                                 .....                                                                                          ...                ..... gx
                                                                 ........                                                                                                          timd ......                    ............
                                                                                                                                                                                                                  ...............
                                                                 X                                                                                                                                                ......
                                                                                                                                                                                                                  ............
                                                                                                                                                                                                                  ..........
                                                                 S1
                                                                                                                                                                                   .........................

                                                                 --X.X
                                                                                                                                                                                   ..........                     ... ....
                                                                 :::::::!XX-X-X..-.                                                                                                ...............
                                                                                                            Improve point
                                                                                                                                              ... ... XX..  .::::::::X::::X.X".                                   ay .........
                                                                      ... . .                                                                              .. .. .. . .....
                                                                                                                                                      ... .......
                                                                 ......... .............                         access on                                                                                        ............... .........
                                                                                                                                                                                   ,- . . .........               .................
                                                                      X:X-X.X.
                                                                                                                                                                                   .....................          ...........................
                                                                                                                                                                                   @x -                           AM 'Oh
                                                                 rm. n::'p                                                                                                         W10"e                          .1-M
                                                                                   Link Shore           Shellbank Creek
                                                                 .0
                                                                 ..........                                                                                                        Acc_pq
                                                                                                                                                                                   X
                                                                 .......... .........
                                                                 .........         Parkway bike
                                                                 .. ..........                                                                                                     ....... -*::@j:!:j:j:j@!:j:j:j:j:i:i ......
                                                                 . ........ ............... ......
                                                                                   path to Coney Is.

                                                                 ...........                                                                                                       .....                          ......
                                                                                                                                                                                   ...........
                                                                 ............. .................. ................
                                                                                                                                                                                   ...........                    ....................
                                                                                                                                                                                   ......................................
                                                                 ............
                                                                 ............
                                                                                                                                                                                       .........................
                                                                                                                               ............     ......                             .............
                                                                                                                                                                                   ..................
                                                                 .......... .......                                                                .....                           ....................
                                                                 ..........                                                                   . . .........
                                                                                                                                              .... ............
                                                                 ...........................
                                                                 .............. .. ...
                                                                 ..... ....... *-.............................
                                                                 ...........
                                                                 .....................
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                                                                 Public Waterfront Recommendations                                            Brooklyn



                                                                 existing continuous or general access                                            proposed or improved point access or crossover

                                                                 NOWNWOU proposed continuous or general access            - - - - - - -           upland connection
                                                                 X
                                                                 A:





                                                                                                                                                                                       OU's
                                                                                                                                                      @Transjer @ci






                                                                 Comprehensive Waterfront Plan       NYC Department of City Planning                                               Public Waterfront










                 Staten Island
                 The plan recommends completion of the                   Public access to the environmentally sensitive
                 North Shore Esplanade in accordance with                areas of the Arthur Kill must be designed to
                 DCP's 1987 proposal. Redevelopment of the               be compatible with natural resources. Access
                 Chessie site, adjacent to the Ferry Terminal,           to Main Creek is proposed for the Mohlenoff
                 should include public open spaces and visual            Nursery property. Saw Mill Creek in Chelsea
                 access from upland streets. Improvements are            Marsh may be suitable for a passive viewing
                 also recommended for Snug Harbor, Alice                 area. As areas of the Fresh Kills Landfill are
                 Austen Park, Von Briesen Park, and Battery              closed, they are being treated for eventual
                 Weed. Along the South Shore, a new beach at             park use.
                 Cedar Grove Avenue and a series of street               The city should acquire the North Shore Rail
                 end and parkland improvements would sup-                Line and the Travis Line for interim trail use
                 plement the substantial stretches of publicly           and for possible re-establishment of freight
                 accessible waterfront.                                  and/or commuter service. Combined rail/trail
                 Redevelopment in the Outerbridge area                   use of a reactivated rail line is a possibility.
                 would provide new public access opportuni-              (Map 4.10.)
                 ties to the Arthur Kill. A public boat launch
                 is proposed for the end of Ellis Avenue, along
                 with enhancement of street end access at
                 Victory Boulevard.






















                                     7                                        NMI.

                 Inactive rail line along Kill Van Kull, Staten Island

                 80










                                                                                                                                                                                           X.
                                                                                                                                        .......                                       ....
                                MAP 4.10
                                                                                                                                                                                   'XXXXXIX
                                                                                                                                                                 . . . ...... . .




                                                                                                                                        .....                                                                                        ........
                                                                                                                                    ..........                                 ....                            .........X
                                                                                                                                                                                                                               .. .........
                                                                                                                                                                               ..............
                                                                                                                                                                                                               ..........      ........... ......
                                                                                                                                                                                                               . .........     ............
                                                                                                                                                                                                               .............
                                                                                                                                                        .............

                                                                                                                                                   ...........
                                                                                                  ..........

                                                                                                                                                                         Bard
                                                                                                                                                                         Ave.
                                                                                                       ..................
                                                                                                                                                          ar
                                                      New
                                                                                                                                                                                                 (P
                                                     Jersey                             .......
                                                                                                                                                                                   rs
                                                                                                                                                                      link Sailo                                                     or
                                                                                                                                                                   Snug Harbor to                                                    ten
                                                                                                                                                                                                   %P
                                                                                                                   develop trail                                 other Harbor Park
                                                                                        .......                                                                                                                        .... ....
                                                                explore p                                        on North Shore                                            shes
                                                                              ublic
                                                                       access at                                 and Travis hrn@mes
                                                                                                                                                                                             Nautilus Ave.
                                                                Chelsea Marsh
                                                                                                                                                                               improve access within
                                                                                              X.:                                                                                                                              ....
                                                                                       ..........
                                                                                                                                                                                   Von Briesen Park

                                                                                                                                                                                                                                     ............
                                                                                                                                                                                                                                     ............
                                                                                                                               develop public                                  develop and provide
                                                                                                                                                                         access to Battery Weed
                                                                                                                            ,=is         nature
                                                                                                                                                                                                                                     ..........
                                                                                       I.......                  Sol-                Mohlenholf
                                                                                                                                                                                                               . ......        .. ........
                                                                                                                                                                                                               .............................
                                                                                                                                                                                                                       ........ ...............
                                                                                                                                                                                                               ..........
                                                                                                                                   Nursery                                                                     .........V
                                                                                                                                                                                                               .............
                                                                                                                                                                                                               . ....... . ......
                                                                                                                                                                                                               .....   .. ...........
                                               improve point access
                                                                                                                                                                                                               ...........
                                                                                                                                                                                                               ....... ....
                                                                                                                                                                                                               . ..... ....
                                                                                                                                                                                                               X.: .....
                                               st end of victory Blvd.                                                                                                                                                         ... ............
                                                                                                                                                                                                                               ...............
                                                                                                                                                                                                               ... ......... ..

                                                                                   .........                                                          encourage uses on major
                                                                                                                                                    streets leading to watertr
                                                                                                                            Aaft                         that will make public
                                                                                    @2    plan for eventual                                             access more attracti
                                                                                          dosing of Fresh
                                                                .........                                                                                                                                      -X
                                                                                           Kills landfill and
                                                                                               eve
                                                        ........... . ...                                                                                                          .....
                                                       ....................                                                                                                        .......
                                                       ...................
                                                                                            d      lopment
                                                                ...                             as park
                                                      ......... .
                                                                                                                                                                                   ...........
                                                                                                                            Nelson Ave.
                                                                  Ellis Rd.                                              Great Kills Rd.
                                                                                                                                                                                   ........ ..
                                                                boat launch                                              Armstrong Ave.                                            T*W.
                                                                                                                                                                                   ...........
                                                                                                                                                                                   .............
                                                                                                                                            lv@                                       X
                                                                                                                 Richmond Ave.
                                  study
                                feasibility        ..............                                                Arden Ave.
                                                   ..............
                                                                                                      Arbutus Ave.
                              of Wat,rfront
                              Access Plan
                                                                                                 Segluine                         ....... ... . .. . .....
                                                                                                   Ave.
                                                                                                                                       .............
                                                                              Sharrots
                                                                       Page Av
                                                                                                                                           .......  ...
                                                         Bentley       Ave.
                                                                                                                                                                                                                               .................
                                                         Ave.
                                                                                                                                                                                                                                     .. ..........
                                                                                                                                                                                                                               ..... ...........
                                                                                                                                                                                                                       .. ........ .
                                                                                                                                                                                                                       x
                                   ...................
                                                                                                                                                                                                                               .............
                                                                                                                 ................                                                                                      .......       ...........
                                                                                                           X
                                                                                                                                   :X
                                                         ............
                                                                                                                                                                                                                               ..................
                                 ..................... .                                                                                                                                                                       . .......... ....
                                                                                                                                                                                                                               ...............
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                                                                                                X
                                                                X                                          ................ .i...... ........
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                                                                                                           ...................i.........
                                                                                                           .............  ..............
                                                                                                           ............... ............
                                                                                                           ............................
                                                                                                           . ... .. . .......... ..


                              Public Waterfront Recommendations                                                                                             Staten Island



                                                          existing continuous or general                                                                                 proposed or improved point access
                                                          public access                                                                                                  or crossover
                                                          proposed continuous or                                                          ..............                 upland connection
                                                          general public access
                                                                                                                 .........
                                                                                                                 ............
                                                                                                                 ..........
                                                                                                                 ............
                                                                                                                 ............
                                                                                                                 .............
                                                                                                                 ............
                                                                                                                 ...........
                                                                                                                 ..........

                                                                                                                 ............
                                                                                                                 ...........
                                                                                                                 ..........


                                                                                                                 ...........
                                                                                                                 ...........


                                                                                                                 ..........































































                              Comprehensive Waterfront Plan                                                      NYC Department of City Planning                                                Public Waterfront









                                THE WORKING WATERFRONT


                    Historically, New York City's growth and                      0   identify opportunities to encourage fer-
                    prosperity were inseparable from its water-                       ries, excursion boats, marinas and other
                    front. As one of America's major ports of                         water-dependent uses;
                    entry for people and goods, the waterfront                    0   encourage waterborne transportation of
                    flourished throughout the 18th and 19th                           goods and people, and maximize inter-
                    centuries and well into the 20th. Today, the                      modal linkages;
                    working waterfront has changed dramatically
                    as a result of structural changes in the econo-               0   ensure that working waterfront uses are
                    my, technological advances in maritime activi-                    developed in an environmentally sound
                    ties, changes in the movement of freight, the                     manner; and
                    shift of most port operations to New Jersey,
                    and the steady decline of manufacturing in the                E   provide public access where appropriate
                    city. These changes have left many older piers                    and feasible.
                    abandoned and considerable shorefront prop-
                    erty vacant and derelict. Nevertheless, the port              The plan for the working waterfront classifies
                    remains crucial to the city's economy.                        working waterfront uses, analyzes their geo-
                                                                                  graphic concentration and dispersion, and
                    New York City's Working Waterfront contains                   projects future needs. it then proposes citywide
                    a range of water-dependent uses including                     and area-specific strategies for accommodating
                    maritime and maritime support operations,                     the future needs of working waterfront uses
                    marinas, waterborne transportation and com-                   and facilitating their development.
                    mercial recreational boating. It also contains
                    industrial and municipal uses many of which                   HISTORY
                    do not use or depend upon the water for their
                    operation.                                                    One key to the economic and physical growth
                                                                                  of New York City has been its extraordinary
                    Although reduced in size and economic signifi-                harbor, which has provided deep water access,
                    cance, these working waterfront activities still              shelter from the open sea, and a gateway to
                    play an important part in the city's economy.                 other parts of the country. These unique
                    The Comprehensive Waterfront Plan seeks to                    attributes make New York Harbor one of the
                    promote water-dependent and industrial                        finest in the North Atlantic.
                    waterfront uses in areas that are well-suited to
                    them. Specifically, the working waterfront goals              The Port of New York emerged as a major
                    are to:                                                       economic force in the 18th century. To accom-
                                                                                  modate it, the lower Manhattan waterfront
                    ï¿½    retain sufficient waterfront land to ac-                 underwent extensive landfill and wharf con-
                         commodate existing, and attract future                   struction. The East River and later the Hudson
                         industrial, maritime, municipal, and                     River were active with shipping. Steam ferries
                         other working waterfront uses;                           moved passengers and goods between Manhat-
                                                                                  tan, Brooklyn and New Jersey. New York's
                    ï¿½    identify infrastructure improvements and                 dominance of 19th century shipping was the
                         other investments necessary to sustain                   result of farsighted infrastructure investment
                         these uses;                                              such as the completion of the Erie Canal and


                                                                                                                                     83









                  construction of railroads connecting the port             Over the past 30 years there has been a steep,
                  to the nation's interior. By 1870, the Port               continuous decline in the city's industrial
                  handled 57 percent of the nation's trade and              sector' employment, in contrast with non-
                  was the largest port in the country. It contin-           industrial growth. The greater part of the
                  ued to expand until the 1920s, encompassing               decline, nearly 75 percent, is due to a loss of
                  hundreds of miles of developed facilities, and            manufacturing, although employment in
                  using more than 5,000' barges, 1,000 tugs,                transportation, communication and public
                  several hundred ferries, passenger b    'oats and         utilities (TCPU) and wholesale trade also has
                  freight boats to handle commerce.                         declined. Since 1963, shortly after the current
                  Port operations changed when trucks began to              Zoning Resolution was adopted, manufactur-
                  capture an increasing share of commercial                 ing employment has declined by more than 55
                  traffic. As manufacturing in the port region              percent, and total industrial sector employ-
                  declined and the interstate highway system                ment by more than 42 percent, New York's
                  emerged, the number of vessels needed to                  maritime industry suffered a similar decline,
                  distribute goods decreased and ferry use de-              and certain water-dependent industrial sectors
                  clined sharply. Airplanes replaced ocean liners           showed even sharper drops.
                  for intercontinental travel.




















                                                                                                                           V@_


















                  View of East River Working Waterfront, 1956                                  Source. Brooklyn Historical Society

                  84









                  Major factors in this decline were the rapid              others have remained vacant. Many have
                  growth in "contain&ization," which revolution-            suffered from serious neglect and deterioration.
                  ized shipping, and the shift of most of the port          Even in strong industrial areas, such as Long
                  operations to the New Jersey side of the har-             Island City, much of the waterfront has re-
                  bor. The change in maritime technology from               mained underutilized.
                  the labor-intensive break-bulk shipment to
                  containerization' required fewer but larger               THE WORKING WATERFRONT
                  port facilities with modern containership piers,          TODAY
                  warehousing and distribution facilities. The
                  Port Authority developed extensive facilities on          ZONING
                  the New Jersey side of the harbor, which had              The manufacturing districts mapped on the
                  sufficient land for these port facilities and             waterfront in 1961 have remained largely
                  superior access to the nation's rail lines and            unchanged. Approximately one-third of the
                  interstate highways. As a result, most port               waterfront is zoned for industrial uses. Many
                  cargo activity shifted to New Jersey.                     of these waterfront areas adjoin upland indus-
                  With the exception of northwest Staten Island             trial areas. Some waterfront industrial areas are
                  and portions of the Brooklyn waterfront, New              close to residential uses because housing was
                                                                            built there for industrial workers. Some are
                  York City was considered a poor location for              separated from upland areas by railroad tracks,
                  modern marine terminal development. In                    arterial highways or grade changes. Most
                  1960, the city handled 75 percent of the port's           working waterfront uses require industrial
                  cargo; by 1990 its share had dropped to 15                zoning. (Map 5.0.)
                  percent. According to the Port Authority, the
                  port's maritime industry contributes $18                  In the Bronx, major waterfront industrial areas
                  billion to the gross regional product and                 are located in Port Morris and Hunts Point in
                  supports 180,000 jobs in the region. The port             the South Bronx. These areas contain concen-
                  is the second largest in the country (Los                 trations of M3 zoning (heavy industrial uses
                  Angeles/ Long Beach is the largest) based on              permitted). Smaller and narrower industrial
                  volume of imports.                                        zones with less area upland are located along
                                                                            the Harlem River, the lower portion of the
                  Large sections of the city's waterfront land              Bronx River and the upper portion of the
                  deteriorated as industry declined and the role            Hutchinson River.
                  of waterborne and rail freight diminished.
                  Access to the waterfront or a rail line was once          Manufacturing districts are mapped along the
                  an essential requirement for industry; access to          Brooklyn waterfront from Newtown Creek to
                  the nation's highway system is now more                   Owls Head and along the Gowanus Canal. The
                  important, which is due in part to the disper-            Sunset Park, Red Hook, Navy Yard and
                  sion of households and businesses, both in the            Newtown Creek industrial areas contain rela-
                  city and elsewhere, and trucking's superior cost          tively deep M3 zoning districts. Portions of the
                  competitiveness for short-haul freight.                   Navy Yard and Greenpoint-Williamsburg East
                                                                            River waterfront industrial area have residen-
                  Over the last several decades, industrial uses            tial and mixed use areas in closer proximity.
                  that often do not need waterfront locations
                  have replaced some traditional water-depen-               Much of the waterfront and piers on the west
                  dent maritime uses. Municipal uses, often not             side of Manhattan (except for parkland), and
                  water-dependent, have developed on some of                portions of the east side, are zoned for manu-
                  these sites. In many instances, properties have           facturing. In Upper Manhattan, waterfront
                  been "landbanked" by both public and private              areas and adjoining upland in the vicinity of
                  owners. Some of these properties have been                West 125th Street and Sherman Creek are
                  occupied by temporary uses such as parking;               zoned for industry.

                                                                                                                            85









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                                                                                              @
                                                                                              Existing Waterfront Manufacturing Zoning Districts

                                                                                                          .


                                                                                              =waterfront manufacturing zoning district
                                                                                              @4

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                                                                                              rF
































                                                                                              Comprehensive Waterfront Plan / NYC Department of City Planning / Working Waterfrontj









                  In Queens, a portion of Long Island City, one             marina and marina support; commercial
                  of the city's largest industrial areas, abuts the         excursion and boating; and transportation uses
                  East River. Industrial zoning extends along the           (ferries, airports, heliports and rail car float
                  Upper East River shoreline from Astoria to                facilities). The working waterfront also in-
                  Flushing Bay and LaGuardia Airport. Industrial            cludes municipal and utility uses, some of
                  zoning, much of it M3, is located along the               which are water dependent, and industrial uses
                  Flushing River and Newtown Creek and in                   that are not water dependent.
                  College Point. Kennedy Airport (JFK), located
                  in southern Queens near Jamaica Bay, is                   The geographic distribution of these uses
                  mapped MI.                                                varies considerably. Certain water-dependent
                  The north and west shores of Staten Island are            uses tend to cluster in specific geographic areas
                  zoned primarily M3. The industrial area along             because of technological requirements, loca-
                  the Kill Van Kull tends to be narrow with                 tional criteria, and hydrographic conditions
                  residential uses nearby. The West Shore indus-            (water depth, currents and wave action). Other
                  trial areas are considerably deeper, but large            water-dependent activities are dispersed along
                  portions are unusable for industrial develop-             the waterfront according to market or service
                  ment because of concentrations of tidal and               catchment areas. Industrial uses for the most
                  freshwater wetlands.                                      part are concentrated in areas with manufac-
                                                                            turing zoning and good access to Manhattan.
                  WORIUNG WATERFRONT USES                                   The following sections describe these working
                  Today's working waterfront encompasses four               waterfront uses, their siting requirements,
                  categories of water-dependent uses: maritime,             future trends and space needs, the constraints
                  maritime support and certain     industrial uses;         they face and opportunities ahead.















                                                                                                                        N





                                                                                                                  @: 0,@@R
                                                                                              w/o



                       Red Hook Marine Terminal, Brooklyn


                                                                                                                            87









                 Maritime, Maritime Support, and                          warehousing coffee and cocoa. The 25th Street
                 Industrial Water-Dependent Uses                          Pier is a vacant five-acre site for which EDC is
                 These uses include port facilities for the sea/          seeking a long-term maritime use.
                 land transfer of cargo (e.g., containerports and         Manhattan Piers 36 and 42, known as the
                 break-bulk docks); maritime support facilities           "banana Piers," were used for fruit shipment
                 such as tugs, barges, ship service and repair;           until the 1970s. They have been used primarily
                 and industrial uses that receive or deliver              for warehousing and storage since then. The
                 materials or products by water. (Map 5.1.)               city recently signed a lease with an operator to
                 Maritime Facilities                                      use Pier 42 for importing and warehousing
                 The city's port facilities have deep water,              coffee. Pier 36 is expected to continue to be
                 reasonably good transportation access, and               used for non-water dependent municipal uses.
                 available upland for storage and operations.             Brooklyn Piers 1-6 are used for warehousing
                 They include the Red Hook Marine Terminal,               and vessel tie-up. For the past several years,
                 the South Brooklyn Marine Terminal (SBMT),               the Port Authority has been considering alter-
                 the 23rd Street Terminal and 25th Street Pier            native uses for Piers 1-5.
                 in Brooklyn; the vacant Howland Hook Ma-
                 rine Terminal and the Homeport Naval Base                The Homeport Navy Base on the eastern shore
                 in Staten Island; and Manhattan Pier 42.                 of Staten island has its operational center in
                 The Red Hook Marine Terminal is the city's               Stapleton and support functions in Fort
                 only active containerport. The volume of cargo           Wadsworth.
                 handled by this 118-acre facility has increased          Because of excess capacity, no new port facili-
                 over the last decade, and it is now operating at         ties are needed in the city. The city and
                 full capacity. It handles container and break-           public agencies are seeking greater utilization
                 bulk operations for several firms importing              of existing facilities by identifying "niche"
                 from southern Europe, South America and                  markets best served by New York locations,
                 elsewhere. Red Hook has been particularly                and by targeting marketing efforts. Attracting
                 successful in attracting consumer commodities            new development will depend on improved
                 such as food, furniture and clothes destined             transportation access. Because the reconstruc-
                 for the metropolitan market.                             tion of the Gowanus Expressway will adverse-
                 The 187-acre Howland Hook Marine Terminal                ly affect trucks serving the Red Hook Marine
                 is the largest marine terminal on the New                Terminal and nearby industries, the Port
                 York side of the harbor. It has been virtually           Authority and New York State have instituted
                 unused since 1990. The Port Authority is                 a barge service that floats freight to New
                 completing major repairs and improvements                Jersey from Red Hook. Efforts to revitalize
                 for use of Howland Hook as a full service                the car float operations at the 65th Street
                 containerport. It is marketing the facility for          railyard in Brooklyn (operations are currently
                 both container and break-bulk shipping.                  located at 51st Street) are expected to im-
                                                                          prove freight movement and the marketability
                 The I I O-acre SBMT was occupied until 1986,             of maritime and warehouse space. In addi-
                 and is partially occupied today by the cocoa-            tion, the city is'exploring the purchase and
                 port. It is the nation's second largest import           rehabilitation of the Staten Island Railroad
                 center for cocoa. The city is seeking to expand          Corporation right-of-way to provide rail
                 cocoa operations and to attract other com-               service from New Jersey to Howland Hook
                 modities such as fruit and meat to the SBMT.             Marine Terminal and a new intermodal
                 The 16-acre 23rd Street Terminal also is used            facility at the adjoining Arlington Yard.
                 as a break-bulk terminal for receiving and

                 88










                                                                                                                                                                   ........                                          .........................
                                                                                                                                                                   .......                                           ..........................
                                                                                                                                                                                                                                   .............
                                                                                                                                                                                                                                   .............
                                                                                                                                                                                                                     .............. ............
                                                                                                                                                                                                                                   ..... ...
                                                                                                                                                                                                                     ................. .........
                               MAP 5.1
                                                                                                                                                                                                                     ............ .
                                                                                                                                                                                                                     ............  . ..........
                                                                                                                                                                   ........                                          ............ ...........
                                                                                                                                                                                                                     ............  . ............
                                                                                                                                                                                                                     ..............

                                                                                                                                                                                                                     . .. .........
                                                                                                                                                                                                                     ... ............
                                                                                                                                                                                                                     . .......... ......
                                                                                                                                                                                                                     . . ..........
                                                                                                                                                                                                                                   ..............
                                                                                                                                                                                                                     X
                                                                                                                                                                                                                     . .. ................
                                                                                                                                                                   . . . . .......

                                                                                                                                                                                                                     ...........

                                                                                                                                                                       the                                           ...
                                                                                                                                                                                                                     ...... .....
                                                                                                                                                                                                                     XX-X-:.X-X.:-X-*
                                                                                                                                                                     Bronx                                           ... ...       ....
                                                                                                                                                                                                                     .........

                                                                                                                                                                                                                     a

                                                                                                                                                                   X

                                                                                                                                                                                                                     ............
                                                                                                                                                                                                                     .................
                                                                                                                                                                                                                     . ................



                                                                                                                                                                                                                     ......... ....
                                                                                                                                                                   .. ............... ..
                                                                                                                                                                   ................

                                                                                                                                                                                                                     ............
                                                                                                                                                                                                                     ...........

                                                                                                                                                                                                                     .............
                                                                                                                                                                                                                     ..............
                                                                                                                                                                                                                     ............
                                                                                                                                                                                                                     ...........
                                                                                                Passenger                                                          X.:
                                                                                                              Ship
                                                                      New                                              ........
                                                                                                                       .2
                                                                     Jersey
                                                                                                     Terminal




                                                                                                     Pier 42
                                                                                                                                                                                                                     Queens
                                                                                                                       ......          ......
                                                                                                                                       Nip
                                                                ..... ..........
                                                                                                                                           Red Hook
                                                                         ....                        ......   ................
                                                                                                              V                            Marine
                                                                   ...........
                                                                                                                                           Terminal
                                                                                                     ......................
                                                                  ...........
                                                                                                                                           23rd St. Terminal
                                                                        X.                      ..............
                                                                                                                                                                                                                     09
                                                                                                                                       25th St. Pier
                                                                                         . ....... ..         :..                                                         0,::..                                     ::@
                                                                           ..........                         ........
                                                                                                              qy

                                                                      .. ...........
                                                                             ..........              . .........
                                                                            ME'        0             ..........
                                                                                                                               South Brooklyn
                                                                                                                               Marine Terminal
                                                                                                                                                                          ;:j:: .... X_i:...
                                                                                                                       Homeport
                                                   X.
                                                            Howland Hook                                                                                           . ..........
                                                                                                              ............
                                                                                                              .............                                        ............. ...........
                                                                                                              ..............                                       ...... ............ ...........
                                                           Marine Terminal                                                                                         ::::. V... ... .::::::: :                         0 @:
                                                                                                              ...............
                                                                                                              ..............
                                                                                                              ...................
                                                                                                                                                                   ..................
                                                                                                                                                                                                                     ............
                                                                                                                                                                   ...                                               ............
                                                                                                                                                                                                                     .................. ........
                                                  :X                                                                                                               .........                                         .........
                                                                      Staten                                  ...... ........
                                                                                                              .........                                            .........

                                                                                                                                                                   ..... . ......                                                  ......
                                                                      Island                                                                                                                                                       . .....
                                                                                                              X
                                                                                                                                                                                                                                   ..................
                                                ...                                                                                                                                                                  ....... ...........
                                                                                                                                       . ....                      . ... .. .......
                                                 X                                                                                     ...........                 ..........
                                                                                                                                                                              . .. ........                          .......
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                                                                                                                       ..............      .........                                                                 ......

                                                                                                                                       :F::::::FFF1FF:::X.::_.
                                                                                                                                                                                                                     d
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                                                                                                                                                                                                                     ........... ....... :::::
                                                                                                                                                                                                                     ......................
                                                                              ... .......                                      ..................                             .............
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                                                                               .............. ....            ......
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                                                                                                                                       ..................                     .........                                                 ...
                                                                                     ... ........                              .......I.. ..............                                                             ....................
                                                                                                                                       .............                      %-- .....                                  :::: .........
                                                                                                                                                                          ...........                                .....
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                                                                                                     .......                           ........                                 ......                               ............... ....... 11 ...........
                                                                                                                                                                                                                     pZ.... ...... .......... .......
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                                                                .............                        . ..........              .......                                                                               .......       .........
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                                                                                                                               ::      11 ................
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                               .......             ........                                                   .............. ....... :.                                   ... I I                                    -.....-.-.....:.:...*.*.*
                                                 .. ...... .............          ........           ...                       ......                              . . . . . .. . . . . .. . . . . .. . . . . .. . . . . .. . . . . .. . . . . .. . . . . .. . . . . .. . . . . .......
                                                                               .................                                                                                                                     ... ...
                                             :X`X`,X::::                                                                                                           ...............
                                                                                                                                       ........ .......... .. ... . .. ....                                                        ... ....
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                                                                                                              ....................                                 :.:, ........... ::: ... :,:*
                                                                                                                                                                   . . ......... .:: ........                                           :XA
                           X....                                                                                                                                   X
                                                                                                                       ...................... ............         .....................
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                                                                                                              ..........................                                                                             .......... ......... .........
                                                       ..................            ......................                                                                                                          ....................................
                                                                                                              ..............                                       ......                                            ..................... .................
                                                                X.                                                                                                                                                   .......
                                                                :::$::M                                                                                                                                              . .....................
                                                                                                     ...               ..........                                                                                    *****::::X:-:-;-;X-:-: .......................
                                                                                     ...........                                       . .................
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                                                                                                                                                                                                                     .................
                                                                                                                               ..............I.................
                                                                                                                               ................................                                                                    ............

                           Maritime and Water-Dependent Industrial Uses


                                       maritime terminal or pier                                                                       0                           water-dependent industrial use

                                       maritime support
                                                                                                                                                                   E






















                           Source: NYCDCP, Water-Dependent Use Study, (1991).


                           Comprehensive Waterfront Plan / NYC Department of City Planning / Working Waterfront









                  Maritime Support and Water-Dependent                     ters to satellite centers or users. Approximate-
                  Industrial Uses                                          ly 260 maritime support firms employing
                  Maritime support uses such as tugboats and               4,200 workers are located in, and serve the
                  floating construction equipment tend to                  port. More than 700 large vessels and 100
                  cluster in manufacturing zoned areas that are            pieces of floating construction equipment,
                  close to major shipping channels and port                with a value in excess of $2.5 billion, are
                  facilities. Their siting needs include deep              based in the port.
                  water and protection from waves and cur-                 Water-dependent industrial uses, such as bulk
                  rents. Existing concentrations are the Kill Van          oil storage facilities, utilize the water for re-
                  Kull, the Brooklyn waterfront from Erie Basin
                  to Owls Head and from the Red Hook Ma-                   ceipt of materials or shipment of goods. In
                  rine Terminal through Pier 6, the Brooklyn               recent decades there has been a significant
                  Navy Yard, both sides of Newtown Creek,                  decline in traditional maritime and industrial
                  and the lands under water off the Throgs                 water-dependent activity in the city. A 1965
                  Neck peninsula (for mooring of vessels). Tug             U.S. Army Corps of Engineers survey of port
                  boat operations require dispersed locations              uses recorded 673 water-dependent uses in
                  for tie-up.                                              New York City. A 1988 update documented
                                                                           369 such uses - a decline of 45 percent.
                  Maritime support services, many of which are             Despite this decline, there may be opportuni-
                  located on the New York side of the harbor,              ties for modest growth in certain uses such as
                  are crucial to the health of the port. They              maritime support as the region's economy
                  provide services to cargo ships, and they                expands.
                  transport goods from large distribution cen-





























                      The Amstar Sugar Refining Company along the East River in Williamsburg



                  90









































                                                                    4









                      Full-service marina on City Island, Bronx


                  According to the Maritime Support Services                recreational vessels. Marina support activities
                  Location allLdL growth in oceanborne trade                include boat repair and maintenance, boat
                  is expected to average about five percent per             storage, fuel, waste pumpout, and sail making
                  year. The report estimates a modestly growing             and repair. Marinas and marina support activi-
                  need for new tugs, deck and tank barges, and              ties tend to cluster in areas with moderately
                  floating construction equipment. The project-             deep water protected from currents, strong
                  ed additional land requirement for maritime               winds and wave action, and where conflict
                  support services in the city is relatively small,         with maritime and maritime support vessel
                  involving one nautical mile of berthing space             activity is minimal.
                  and 40 acres of upland. The study concludes
                  that these needs can be accommodated in                   Because full-service marina support facilities
                  existing areas of concentration. Much of the              (e.g., fuel, pumpout, repair, boat sales, and
                  new berthing space will come with develop-                winter storage) frequently generate noise and
                  ment of the Bargeport at Erie Basin in Red                odors, they are allowed only in manufacturing
                  Hook. Industrial areas like Sunset Park, the              zones and in certain commercial zones. Lim-
                  Kill Van Kull, Newtown Creek and the                      ited-service marinas could be compatible with
                  Brooklyn Navy Yard also offer suitable hydro-             uses in residential zones but are not now
                  graphic conditions and upland to accommo-                 permitted. Areas of marina and marina sup-
                  date existing and future needs.                           port activity are: Jamaica Bay, Sheepshead Bay,
                  Marina and Marina Support Uses                            City Island (including the Long Island Sound
                                                                            area off the East Bronx), and the south shore
                  Marina uses include full-service marinas,                 of Staten Island from Great Kills Park to
                  accessory docks, and single docks for private             Raritan Bay.


                                                                                                                            91









                                                                                                                                   .........                                             ..............



                                                                                                                                                                                      ... .........
                    MAP 5.2

                                                                                                                                   ..........                                                           ........
                                                                                                                                   ..........                                                           ......
                                                                                                                                                                                         . ........ .. .


                                                                                                                                                                                      .. ........
                                                                                                                                   ..............
                                                                                                                                                                                            ............ ......

                                                                                                                                                                                      ... ............

                                                                                                                                                    The
                                                                                                                                                    Bronx
                                                                                                                                                                                      ............
                                                                                                                                                                                      .... .... .....






                                                                                                                                                                                      ..........
                                                                                                                                   .. ........                                        .............


                                                                                                             ........                                                                 ....
                                                       New
                                                      Jersey
                                                                                                   . .... ... . .


                                                                                                   ....          ......


                                                                                               ......            .....


                                                                                                                                                                                      Queens

                                                                                                   ..... .........
                                                       .........                            ...................
                                                                                            ..............


                                                                                            . .................. ......
                                                                                            ........................



                                                                                            ...... .. ............


                                                ..............               ....           .........
                                               ..............


                                                 ..........
                                                                                                             Brooklyn
                                                                                                                                                                                      ...........
                                                                                                                                                    ..........
                                                                                            .......                                      .. ................ ......                   .........
                                                                                                                                                    ........ .                        ....

                                                                                                                                                    ... .. . ... ..

                                                                                                                                   ... ...........
                                                                                            Ell                                    ...............
                                                                                                                                                    .. ..........
                                                                                                                                                                                      ::X*@_:%. j@::.

                                                                                                                                         ............
                                                                                                                                         ..............
                                                                                                                                         ....................                         ................
                                                                                            ............
                                                                                                                                                                                      .. .............. ............................
                                                                                            .............                          ...                                                ...................... ................................
                                                                                            ..............
                                                     Staten                                        V13
                                                                                                                                                                                      ..................................
                                                                                                                                                                                      ..............................
                                                                                                                                         ............
                                                                                                                                                                                      ...       ........
                                                     Island                                                                        .....            .......                           .......................
                                                                                            .......... . ....                                                                         .....
                                                                                            ..........-                                                                               . . . . ......
                                                                                            . . .............. .......... .................                                           ....... ..
                                                                                                                                                                                                        ..........
                                                                           ..........
                                                                                            ......... .                                             .. .....                          ........ .............. .. .........................
                                                                                                                                                                                      . .... .....
                                                                                            ...................
                                                                                            ................                                                                          . ...... . ....   ...
                                                                                            .....................                                                                     ......
                                                                          .................................I..........-                                                               ... ..
                                                                                            ................ . . .. ...............                                                   .... .......
                                                                                              .. ...............
                                                                                                                      .......      ........                                           .. . ........  .................
                                                                                                                    ..........           ..........                                   .. . . ..........
                        ................                                                                              ......       .................                                           ...........
                                                                                            .. ............                                                                           . .........
                                                                                            .............. ............            ...
                                                                                                                                                                                      ............. ...............................................
                                                                                                                                   ......                                             .... ........................ ........................................
                                                                                            ...............                        .. ..............
                                                                                            .................    .................                                                    ....... .. .........
                                                                                                             .......................                                                  .................... .........................................
                                                                                                             ............................................................................................-.......................................
                                                                                                             .......... ..............................                                ............. .................  ........
                                                                                                                                   ............
                                                                                                                                                    ..........................
                                                                                                                                                                                      . .. ..................... ...
                                                                                                                                                                                      ........ .................. .......
                                                           . .........   ............       . .................... ..........      ...................... ......                      I...............
                                                                       ...............      46 ..t'          . .........
                                                         ..............                     ............ ...... ...... ...................
                                                                                            ................ ...... ..................              ...............
                                                                                                                                                                                      ...................
                                                                                                                                   ........                                           ...........
                      ......                       .. ...... . .....                                                                                                                  .........................
                                                     ...................... .                                    .....................                                                ......... ......... .......
                                                  . ............*........... -::
                                                                                                                                                                                      . .. ... .... ..............................................................
                                                                           ..................................................................
                                                                                                                                         ...........                                  ...........       .......
                                                                                                             ........ ........     ........                                           #4660A..
                                                 ............................  ............. ............                                                                             At ........
                                                                                                                                                                                      .............. .......
                                                                                                                                                                                      . ....... ............ . ...
                                                                          .........................                                      .... ........ .........                                        ......
                                                                        ... .....................                                                                                     ............ .................... ......
                                                 ......................                                                                                                               ..... .............
                                                          .......................
                                                                                                             .......................... ................
                                                      .......     .......... . ... . ....
                                                                                                                                                                                      .......... .. .... ......... ... ............
                                                                                                                                                                                      ......... ......... .... ....................-...........................
                              ...... ..                                                     .......              ...
                                                                                                                                                                                      .......................
                              ..... ... ... ...... ........... . . ........                                                        r....................... .................                           ........
                ............. .............. ................. ............                 ...                                    ............. . ....
                ............         .... ...... ........... `.`.`.'.'.'.-** ........- ............................. ................................ ............................ .......... . .. ......I..................... .
                                                              .. ...    .. ...........                       . . .. ......... .. . . .. . .
                                                                                                                                   ........................................           ......... .. . ...
                                                                                                                                                                                      ....... .....
                                                                                                                                                    ...........
                ............          ...... ....... ....... .... .....                     .. ...............................     .............
                                                                                            X...............................
                ............  ................                                                               ........
                                     ..........-...............                             ......           ........                    .......
                   ....       ........                  .......
                                              ..... .............                                            ..... ...................... ...                                         .................................
                                                       S:  ......................................................................................................
                                                ULZ                                         ................................................................... ... ....... .....
                                                                                                                 . ................. .........
                . . . . . . . . . . . . .
                                               .......         ....                                              ..........................-        ....                              . .......
                                                                                                                 .................................... ....


                Marina Uses


                0        existing full service marina
                0        existing yacht club or marina (not full service)
                13       proposed marina or yacht club



                Source: DCR NY / NJ Harbor Estuary Water Use Management Study, 1991.
                Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                       Working Waterfront

































                                                                  goo


                                                                                          ...........















                      Circle Line excursion boat passing under the Brooklyn Bridge


                  Although the number of commercial marinas               sight-seeing). They are permitted in manufac-
                  declined 30 percent (from 102 to 71) between            turing and certain commercial zones. Clusters
                  1970 and 1991, the number of boat slips                 of commercial excursion uses are in lower and
                  increased by 30 percent to about 13,000,                midtown Manhattan, Sheepshead Bay and City
                  indicating an industry trend toward larger              Island; others are dispersed throughout the
                  marinas. Marina support services declined               waterfront. Because commercial excursions are
                  with the decline in marinas, but increased              an important tourist draw and a recreational
                  numbers of slips and boat registrations sug-            amenity for the city's residents, many of these
                  gest demand for additional boating facilities           uses could be integrated into a wider range of
                  in the city. Should there be a significant              commercial and mixed-use zoning districts.
                  increase in new accessory slip marinas, more            (Map 5.3.)
                  marina support facilities might be required.            Although harbor cruise and sightseeing excur-
                  These operations, like maritime support                 sion activity declined sharply starting about 50
                  facilities, require C3 districts or industrially        years ago, it increased in the past decade.
                  zoned land and maintenance dredging to                  Cruises to the Statue of Liberty, which have
                  sustain operations. (Map 5.2.)                          been in continuous operation since the late
                  Commercial Excursion Uses                               1800s, have been joined by other operations
                  Commercial excursion uses include waterborne            such as Circle Line, World Yacht, the South
                  leisure and sporting activities (e.g., fishing,         Street Cruise Lines, the Spirit of New York, the
                  overnight cruises and dinner cruises) which             Pioneer, the Petrel and numerous smaller
                  depend on proximity to coastal waters, and              operations. In 1991, 32 operations with 65
                  commercial- recreational boating activity (e.g.,        vessels were providing excursion boating.
                  commercial vacation cruises, excursions, and            Many of these operations are located in or


                                                                                                                         93






                    AAAP 53



                                                                                                                                                                                            . .........
                                                                                                                                                                                            ::::::w:::X:: . . . . . .. . . . . .. . . . . .. . . . . .
                                                                                                                                                                                                     ... ........
                                                                                                                                                                                                     ...........
                                                                                                                                                                                            .. ........

                                                                                                                                                                                            ... . . ........ .......
                                                                                                                                                                                            .................. .

                                                                                                                                                                                            ...........

                                                                                                                                                                                            .. .. .........
                                                                                                               P
                                                                                                                                                                    .....                   . . .......


                                                                                                                                                                                            ........ . . . . . .


                                                                                                             ... .. ... . .
                                                                                                             .... rX
                                                                                                                             X

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                                                                                                                                                                  ............
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                                                                                                        ........             ... ..  . . . ...
                                                                                                                                 ........... .......


                                           ..X
                                                                                 Passenger
                                                                                         Ship
                                                                         ...       Terminal
                                                                     ...                        .......



                                                                 X.
                                                          X.     -X                             .......
                                                                                                :113


                                                                                                      ::j:j
                                                                                     ........  ... ......

                                                   . ..........          X
                                                     ...........
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                                                                                           .........
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                                                 ..............             ........

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                                         ............ ::
                                                                                ..........


                                                                                                                                                                 ...........
                                                                                ............                                                ..................


                                     X,                                                                                               *."*.*::: ......

                                                                                                              Sheepshead                            ........ ....-
                                                                                          .............
                                                                                            ...........
                                                                                                                   Bay                                     ...                              ...........
                                                                                                                                                                                            .........

                                                                                                                                                                                                     ............
                                                                                                                                                                                            .. ................ ......................
                                                                                                                                                                                            ........................ .... ....
                                                                                                                                                                                            ........................ .. .......
                                                                                .......................
                                                                                                                                                                                            .................
                                                                                                                                                                                            -..X...::: ...................
                                                                                                                                                                                            .::::ww:::%.'.' *."*'@.:.:.:.:::.:.:.:.:.:.:.:.:.:.:.:::-
                                                                                                                                                   ...                                      . ........
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                      ... .......
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                                                                                                                                                   ....                                     ....... ...
                      . . . . ......
                                                                                                                                                                                                     ...........
                                                                                                                             ................ F.
                                                                 .... ......                                                                                                                ......... .......
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                                                                                                                                                   ...                                      ..............
                                                          .... . ............
                      .....                                                                                                                                                                 ...... ....
                                                                                                                                                                                            ...............-................
                                                                                                                                                                                            . .. .... .. ........
                                                                                                                                                                                            ................................
                                                                                                                                                                X:
                                                                                                                                                     X
                                                                                         Y,           .......
                                                                                                ............                                                                                . .......
                                                                                                ...............                                                                             ... ... ............. . ...
                                                                                                                                                   ..............                                    .. ... . ...
                                                                                                                                                        ...                                 ..............
                                                                                                                                                                                            . ....... ..
                                                ..............                                        ........
                        X                     .......... .
                                                                                                                                                        -A
                                                                                                                             ..................
                                                                                                ..................... . .......... ................... .................
                                                                                                ................                            ........... ............                        ....
                                                                                                -XXXXXXx                                                                                             ..............
                    .....              . ... ..
                                                                                                                             X
                                         .......  ...X                                          .............                                                                               .... .. .........
                                                                                                                                                                                                     ...........
                                                                                                                                                          ...............
                                       XX                                                                                ........                                   ........
                                                                                                                              . ............... .                                                    X
                                                                                                                                     ........ ..        ........                            ..... :.X-::::::::-:-X-
                                                                                                      ................                             .. .....
                                                                    ........                          ........                                     ................
                                                                                                                             ........................
                                                ........ .. .........................
               ............ .......                       ::: ........                                                                             . . . . . ''    -                                 : :...........
                                                          X       ..............                                                                   .......;::::: X"""""
                                                                                                                                                   ........ ..                              .... .
                                                                                                                                            .. ........

                  ....... ..                   ........................                         ...... ............... .......                                  .....                       ....
                 ..........                                                                                                                                  .....
              ............ .                                                                                                                              .. .......
                                     ...........
                                                                                                                                                                                            ...........
                                                              ...............                              ................                                       ...............           .............
                                              :A'A LE'S ...                                     .......                                                                                     .... ....... ............ ........
                                                                         ..........                                   ........ ... ....
                                                                                                                                         . ............          ................
                                                                                                                                            ...........
                                                                                                                                                                                            ...................................
                                                                                                                                                                                            .... ............................


             Commercial Cruise and Excursion Uses


                    0                      commercial cruise ships                                                 III        existing excursion, sightseeing boats, etc.

                    or 4wwwA               concentration of commercial                                             0           proposed excursion, sightseeing boats, etc.
                                           sport fishing boats
                                                                                                                                                   a

























               Source: DCP, NY / NJ Harbor Estuary Water Use Management Study, 1991.

               Comprehensive Waterfront Plan / NYC Department of City Planning                                                                              Working Waterfront









                    near to, and are compatible with, commercial              Transportation Uses
                    developments or parks. The number of excur-               Transportation uses include the public ferry
                    sion boats for day hire or charter is expected            service between Manhattan and Staten Island,
                    to increase modestly in the future, as are                private ferry lines, heliports, airports, and rail
                    sightseeing, excursion, and cultural/education            and car float facilities.
                    vessels. Growth in these activities would re-             Ferries
                    quire additional docking locations. Potential             Ferries tend to have dispersed points of origin
                    opportunity sites are shown on Map 5.3.                   although most ferry operations terminate in
                    Oceangoing cruise ship activities once                    Manhattan. All ferry services except one cur-
                    helped define New York City's image; only                 rently dock at publicly owned piers. Ferries
                    14 cruise ships, generating about 200 trips               require easy access to their markets; parking is
                    annually, now call at the Port Authority                  usually important for stops outside of Manhat-
                    Passenger Ship Terminal. Cruise ship activi-              tan. Ferries can be compatible with commer-
                                                                              cial and residential developments and are often
                    ty is unlikely to expand.                                 viewed as traffic impact mitigation or as mar-
                    Most commercial sport fishing operations are              keting tools for new development. (Map 5.4.)
                    located in City Island in the Bronx, and in               The publicly operated Staten Island ferry is the
                    Sheepshead Bay in Brooklyn. They require                  oldest and largest of the ferry services. It has a
                    upland area primarily for parking and are                 daily ridership of approximately 65,000. Private
                    usually located near major commercial streets.            ferries were non-existent in 1985, but by 1991,
                    There are 30 commercial fishing vessels in                7 private ferry routes carried more than 16,000
                    New York.                                                 riders daily.








                        N






                    PUP





                                                                                                                         . . .........

                                                                              '@ffl WMMMM,1@1.,,??@/Q. 5 5"1


                    Ferry shuttle to LaGuardia Airport leaving Pier 11 in Lower Manhattan


                                                                                                                              95












                                                                                                                                           ........                                                                            .....
                                                                                                                                          .... .....                                                                           .....
                         MAP 5.4                                                                                                           ........

                                                                                                                                      X-


                                                                                                                                      ...... ....

                                                                                                                                                                                                       ...........

                                                                                                                                    m:' -X


                                                                                                                                    . .....                                Ferry
                                                                                                                                                                           Point
                                                                                                                                         N                                 Park


                                                                                                                          4
                                                                                                                                                                                           .........
                                                                                                                                                                                                        X
                                               X.


                                                                                                                X. % .....

                                                                                                                                                           ia
                                                                                                                                               LaGuardia
                                                                                                                                    ...            Airport
                                                                                     Pier 84
                                                                                                                                       E. 60th St.                Rushing
                                                                                                                                    ....                             Bay
                                                                                                   's
                                                                                    W. 40
                                                                                                   ---740
                                                                              Port Imperial
                                                                                                                                        E. 34th St.
                                                                                                   St - ------
                                                                              W. 30th

                                                             X.                                    BPC -- -------
                                                            1:K...                                                                  Pier   1
                                                                              South Ferry.,                                         Wall St.
                                                                                                                                    Slip 5
                                                          .........                                .........               Battery Maritime Bldg.
                                                                                                                          overnors Island                             Kennedy
                                                                                                                      G
                                                                                                                                                                         Airport
                                                                                                   ......... . . ... ..... . .
                                                                                                                                                                         13'
                                                                                                        Brooklyn
                                                                . ........                         ..........
                                                                                                   13 Army                                      Canarsie
                                                                                                        Terminal
                                                                                                                                                                                   :-:X-X-X.
                                                                                                   69                                                                              . ..... ..
                                                                              George               :..                                                                     -  - -          .
                                                                                                        th                                                            ..X.."..'
                                                                                                                                                                    ......... ...
                                                                                                   ....... St.
                                       .....                                                       ......


                                                                                                                                    Knapp St.
                                                                                                   .............. . . ..
                                                                                                                          Sheepshead. Bay

                                                                                                                                        .. ...                                                              .. ......................
                                                                                                                                                                                                            . . . . . . . . . . .

                                                                                                                      . .............. .                                                                    . ......
                                                                                                                :XXXXXXX.,                                                                                ...... ......        -:-X-X
                                                                                                                          ...................
                         . . ........                                                                                     ........               ........
                                                                                                                                                                                                  ..........
                                                        Great                 .. ....
                         .......... ..                                        .... ..                                                                                                      ....                        .............
                         ...........                                          ........                          ...........                                                                .....
                         ..........                                           ...........                       ..........                                                                 ....                        . ...........
                         ...... .                                             ..........
                                                                              ..........                        .. .. .......
                                                          Kills               ....... . . . . .                 ........ . . . . . .                                                       ....                        .............
                                                                                                                                                                                           ....                        ............
                                                                              ............
                                                                                                                                                                                                                       .............
                                                                              ............                                          ......                                                 ....                        ............
                                                                              ...........
                                                                                                                                                                                                                       ............
                         ...                                                  ........                                                                                                     . . ....
                         ....                                                 ..........                        ......
                         .....                                                .........                                             ......
                                                                              ........... .                                         ......
                                                                              ............
                         ....                                                                      ...............                  ......
                                                                                                                                                                                                                       x
                                                                                                   .....                            ......
                                                                                                   ....                             .....

                         ...                     .....                                                                                                                                                             ........ . ...
                                                                                                                                    .....                                                                              ..........
                                                                                                                                                                                                                       ...........
                                                                                                                                                                                                       ............... . . . . ..
                                                                                                                                                                                                       ...............
                                                                                                                                    ... ............
                                                                                                   .............                                             ........................
                                         ..............                                            .............
                                       ................                                            .............
                                        ...............
                                          .............
                              X.:
                                          . .........                                              .......
                                         ..X ...
                . ............
                  ..........       .......
                                   ...........             ........
                                                                                                                    ............ :.
                 .......... ..
                                        ...........
                                                                                                   ..........

               .. ............


               Water-Dependent Transportation


               0         existing ferry stop                                                                                                heliport

                         proposed ferry stop                                                                                                airport




               Source: DCP, NY                   NJ Harbor Estuary Water Use Management Study, 1991.
               Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                Working Waterfront









                   Private ferry routes are expected to increase           Airports
                   in the future, particularly those providing
                   commuter service to Manhattan destinations.             For reasons of safety and available space, both
                   Recent studies by DCA DOT and the former                LaGuardia and Kennedy (JFK) airports are
                   Department of Ports and Trade identified                located along the waterfront. New York's
                   locations that offer good shore and dock                airports are crucial in keeping New York
                   conditions, available upland for parking,               competitive in the global economy. In 1990,
                   transit access and access to residential popula-        JFK handled 29 percent of the nation's inter-
                   tions. These locations include Ferry Point              national air cargo. Expansion of JFK and
                   Park in the Bronx, Flushing Bay Marina in               LaGuardia, including runway extensions and
                   Queens, Canarsie Pier and the Brooklyn
                   Army Terminal in Brooklyn, and Great Kills              distribution facilities, is being considered by
                   Harbor in Staten Island. A new ferry service            the Port Authority. The city, state and Port
                   between St. George, Staten Island and mid-              Authority are examining ways to improve
                   town Manhattan-is being developed by DOT.               water, rail and highway access to the airports.
                   Parking facilities at non-Manhattan ferry
                   stops and coordination with mass transit can
                   enhance the success of new ferry operations.            Heliports
                   Lack of adequate capital for improvements               Heliports also are located along the waterfront
                   such as dredging and dock rehabilitation can
                   undermine the viability of ferry service before         to have a safe landing area. Most heliport
                   ridership has a chance to develop.                      facilities are in Manhattan for quick access to
                                                                           the central business district from the airports
                   The use of ferries for "fast freight" goods             and points outside the city. Heliports, howev-
                   movement within the region may be econom-               er, are noisy and difficult neighbors in'or near
                   ically viable for some routes, for example,             residential or commercial areas. Most heliports
                   between the airports and the CBD. Studies by            are likely to stay at their present locations
                   DCP and DOT identified five pairs of possi-             although there is strong community pressure
                   ble sites: Laguardia Airport and Pier 42; Port
                   Newark and JFK; Greenville Yard, New Jersey             to have some of them relocated.
                   and the New York airports; Greenville Yard
                   and the SBMT; and Port Newark and Pier 42.
                   (Map 5.4.)















                                                    .... .. ....










                       Wall Street Heliport, Manhattan

                                                                                                                          97







                       MAP 5.5
                                                                                                                                         A....




                                                                                                                                   ........                                                    ....




                                                                                                                                 . .......                                            ........... ........
                                                                                                                                                                                      ..............

                                                                                             Oak Point Rail Unk
                                                      X@                                                                                                                                          .......
                                                                                                                            -X-X.:-
                                                                                   Harlem River Rail Yard

                                                                                                                                                           ......  ....
                                                                                                                                                           ...... . .....




                                                                                                                                                           J` LG
                                                                                                               X..



                                                                                                           .....                 . ....



                                                               X.:
                                                                                                                                                                LIRR
                                                                                                                                                             Montauk
                                                               X
                                                                                                                                                               Branch
                                                              .. ....                                                            LIRR
                                                                                                                                 Bushwick
                                                                                        "s,
                                                            ........                                                             Branch
                                                                                     r


                                                                                                         X.
                                           Howl [email protected]:   ... ..-
                                                                                                                                                                 X,

                                                                                                                 51 st St                                         ......
                                                                                                                                                                                            JFK
                                          ...            .....                                                   Float Bridge
                                                                                                      St
                                                                                                   ard
                                                                                                                                                                       .....          ... ....
                                                                   Staten
                                                                             Island             Y

                                                                                            ......                                                   .....
                                                                   Railway Co.              . . ..... .
                                                                                                                         LIFIR
                                        ::j:".                                                                       Bay Ridge                                           ......
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                                                                                                                                 h                                               ..........

                                                                                                                                                                                                                      ..........




                                                                                                                                                                                      . ....                          ......... . X.:

                                                                                                                                                                                                                        ...........
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                                                                                                          .... .......                         .....       ....                                                 ...... .
                                                                                                                                                                                                                      ..............
                                                                                                                                                                           ......................        ... ....  .......
                                                                                                                                                                                                              . .... ... ...
                                                                                                                                                           X
                                                                                                                                                                                                            X
                                                                                                                                                           X
                                                                                                                                 "X:                                                                              . ................

                                                                             X:                                                  ...                                                                                     ...........
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                                                X
                                                                                                                                                           X
                                    ........ .
                                                                                                                                                                                                                         ............
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                 ......       .........   ... ...                                                                                                                                                                     ........... .
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                                                                                                                                                           X                                              . . . . . .. . . . . .

                                          ....                                                                              ........                  :X.:
              Highway                                  Rail / Intermodal Network


                                           rail freight line (active)                                                                                        limited access truck routes

                    .........              rail freight line (inactive or                 proposed)                                                          ai rpo rt
                                                                                      on.
                                                                                 ...Hdtbo





































                                           proposed intermodal facility




               Comprehensive Waterfront Plan                                                   NYC Department of City Planning                                                Working Waterfront









                     Rail Facilities                                            Ocean disposal of sludge will end in mid-1992,
                     Rail facilities played a crucial role along the            but intra- and inter-port movements of sludge
                     waterfront when materials and goods were                   are expected to occur more frequently, increas-
                     transported to and from port facilities by rail.           ing the number of government vessels used for
                     Rail freight car loadings in the city and Long             sludge movement. DEP has proposed five sites
                     Island declined by 75 percent between 1973                 for sludge processing facilities in Maspeth,
                     and 1989, compared to a 21 percent decline in              Sunset Park, Port Newark, Wards Island and
                     the northeast. Although rail lines traverse some           Port Morris (Map 5.6). These sites offer poten-
                     waterfront properties, the only active rail line           tial for intermodal connections using barge
                     is the N.Y. Cross Harbor Railroad and the                  and/or rail movement. The potential for inter-
                                                                                modal connections should be a consideration
                     South Brooklyn Railroad in Sunset Park,                    in selecting future sites for other municipal
                     Brooklyn. Cross Harbor also operates a car                 facilities which transport high-bulk, low-value
                     float which barges rail cars from New Jersey to            goods. The city is evaluating a number of sites
                     Brooklyn. The volume of activity is limited.               in industrially zoned areas for other long-term
                     Development of a full freight access program               solid waste handling and processing needs. The
                     for rail has been proposed by the city and                 amount of manufacturing-zoned land needed
                                                                                is dependent in part upon the size of sites and
                     state. This program would include purchase                 facilities.
                     and restoration of the Staten Island railway
                     along the North Shore to Howland Hook;                     Non-Water-Dependent Industrial Uses
                     activation of the 65th Street car float operation          Areas of industrial concentration on or near
                     in Sunset Park; and completion of the Oak                  the waterfront tend to be relatively accessible
                     Point Link in the Bronx to improve access                  to Manhattan, the airports or port facilities.
                     within the northern rail corridor. The latter              These include Long Island City, the South
                     project, in conjunction with the planned                   Bronx, portions of the Brooklyn waterfront,
                     Harlem River Yard project for intermodal                   the Newtown Creek area, and the airports.
                     traffic, has the potential to divert some truck            Industrial areas often contain a mix of indus-
                     traffic to the rail mode. (Map 5.5.)                       trial, non-industrial and water-dependent uses.
                     Municipal and Utility Uses                                 Most economic projections anticipate contin-
                     These dispersed uses include Police     and Fire           ued decline in industrial sector employment.
                     Department, Army Corps of Engineers, and                   Based on the conclusions of DCPs draft
                     Coast Guard harbor operation units; municipal              Citywide Industry Study, the city has the
                     facilities that handle sludge, transfer solid              opportunity to offset some of these losses by
                     waste and treat wastewater; and utilities such             capturing a share of the projected regional
                     as generating stations. Because most of these              growth in industrial sector firms that serve the
                     municipal and utility facilities must be sited in          area's export-oriented service industries and its
                                                                                growing and increasingly affluent population.
                     M3 districts, concentrations of these uses are             These firms would likely include flexible mar-
                     developing. Some of these uses are water-                  ket oriented manufacturing, distribution, and
                     dependent; others are not but require large                mixed use business parks. Future employment
                     sites buffered from residential uses. Vacant               in the city's industrial sector depends in part
                     piers and waterfront public land have been                 on addressing factors which negatively distin-
                     used for temporary siting of tow pounds, bus               guish the city from surrounding suburbs,
                     garages and parking. These uses need not be                including taxes, the scarcity of sites, crime, and
                     on the waterfront but require large parcels                poor road access. Other industrial sectors
                     with access to their service areas. Municipal              needed to support the city's population, such
                     water-dependent facilities and utility uses are            as construction and the collection, processing
                     shown on Map 5.6.                                          and disposal of solid waste, may also grow.






                 MAP 5.6






                                                                                                                              0


                                                                                                                     ..........
                                                                                                                     . ..........
                                                                                                                                       .0












                                                 .........                           ....

                                                 ........                 ....
                                                                          ... . ..........
                                                                          .. .................
                                                                          ............ X.:


                                                                   .... ..  . .......

                                           .....                   .......

                                          ..............            ....                                                         ...





                                                                                                                              .. .... ...

                                                                                                                        ............. .... ...........


                                                                                     ...........
                                                                                     ..........

                                                                                                                                                            ... ....        ........
                                                                          ......................
                                                                                                                                                              . . ..........
                                                                                                                     ... .......
                                                                                                                              ...........                       . .. ...............
                                    ......                          ........
                                                                    .... ...... .        ...............             .... .            ............ ......... .
                                                                                                                     ... .........
                                                                                     ..............                  ... .
                                                                                     .... ............ ......                                                              ..............
                                                                                                                                                                              ..........
                                                                                     . . . . ....... .                        . .... .
                                                                                                           . . ......         .... .......... ........ ........
                                                                                                                                       ........ ...
                                                                                                           .........                            . . ................ ..........
                                                                                                                                       ..............
                                                                                                                                                           ..... ..........
                                                           .. ....................
                                                                                                           .. ..... .         .............
                                                                                                 . ... .   .. .                            ..........
                                                                                                                                       . .........                              .......
                                                       . ........... ...                         ..............               ............... .........                    ..............
                                                                          ....                   ........... ..... X,
                                                      . ........   ....                                    ...............                 ........
                                                                                                                                                                          :X.-  ...........
                                                                                                                     ......... .. .                                 .........  ........
                                                                                                           . ..............................................         ......      ......
                                                                                                                     ............... ......
                                                                                                 .................................................
                                                                                                           ........ .................................
                                                                                                 ...........                  ......
                                                                                                           . . . ...................   -
                                                                                                           .................  ........
                                                                                                                                                                             ............
                                                                                                 ..............
                                                                                                           ....... ..
                                                                                                                     ................. ....
                                                                                                 .............. .    - ::::::: *
                                                              .....                              ..............               ....
                                       .. ......... .  ....................                      ..............
                                                                          . . . . . . . . . . . . . . . . . . . . . ................                          .. . . . . . . . .........
                                                                                                 .................   :
                                                                                                 ................    ....
                                             .....            ......
                                                               .............................
                                                                                         ...................
                                                                                     .........................
                                                                                         . ................ ................                            .... . ....
                                                     ...           ........          ........ .                                              ....... .............
                                                                                                                     ................... ...
                                                                                                                              ............
                                           .. . .......................                                    .............
                                                                                                                              .............
                                      ..... . .  ............................................... ......                       .............
                                                                                                                     . . . . . ....... ............. .....  .......................
                                                                                                                                                                ..........
                                                                                         ....                        ......... -.......    :    ..  -
                                                                                                                              . ..........
             ....................................X........                             ....      .......
                  ....   ..........:....... ........                                             ......
                                                                                                                                       . ........
                                                                                                                                 . ... ..........
                             ................                                                    ......
                                                                                     ...         ........  . . .... .                  .........        . . .  . .......
                                                                                                 ..........                            . ...........
             ............                                                                        ....... ..          . ..... .
                                                                                     ....        ......    .
                                                                          ... ...                ............. :.:               - .
                                                                                                 ......... .. .................................                   ........
                                                                                                                                                                 ...........
                                                                                                 .......                                                .......  ..........
                                                                   .............. ...... . . . .                     :*                :                    0
                                                                                     ................... ..........                                 . . ....
                                                     ........... ......  :,:::                                       ... . . ........
                                                   ...........
                               ............... .
            Utilities and Municipal Water-Dependent Uses



            0            water pollution control plant                                                     M         electric or gas facility
                         marine transfer station                                                           0         public safety facility (police, fire, Coast Guard)

                         proposed sludge processing facility
                                                                                     . ........
                                                                          t
                                                                                     .k
                                                                                     ........... ..
                                                                                     ........... ..
                                                                            w M
                                                                                     ..... ... .
                                                                                     . ...................
                                                                                       ..... .....






















              Comprehensive Waterfront Plan / NYC Department of City Planning                                                                Working Waterfront









                     Even with projected declines, industrial uses              substantial overestimates of future industrial
                     on or near the waterfront will continue to                 employment. These forecasts did not anticipate
                     play a role in the city's economy, particularly            the decline in the city's maritime industry due
                     in those areas with good access to the region-             to containerization and the shift of port activi-
                     al highway and rail network and the central                ty to the New Jersey side of the harbor. New
                     and regional business districts, or in proximi-            York City's industrial decline has paralleled
                     ty to the city's airports. Remaining businesses            that of other large American cities and signifi-
                     and new ones (most likely tied to the regional             cant new industrial growth is unlikely.
                     market) will continue to need well-located
                     manufacturing-zoned land. A waterfront site,               These trends have contributed to the under-
                     however, is unlikely to be a locational necessity.         utilization of land in manufacturing zones
                                                                                located on the waterfront and upland. The
                     WORKING WATERFRONT ISSUES                                  draft Industry Study found that, except for the
                     ZONING AND LAND USE                                        Manhattan CBD and a few areas of the Bronx,
                                                                                Brooklyn and Queens, land and buildings are
                     Except for accessory marinas, which are per-               not being utilized at their potential to support
                     mitted in residential and commercial districts,            industry. More than 20 percent of land zoned
                     most working waterfront uses require manu-                 for industry is vacant and considerably more is
                     facturing zoning. One of the fundamental ob-               underutilized. The sharp decline of industrial
                     jectives of the waterfront plan is to ensure the           activity has led to falling demand for industrial
                     retention of sufficient manufacturing-zoned                land and space. Many of the city's industrial
                     land to accommodate future needs. In general,              areas could accommodate greater industrial
                     areas best suited for retention of manufactur-             activity if the investment interest existed.
                     ing zoning would have relatively high levels of            Targeted improvements in the freight trans-
                     industrial activity, relatively good access for            portation network and progress in reducing
                     moving freight, and/or hydrological conditions             the incidence of commercial crime can help
                     suitable for port-related and maritime activi-             bring investment to industrial areas to offset
                     ties. In other areas, retention of manufacturing           the decline in manufacturing.
                     zoning should be based on projections of
                     working waterfront needs and on the overall                One use certain to expand - municipal and
                     best use of the land.                                      solid waste handling facilities - is more land
                     In the city as a whole, there is sufficient manu-          intensive than manufacturing, and generally
                     facturing-zoned land to meet future demand,                requires manufacturing zoning and an ade-
                     even if a significant amount of rezoning were              quate buffer when near residential and com-
                     to occur. Since the adoption of the current                mercial uses. Because these facilities handle
                     Zoning Resolution in 1961, there has been                  bulky, low value materials, they are particularly
                     only a modest reduction (in the range of five              well-suited for waterborne transportation of
                     percent) in land zoned for industry, while total           goods. Adequately buffered waterfront indus-
                     industrial employment has declined by more                 trially zoned land is scarce. The few such areas
                     than 42 percent and manufacturing by more                  that remain should be maintained to accom-
                     than 55 percent. Manufacturing production                  modate these facilities.
                     employment has declined even more precipi-
                     tously; the Census of Manufacturing shows a                Some working waterfront uses such as mari-
                     61 percent decline in production workers                   time support and commercial excursion boat-
                     between 1963 and 1987.                                     ing have shown growth or potential for
                                                                                growth. Uses such as ferries, marinas and
                     The mapping of manufacturing districts in                  excursion boats could easily be incorporated in
                     1961 anticipated increased requirements for                residential and commercial zones if zoning
                     manufacturing-zoned land, based in part on                 were modified to permit these uses.

                                                                                                                               101









                 TRANsPORTATION                                             truck routes. Larger, more complex capacity-
                 New York's role as     an economic center and              increasing improvements, such as the construc-
                 the vitality of the working waterfront are                 tion of new highway access ramps and bridges
                 contingent in part on the city's network for               that serve waterfront and other industrial
                 goods movement. Because of the reliance on                 areas, need to be considered as long-term
                 truck freight traffic, in the city and nationwide,         investments in the city's economy in general,
                 the area's highway system remains its most                 and the working waterfront in particular.
                 critical transportation mode for goods move-               Waterborne and rail freight must play an
                 ment. Movement of goods between many                       increased role in the transport of goods in the
                 waterfront industrial areas (including the                 city. Access to the waterfront or to a rail line,
                 airports) and the Manhattan CBD (and around                however, is no longer an essential locational
                 the periphery of the CBD) is constrained by                requirement for most industry. Much of the
                 poor highway access. Poor access, congestion               traditional transportation infrastructure for rail
                 and the physical condition of the region's                 and waterborne freight no longer exists or is in
                 highway network add to the cost of moving                  a state of disrepair. Improving these transpor-
                 goods in the region.                                       tation modes has some potential to reduce the
                                                                            cost of goods, decrease highway congestion
                 No single action can alleviate the area's high-            and improve air quality. For example, they can
                 way problems. A series of short-term improve-              provide alternative routes for bulky or noxious
                 ments such as road and bridge reconstruction,              commodities such as solid waste, ash and de-
                 better signage and channelization of traffic,              watered sewage sludge. Transportation modes
                 and new designated truck routes would allow                for these waste materials and certain other
                 businesses to reduce their operating costs                 goods could include water or rail depending
                 marginally. Movement of truck freight could                on the locations of specific destinations and
                 be facilitated by reducing automobile traffic on           economic feasibility.









                                                                                                      r















                     Harlem River Yards, Bronx



                 102

























                                                                                      2
                                                                                      JW

                                                                                      A
                                                                                      ITl





                                                                                                     100e







                        Sunset Park Pier No. 7, Brooklyn


                    The development of intermodal facilities that               posed rail-truck intermodal facility at the
                    involve water, rail, highway, and airport links             Harlem River Yard, The Full Freight Access
                    has been recommended by a number of groups                  Program includes: construction of a modern
                    and public agencies. The improvement and                    intermodal rail terminal in the city to accom-
                    development of intermodal links depends on a                modate the use of truck trailers mounted on
                    coordinated program of transportation system                railroad cars (TOFC); improved rail clearance
                    improvements. Use of New York City's rail                   between Albany and the city to accommodate
                    lines for goods movement is impeded by clear-               TOFC equipment; a dedicated track for freight
                    ance restrictions and by competition from                   service through the South Bronx; and better
                    heavy commuter traffic. Another major barrier               rail access to the Brooklyn waterfront.
                    is the lack of a fixed rail freight route across
                    the lower portion of the Hudson River. As a                 WATERFRONT INFRASTRUCTURE AND
                    result, virtually all rail traffic destined for New         FINANCING
                    York City is routed via Conrail's Selkirk Yard              The waterfront infrastructure has suffered from
                    near Albany, which can add as much as 300                   years of neglect and deferred maintenance
                    miles and an extra day to the trip.                         because of disuse and insufficient capital
                    Completion of New York State's Full Freight                 funding. This infrastructure includes water-
                    Access Program for rail would improve New                   front structures such as piers, bulkheads,
                    York City's competitive position for freight                wharfs and platforms, and the nearby street
                    distribution and industrial development. For                network. Poor condition of local streets, poor
                    example, ii could enable some freight traffic               loading facilities, and lack of adequate ware-
                    now shipped through New Jersey rail terminals               housing facilities can limit storage and move-
                    or sent by truck to be captured by the pro-                 ment of trucks and goods.

                                                                                                                                 103









                  The wear and tear on waterfront structures is              A number of city and state financial assis-
                  substantial. For example, piers are damaged by             tance programs' are available to industrial
                  vessel operations, the natural forces of saltwa-           and other working waterfront users for ac-
                  ter and aquatic animals such as marine borers.             quiring and improving sites, and maintaining
                  In addition, derelict waterfront structures and            and repairing infrastructure. Some working
                  debris can interfere with port operations. The             waterfront uses are unable to meet the pro-
                  Harbor Drift Program, administered by the                  grams' eligibility requirements because their
                  Army Corps of Engineers, improves port                     short-term leases lack collateral value. In
                  operations and reuse potential by removing                 addition, many of the city and state financial
                  derelict piers, vessels and debris, and by stabi-          programs will not finance boats and other
                  lizing the shoreline. The federal government               floating stock. Some financing criteria are
                  contributes two-thirds of the removal cost; the            based on the number of jobs retained or
                  state and city share the balance. Although the             created. While most of these businesses do
                  major purpose of the program has been to                   not generate substantial numbers of jobs, they
                  remove sources of drift responsible for vessel             contribute to the health of the port.
                  damage, the project has resulted also in im-
                  proved near-shore water circulation and a                  Waterfront infrastructure construction and
                  generally neater looking shoreline.                        repair are constrained also by the cost, time
                                                                             and difficulty in obtaining required permits
                  The Harbor Drift Program (Map 5.7) has                     from regulatory agencies. Construction and
                  completed      shoreline    clean-up     of     the        repair of piers and bulkheads and dredging
                  Manhattan side of the East River, Brooklyn                 of channels are essential for water-depend-
                  Upper Bay including the Erie Basin, and the                ent uses.
                  Stapleton area of Staten Island. The next
                  project is scheduled to commence this year                 Punic AccEss
                  along the south Brooklyn waterfront. Once this             Accommodating public access within water-
                  is complete, six areas will remain to be cleaned           front industrial areas is often difficult or
                  up: the west side of Manhattan, the Harlem                 unwise because of safety considerations and
                  River, the East River along the Brooklyn/                  potential conflicts with operations. The loca-
                  Queens waterftonts, and the Arthur Kill,                   tion and movement of materials, equipment,
                  Shooter's Island and the Kill Van Kull in                  trucks and rail cars make it difficult to main-
                  Staten Island. The program has been delayed,               tain public safety without jeopardizing opera-
                  however, because of problems with the release              tions. Furthermore, the relative isolation of
                  of funds and concerns over disposal methods.               industrial areas poses security problems for
                  Financing for water-dependent businesses is                both businesses and the public.
                  often hampered by the concerns of lending                  Nevertheless, modest public access improve-
                  institutions for collateral and long-term pos-             ments near certain working waterfront uses
                  session of property. Many of the maritime                  can benefit workers and residents in nearby
                  support industries lease their facilities by the           areas. Publicly oriented waterfront uses such as
                  month. The Port Authority's recent agree-                  excursions, ferries and marinas can be de-
                  ment to sell the former Fishport at the Erie               signed more easily to includj public access.
                  Basin in Red Hook to a consortium of barge                 Street ends and publicly owned piers can be
                  and tugboat owners represents a positive step              improved to provide public access opportuni-
                  towards gaining permanent locations which                  ties in industrial areas. Some public facilities
                  meet the financial community's criteria for                can include public areas if carefully integrated
                  tangible fixed assets. Shared use of these sites           during site planning. These limited opportuni-
                  with upland users will also enhance the in-                ties must be assessed careftilly, case-by-case, as
                  vestment potential by diversifying the poten-              to feasibility and desirability.
                  tial revenue stream.



                  104










                                                                                                                                                                                                                                 xx
                                                                                                                                                                ........                                                         .....
                                                                                                                                                                ........                                                         .. ... ....
                                MAP 5.7


                                                                                                                                                                                                                                 . .... ...... ........





                                                                                                                                                                                                                                 .... ...........


                                                                                                                                                                IHarlem
                                                                                                                                                                                                                                 ..............
                                                                                                                                                                                                                                 ...............
                                                                                                                                                                                                                                 ...............
                                                                                                                                                                                                                                 ................
                                                                                                                                                                River
                                                                                                                                                                                                                                 ..............
                                                                                                                                                                                                                                 ............
                                                                                                                                                                                                                                 ............
                                                                                                                                                                                                     ... .........
                                                                                                                                                                                                     .. .......... .....
                                                                                                                                                                                                     ............
                                                                                                                                     xx#                                                                                         ....
                                                                                                                                                                              .. ..............
                                                             ...                                                                     .....                      .. ........   ............
                                                                                                                                     West ...
                                                                                                                                                                                       Ow
                                                                                                                                     Side,::
                                                                                                                                     4
                                                                                                                                                                              X....

                                                                                                                                                                  . . . ....... ..                                               ........ ..
                                                                                                                                                                              .. ........

                                                                                                                                                                .40



                                                                                                                                                                Queens
                                                                                                                                                                B
                                                                                                                                                                ro.oklyn
                                                                                                                                                                East River




                                                                         ......                                                      Brook yn
                                                                                                                                     U pe Bay
                                                                                                                                     p


                                                             ....... ...........
                                                           Shodwes.:::,                                                              ... ........ 8@ ........#
                                                                                               ......                                                                         .....
                                                                                    X,
                                                                                                                                     Gowanus                                  ......   ........
                                                                                                                                     ..........

                                                                             Kill Van Kull
                                                                                                                                                                              X
                                                                                       Stapleton
                                                                                                                                                                ............
                                                                                                                                     ....                       .........



                                                                                                                                     ... ...........
                                                                                                                                     ......................                                                                         ..........
                                                                                                                                                                                       .....            ........... ........     ........
                                                                                                                                                                                                        ....... ............
                                                                                                                                                                              .............          ....................
                                                                                                                                                                              .... ...               ....
                                                                                                                                                                                                     ..........                  .......
                                                                                                                                                                                       ... ......                                ....... ........
                                                      ... Arthur
                                                                                                                                                                                                     . ............
                                                                                                                                     . ... ..... . . .
                                                                                                                                     .............                                                   ......................
                                                                                                                                                                                       ...........   .........
                                                                                                                                     ................ ...                                            ...................
                                                                                                                                     . .........                                       .......
                                                                                                                                                                                                                                 ...... . . . .
                                                                                                                                                                .................                    ..............                    .......
                                                           Kill:
                                                                                                                                     ................
                                                                                                                                     ..................... ...  ................
                                                                                               ... ....                              ....... ...                                                     ........................    ..........................
                                                                                                                                                                                                                                 ..................
                                                                                                                                                                                       ..........                                ........... ..
                                                                                                                                     . ....................
                                                                                             ..............                          .......                    ..........
                                                                                                                                                                                                     .................           ..........

                                                                                             .................................       X. .........               .................
                                                                                       ..........                                    . . ...... ...             ::: .1.1 .... ''I"'.1-1-I..
                                                                                                                                                                ........ ............                ..... . . . ..              .............
                                                                                                                                     .... .........             ............  .......
                                                                                                                                     ............                             ............. .....................                ...............
                                                                                                                                     ...........                X-:::::::: - .:.                                                 ........ ...
                                                                                                                                                                .......................................... ........................ ........
                                                                                   .......................................           ..........                                                      . . .. .... ..........
                                                                            .. ... .............. .................                                                                    X.
                                                                                                                                                                                                                                 ............
                                                                                                                                                                                                                                 ......................
                                                                                 ............                                                                                                                                    .. ........
                                                                                                                                     ................
                                                                                                                                     .............              ..........                              ......                   ...............
                                                                                                                                                                ......                                                           . ........
                                                                                                                                     .............
                                                                                  ....                                               ......
                                                                                                                                                                ... :. '. ... - - - - -              ..........                  .............
                                                                                                                                                                ................
                                                                                                                                     .......... . .
                                                                                                                                                                ....:... :.: ....... : :.......................
                                                                                             ......                                  ... .........                                                   .. ......
                                                                                                                                                                              .......  ...
                                                                                                                                     ..................         ........      ..............
                                                                                     ..............                                                                ....... .....
                                                                                                                                                                ...............................
                                                                                             ......... ....                          .............
                                                                                    ..........                                       ............. ........                                             ........
                                                                                                                                                                                                                                 ............
                                                                                                                                                                              . ........................                         .............. ..................
                                                                                                                                                                                                                                 .................

                                                                                                                                                                ...............................................
                                                                                                                                     ..... ........... ::: ::::'.
                                                                                                                                     ... ........ ..... :: .                  ......   .................                         .....
                                                                                                                                     ................ I'll .............                             . ....                      ...... ......
                                                                                                                                     ............................ .                                                              ... .
                                                                                  ........... ..                                     ........ .....                                                  .......                     ... .
                                                   ... . ..........  .... XXX                                                        .................
                                                                                                                                                                                       ..........       .... . .....
                                                                                                                                                                                                                                 :::X.:.X-:::X
                                                                                   ..............
                                                                                                                                     ...........                ............           ...........
                                                             ..........                                                              ...................        X
                                                                                                                                     ............ ......................
                                                                 .......... ....                                                     ...........
                                                                                                                                                                              ...........
                                                                                  .............                                                                 '::.::
                                                             .................        . .........                                                               ............... .. ................
                                                                                                                                     ............................ ...... :.*::::::::::::::::::::::::::::::::::::::::::::::::::,:.:,: ..... ... ............
                                                                                                                                     ....                       .........                            .........                   ........... ......
                                                                                                                                                                                                                                 .. ....... . .... .
                                                                                                                                                                                                        ..........               ....................
                                                 .. ..............                      .........................                    . .........                              ..... ..............
                                                                                                                                                                                       . .. ......... ...
                                                    ..........                               ............
                                                                                  ............                                       .......                                           ......        .-:                         ...................
                                                               .....              .......                                            ............ X:.           ....... .................... ........                            ........... ....................
                                                                                             . .........                                                                                                                         ....................
                                                                                                                                                                . ......... .........                .... ..................     ....
                                                                            ... ..........
                                                                             . ......          .......
                                                                                                                                     . .................                                             ..................................
                                                   ................
                                                             .............
                                                                                                                                                                ...................                                              ............


                            Harbor Drift Project


                                                           shoreline clean-up completed
                            MMMMMMM                        shoreline clean-up underway

                                                                                                                                     up
                           MM=M==M                         future shoreline clean-





                             Source: U.S. Army Corps of Engineers.

                             Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                         Working Waterfront











                 REGULATION


                 The promotion of industrial water-dependent               Yet the same environmental standards and
                 uses and environmental quality are not neces-             review procedures apply to these areas and to
                 sarily incompatible. However, the environmen-             significant natural areas.
                 tal review regulations for dredging, shoreline
                 stabilization, and bulkhead improvements are              At present, WRP policies are applied with
                 complex, lengthy and sometimes inconsistent.              equal weight in all parts of the waterfront,
                 Approvals are often required from many                    often leading to policy contradictions. Like the
                 different public agencies with overlapping                permitting process described above, WRP
                 jurisdictions. Failure to obtain timely approvals         policies provide neither construction guidelines
                 can impair the long-term viability of working             nor geographic specificity and thus do not
                 waterfront uses and lead to disinvestment in              distinguish among the values and needs of
                 industrial areas. A strategy is needed to facili-         different areas. This can deter precisely those
                 tate the process for making waterfront invest-            water-dependent uses that the WRP was de-
                 ments while maintaining environmental quality             signed to promote.
                 and protecting unique natural areas.

                 In some instances, important industrial areas
                 such as JFK, the Passenger Ship Terminal and              THE PIAN FOR THE WORKING
                 the Kill Van Kull are adjacent or near to                 WATERFRONT
                 critical wetlands and aquatic habitats. The state
                 has proposed designation of several Significant           Different strategies are required to preserve
                 Coastal Fish and Wildlife Habitats, including             and enhance the variety of working waterfront
                 the Hudson River, Jamaica Bay and portions                uses. Approaches appropriate for concentrated
                 of Staten Island, which are proximate to work-            working waterfront uses differ from those for
                 ing waterfront areas. In the absence of clear             addressing the unique requirements of dis-
                 guidelines for dredging and other waterfront              persed uses. The plan for the Working Water-
                 improvements such as pier and bulkhead                    front identifies significant maritime and indus-
                 construction or repair, conflicts with environ-           trial areas that are suitable for, and contain
                 mental regulations are difficult to resolve, and          concentrations of, water-dependent and indus-
                 needed permits are difficult or impossible to             trial activity; some of these areas also have
                 obtain. Dredging is also hampered by lack of              intermodal infrastructure. Recommendations
                 agreement on safe dredging practices and                  are proposed to foster working waterfront uses
                 disposal sites. Proposed federal legislation              in these areas. Because of their local and
                 could make it more difficult to find suitable             regional importance, the plan also addresses
                 locations for sediment disposal.                          airport needs and opportunities. Finally, a set
                 Even in waterfront industrial areas removed               of citywide recommendations is proposed to
                 from important environmental resources, it                enhance dispersed working waterfront uses,
                 remains difficult to obtain approvals for dredg-          and to encourage activity in waterfront indus-
                 ing and bulkhead and pier construction and                trial areas.
                 repair. For example, the Newtown Creek
                 industrial area contains a concentration of
                 water-dependent and other heavy industrial
                 uses requiring continual dredging of the creek.


                 106









                   DESIGNATION OF SIGNIFICANT                            service uses. Its deep water, relatively calm
                   MARITIME AND INDUSTRIAL AREAS                         currents, proximity to major shipping channels
                   Six Significant Maritime and Industrial Areas         and Port Newark/Elizabeth, and considerable
                   are designated in this plan to protect and            investments in piers, bulkheads and wharves,
                   facilitate concentrated working waterfront            make it suitable for siting maritime, maritime
                   uses, and to ensure sufficient industrially           support and water-dependent uses. It is the
                   zoned land to accommodate future growth of            best area in the port to meet the future needs
                   these uses, including municipal and water-            of the maritime support services industry. The
                   dependent activities. The major criteria used         area also contains the Howland Hook Marine
                   to identify significant areas include: concen-        Terminal, Arlington rail yards and the vacant
                   trations of M2 and M3 zoned land; suitable            Port Ivory plant. The Staten Island Rail Cor-
                   hydrographic conditions for maritime related          poration rail line and right-of-way along the
                   uses; presence of intermodal, marine terminal         North Shore provides the potential for devel-
                   and/or pier infrastructure; concentrations of         opment of an intermodal facility at Howland
                   water-dependent and industrial activity;
                   relatively good transportation access and             Hook. The industrial area contains concentra-
                   proximity to markets; and availability of             tions of M3-zoned land, and a mix of non-
                   publicly owned land. The following six areas          industrial and industrial uses in addition to
                   meet most or all of these criteria. (Map 5.8.)        the maritime- related industries. The western
                   The Kill Van Kull in Staten Island from               portion of the area coincides with the Staten
                   Howland Hook to Snug Harbor is character-             Island Special Natural Area identified in the
                   ized by a concentration of maritime support           plan for the Natural Waterfront.























                       Maritime support services along the Kill Van Kull, Staten Island


                                                                                                                      107









                                                                                                                                                                                                                                                                                                                                                                               .........                                                                        ...... ................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ........................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                .......................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ..........
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ..................
                                                                                                                                                                                                                                                                                                                                                                               .......                                                                          ..........................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ..........................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ...........................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ............................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ............................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                .....................I.... ...
                                                                                                                                                                                                                                                                                                                                                                                                                                                                .............................

                                                                                                                                                                                                                                                                                                                                                                                                                                                                .....................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ................................
                                           MAP 5.8
                                                                                                                                                                                                                                                                                                                                                                                                                                                                X...... .................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ....... ..........
                                                                                                                                                                                                                                                                                                                                                                               .........                                                                        ........:
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ........................... d- ....-
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ..........
                                                                                                                                                                                                                                                                                                                                                                               ..........
                                                                                                                                                                                                                                                                                                                                                                               .........                                                                        ...................................
                                                                                                                                                                                                                                                                                                                                                                                                 ........................................

                                                                                                                                                                                                                                                                                                                                                                                                                                                                ... .......

                                                                                                                                                                                                                                                                                                                                                                               ..........                                                                       ... .............. ......
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ...:......................
                                                                                                                                                                                                                                                                                                                                                                               ........... . .............. .......                                             -................
                                                                                                                                                                                                                                                                                                                                                                               ........... . . .........                                                        .............. ..........
                                                                                                                                                                                                                                                                                                                                                                               ............      ...........                                                    ................I.......
                                                                                                                                                                                                                                                                                                                                                                               . . .. ...................................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ...........-............ ..... 11
                                                                                                                                                                                                                                                                                                                                                                               ... ...           .................................                              .....
                                                                                                                                                                                                                                                                                                                                                                                                                                                                .............
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ........................
                                                                                                                                                                                                                                                                                                                                                                                                 .... .........................
                                                                                                                                                                                                                                                                     ........                                                                                                  .... .. .......                                                                  ................
                                                                                                                                                                                                                                                                                                                                                                                                 . .......                                                      ...............
                                                                                                                                                                                                                                                                                                                                                                                      . . . . ............
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ...........
                                                                                                                                                                                                                                                                                                                                                                               ...........


                                                                                                                                                                                                                                                                                                                                                                               ........          . ....
                                                                                                                                                                                                                                                                                                                                                                                                 ...................                                            .......
                                                                                                                                                                                                                                                                     ...                                                                                                       ..........................                                                       .........

                                                                                                                                                                                                                                                                     .'k
                                                                                                                                                                                                                                                                                                                                                                                      .......................
                                                                                                                                                                                                                                                                                                                                                                                      ........................
                                                                                                                                                                                                                                                                     @?f                                                                                                       South
                                                                                                                                                                                                                                                                                                                                                                                                 ..................
                                                                                                                                                                                                                                                                                                                                                                               Bronx
                                                                                                                                                                                                                                                                                                                                                                                                 ...........


                                                                                                                                                                                                                                                                                                                                                                               ........ ... .... ..........
                                                                                                                                                                                                                                                                                                                                                                               ....... ...
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ...........
                                                                                                                                                                                                                                                                                                                                                                               ......... .

                                                                                                                                                                                                                                                    .......                                                                                                                    . . . . . .. ........
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ............
                                                                                                                                                                                                                                                                                                                                                                               ....... . . . . . . .. . .
                                                                                                                                                                                                                                                                                                                                                                               . . .. . . . .....
                                                                                                                                                                                                                                                                                                                                                                               t                                                                                ......


                                                                                                                                                                                                                                                    . . .. . . . . . . . .
                                                                                                                                                                                                                                                    ... .........
                                                                                                                                                                                                                                                    . . .. . . . . . . .
                                                                                                                                                                                                                                                    . . .. . . . . . .







                                                                                                                                                                                                                                                                                                                                                                               Newtown
                                                                                                                                ..........
                                                                                                                                                                                                                                                                                                                                                                               Creek
                                                                                                                                .........                                                                                                           . ............
                                                                                                                                                                                                                                                    ....... ..........
                                                                                                                                                                                                                                                    .............
                                                                                                                                .........                                                                                                           ..... .. ..........
                                                                                                                                                                                                                                                    ..............
                                                                                                                                .........                                                                                                           .. ..... .... .........


                                                                                                                                                                                                                                                    .. ..............
                                                                                                                                                                                                                                                                     Navy
                                                                                                                                                                                                                                                    . ..... Red      Yard                                                                                                      %
                                                                                                                                                                                                                                                    ....... ....................
                                                                                                                                                                                                                                                    Hook
                                                                                                                                                                                                                                                    .6
                                                                                                                                                                                                                                                    ...........

                                                                                                                                                                                                                                                    .............
                                                                                                                                                                                                                                                    ..............
                                                                                                                                                                                                                                                    OY
                                                                                                                                                                                                                                                    ... ........ ...........
                                                                                                                                                                                                                                                    ............................
                                                                                                                                                                                                                                                    ....... ...............                                                                                                    .....
                                                                                                                                                                                                                                                    ...........                                                                                                                .....
                                                                                                                                                                                                                                                    ...........
                                                                                                                                                                                                                                                    Sunset
                                                                                                                                                                                                                                                    ...........
                                                                                                                                                                                                                                                                                                                                                                               . .............. .....
                                                                                                                                                                                                                                                                                                                                                                                                 JFK
                                                                                                                                                                                                                                                                                                                                                                               ..........
                                                                                                                                                                                                                                                                                                                                                                               ......................
                                                                                                                                                                                                                                                                                                                                                                               . ............. .....
                                                                                                                                                                                                                                                    Park                                                                                                                       ......
                                                                                                                                                                                                                                                                                                                                                                               .............. ..
                                                                                                                                                                                                                                                                                                                                                                               . ......... ..... ......
                                                                                                                                                                                                                                                    ..... .                                                                                                                    . ............... .....
                                                                                                                                                                                                                                                                                                                                                                               ......... .......
                                                                                                                                                                                                                                                                                                                                                                               .............. ......
                                                                                                                                                                                                                                                                                                                                                                               ................
                                                                                                                                                                                                                                                                                                                                                                               . ..........
                                                                                                                                                                                                                                                                                                                                                                               . . .........
                                                                                                                                                                                                                                                                                                                                                                               . .. . ........
                                                                                                                                                                                                                                                                                                                                                                               ............r. ...........
                                                                                                                                                                                                                                                                                                                                                                               ... ........
                                                                                :::i*A                    Kill Van Kull
                                                                                                                                                                                                                                                                                                                                                                               ............
                                                                                                                                                                                                                                                    ....                                                                                                                       .............. .. ...

                                                                                                                                                                                                                                                                                                                                                                               . . ... . . .....

                                                                                                                                                                                                                                                                                                                                                                               . . .........
                                                                                                                                                                                                                                                    ..............                                                                                                             . ......
                                                                                                                                                                                                                                                                                                                                                                               .............. ...........
                                                                                                                                                                                                                                                                                                                                                                               ................
                                                                                                                                                                                                                                                                                                                                                                               :;j6'                                                                            ........
                                                                                                                                                                                                                                                                                                                                                                               ....................                                                             ....... ..................
                                                                                                                                                                                                                                                                                                                                                                                                 ....................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                . . . . .......... . . . .
                                                                                                                                                                                                                                                    ...........
                                                                                                                                                                                                                                                                                                                                                                               .... ........-    d......
                                                                                                                                                                                                                                                                                                                                                                                                 .......................
                                                                                                                                                                                                                                                    ....................
                                                                                                                                                                                                                                                    ......................                                                                                                     ........ ......
                                                                                                                                                                                                                                                    .......................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ...................
                                                                                                                                                                                                                                                    ...................                                                                                                        ...... . .....
                                                                                                                                                                                                                                                    ............................                                                                                               .... .............
                                                                                                                                                                                                                                                    ... ...... ...................... .............................. ..
                                                                                                                                                                                                                                                    ........................ ....................................
                                                                                                                                                                                                                                                    ............
                                                                                                                                                                                                                                                                     .. ........
                                                                                                                                                                                                                                                                                                                                                                               ...... ....
                                                                                                                                                                                                                                                                                                                                                                               ....................
                                                                 ....                                                                                                                                                                               ......... ............ ........
                                                   ..............                                                                                                                                                                                   ......... . ....                                                                                                           .............................................                                    ..........
                                                      .... . .. .                                                                                                                                                                                                                                                                                                              ..... ... ...............
                                                                                                                                                                                                                                                    ........ .................... XX                                                                                           ... ..............................
                                                                       io*                                                                                                                                                                                                                                                                                                     .... .......                                                                     .. ....
                                                                                                                                                                                                                                                                                                                                                                               ... ......... ...............                                                    ....... -.1 ..........
                                                                                                                                                                                                                                                    ................................. .......                                                                                  ................. .................................
                                                   .. ....                                                                                                                                                                                          ................................. . . . . . ........
                                                                                                                                                                                                                                                    .............                                                                                                                                                                                               ..........
                                                                                                                                                                                                                                                    ....................                                                                                                                                                                                        .........
                                                                                                                                                   .. ..............                                                                                I I....................
                                                                                                                                                   ..... ........................                                                                   ............                                                                                                                                                                                                ..........................
                                                                                                                                                                                                                                                    .....                                                                                                                                                                                                       ............... ..............
                                                   ...                                                                                             .....                                                                                                             ...............                                                                                           ......................... ...............
                                                                                                                                                                                                                                                                                                                                                                               .....................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                ... .......
                                                                                                                                                                                                                                                                                                                                                                               ..................................................
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                               Significant Maritime / Industrial Areas


                               FRTU                                      Significant Maritime                                                                                                                                                       Industrial Area                                                                                                            waterfront manufacturing zoning district
                               bold name
                                                                          airport                                                                                                                                                                                                                                                                                              waterfront manufacturing zoning district
                                        er!tp                                                                                                                                                                                                                                                                                                                                  with special environmental constraints

                               NOTE: Waterfront manufacturing zoning districts proposed for rezoning or parkland are not shown.




                               Comprehensive Waterfront Plan / NYC Department of City Planning / Working Waterfront








































                                                                                                                ftaw
                        View of Erie Basin from breakwater, Brooklyn



                    The Brooklyn Waterfront from Erie Basin to              poor condition and require substantial invest-
                    Owls Head (Erie Basin and Sunset Park) is               ment. Access to the Gowanus Expressway is
                    characterized by water-dependent facilities,            poor, although the area is proximate to lower
                    concentrations of industrial activity, well-            Manhattan.
                    buffered M3 districts, and vacant and publicly
                    owned land. Major facilities and uses in this           The Brooklyn Waterfront from Pier 6
                    area include the South Brooklyn Marine                  through the Red Hook Containerport is
                    Terminal, the 23rd Street Coffee Terminal,              devoted almost entirely to maritime cargo
                    Erie Basin Bargeport, Bush Terminal, the                operations and contains the city's only active
                    65th Street rail yards and car float operation,         containerport. The Red Hook Marine Termi-
                    the Brooklyn Army Terminal Industrial Park,             nal extends from Pier 8 through Pier 12. The
                    Industry City, and Sunset Park In-Place                 Port Authority runs a barge operation from
                    Industrial Park. Sites here have been pro-              the marine terminal to New Jersey. Piers 6
                    posed by the city for recycling, sludge pro-            and 7 are used for berthing vessels and mari-
                    cessing, a marine transfer station, and barge           time support uses.
                    tie-up facilities. Rail lines extend through the
                    area. The larger industrial area contains more
                    than 18,000 employees, with concentrations
                    in manufacturing and to a lesser extent in
                    wholesale trade. Piers and bulkheads are in


                                                                                                                          109






































                                            ............





































                                                                                               4







                The Brooklyn Navy Yard                                                      Source: Skyviews Incorporated


                The Brooklyn Navy Yard, operated by the                mostly M3 and is     moderately well-buffered
                Navy Yard Development Corporation, is                  from residential districts. The Red Hook
                characterized primarily by small manufactur-           WPCP is located west of the Navy Yard.
                ing businesses. It contains substantial invest-
                ment in waterfront infrastructure used by a
                harbor unit of the Fire Department, three
                ship repair businesses and several vessel
                berthing businesses. The Navy Yard is zoned

                110









                   Newtown Creek abuts portions of Greenpoint,             South Bronx (Port Morris and Hunts Point)
                   Williamsburg, Long Island City and Maspeth              contains well-buffered M3-zoned land, por-
                   industrial areas. Zoned predominantly M3,               tions of which are vacant and city-owned. The
                   these areas contain more than 30,000 industrial         larger industrial area contains approximately
                   jobs, with concentrations in manufacturing.             28,000 jobs of which about 80 percent are
                   The waterfront area is characterized by heavy           industrial. More than half the industrial em-
                   industry and municipal facilities, many of              ployment in Port Morris is in manufacturing;
                   which are water-dependent. There are 14 oil             about half the industrial jobs in Hunts Point
                   facilities located on both sides of the creek.          are in wholesale trade related to the Hunts
                   The Newtown Creek WPCP, a marine transfer               Point Food Distribution Center. The South
                   station, and the Greenpoint incinerator are             Bronx waterfront area also contains a number
                   located on the Brooklyn side. An asphalt plant          of municipal uses and the Oak Point and
                   and a sludge processing facility have been              Harlem River rail yards. A rail-truck inter-
                   proposed for the Queens side. The area has              modal facility (for unloading of TOFC onto
                   relatively good access to the Manhattan CBD             trucks) is proposed for the Harlem River
                   and Long Island City. It contains unused rail           Yards, and a sludge processing facility has been
                   spurs connecting to the Bushwick Branch of              proposed for a site in Port Morris. The area is
                   the Long Island Rail Road. The shoreline is             near the Major Deegan and Bruckner express-
                   entirely bulkheaded, although portions are              ways. Rail facilities provide access to Long
                   deteriorating. Dredging is required immediate-          Island and other parts of the city; completion
                   ly to maintain a navigable channel.                     of the Oak Point Link would permit trailer-





















                                                                                      "W








                   Newtown   Creek                                                   Hunts Point Cooperative Market, Bronx

                                                                                                                         III


























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                 Red Hook Marine Terminal, Brooklyn


                 on-flat-car service to the north and the rail            Retaining the zoning would establish land use
                 network west of the Hudson River via Selkirk             policy in areas that are particularly well
                 near Albany. The waterfront has several exist-           suited for the range of uses permitted by
                 ing piers and bulkheads near the rail lines              industrial zoning. The Significant Areas are
                 creating the potential for water and rail inter-         well suited for water-dependent and mari-
                 modal development.                                       time-related uses. These areas provide an
                                                                          important resource for promoting industrial
                 STRATEGY FOR SIGNIFICANT MARITIME                        development and for the future siting of
                 AND INDusmAL AREAs                                       municipal uses. Retaining the manufacturing
                 A number of actions are recommended to                   zoning will help ensure the future health of
                 strengthen the Significant Areas. Recommen-              these industrial areas by permitting a range
                 dations are intended to guide land use deci-             of economic activities which can co-exist
                 sions, city disposition policy and public                without difficulty as they have done to date.
                 investment strategies, and to promote better                 Requests for Proposals (RFPs) for dis-
                 interagency coordination to facilitate inter-                position of publicly owned property
                 modal development.                                           within the Significant Areas should give
                 N Manufacturing zoning should be main-                       preference to maritime, maritime sup-
                     tained in all Significant Areas.                         port, and water-dependent components
                                                                              where compatible with the primary use.
                 Maintaining the manufacturing zoning in the              Where property owned by the city, state or a
                 six Significant Areas (and in much of the                public authority is offered for lease or sale in
                 industrial waterfront elsewhere) is the prima-           these areas, RFPs should be structured so that
                 ry mechanism for ensuring sufficient land for
                 the future needs of the working waterfront.              practical proposals which include water-

                 112









                   dependent uses, where compatible with the                     A task force should be established to
                   proposed primary use, be given preference in                  develop and implement a regional rail
                   the selection process. In this way, water-                    freight intermodal strategy.
                   dependent uses would be encouraged in those
                   areas most suited to their operation.                     The city and state governments are committed
                                                                             to increasing intermodal potential in New
                       Development on property leased or                     York City where connections can be developed
                       sold by public agencies should be de-                 between at least two modes of transportation
                       signed in a way that would leave open                 (e.g., rail, barge and truck). The construction
                       future berthing of maritime support                   of the Oak Point rail link in the Bronx has the
                       vessels in and along the water.                       financial support of the city and state. The
                                                                             Port Authority and the Economic Develop-
                   To the extent feasible, RFPs for the disposi-             ment Corporation (EDC) have expressed their
                   tion of publicly owned property in the Signif-            intent to acquire and activate the Staten Island
                   icant Areas should require that bulkheads,                Railway Line which provides access between
                   piers and wharfs be retained and access to                Howland Hook and the Southern Rail Corri-
                   the water's edge not be permanently obstruct-             dor west of Staten Island. EDC is negotiating
                   ed. This requirement would help ensure the                with the Cross Harbor Railroad on the lease of
                   retention of valuable waterfront infrastructure           the 65th Street Rail Yards in Sunset Park for
                   needed to accommodate future maritime                     the development of an expanded car float
                   support needs.                                            operation between Sunset Park, Brooklyn and
                                                                             New Jersey. Although there are no active plans
                       Municipal   facilities proposed for loca-             to do so, the Bushwick Branch of the Long
                       tions in the Significant Areas should be              Island Railroad in eastern Newtown Creek
                       encouraged to consider inclusion of                   could also be activated to provide a fourth
                       water-dependent elements and use of                   intermodal facility if a need is identified.
                       rail for movement of materials.
                                                                             The proposed Task Force should include
                   Potential sites suitable for municipal uses               members of the Bi-State Regional Forum' and
                   such as sludge processing and waste handling              other city, state and private transportation and
                   facilities are located in several of the Signifi-         planning agencies. The task force can develop
                   cant Areas. These sites are generally well-               a coordinated capital and operating strategy to
                   buffered, M3-zoned waterfront land. Munici-               maximize the potential for intermodal trans-
                   pal facilities proposed in these areas should             port in the four Significant Areas which have
                   include, to the maximum extent feasible,                  rail infrastructure. Although intermodal facili-
                   water-dependent elements such as movement                 ties are projected to serve only a small portion
                   of material by barge or rail float. Four of the           of the goods movement needs of the city, they
                   proposed Significant Areas - the South                    may play a role in helping reduce the environ-
                   Bronx, Kill Van Kull, Newtown Creek, and                  mental impacts of truck traffic and in revitaliz-
                   Sunset Park - contain existing rail facilities            ing the waterfront.
                   which may be used for goods movement.                         Access improvements for the Significant
                   Water and rail transportation can help reduce                 Areas should be advanced.
                   the traffic impacts of some municipal uses.
                   Criteria requiring the consideration of water             The vitality of industry and the maritime
                   and rail for the movement of material should              facilities in the Significant Areas is dependent
                   be developed. Such criteria would consider                in large part on truck access to the city and
                   the economics of rail and barge movement, as              region's highway network for the movement of
                   well as the potential air quality, traffic and            goods. Studies have identified a range of
                   neighborhood benefits from a reduction in                 capital projects to facilitate truck movement
                   new truck traffic.                                        citywide. Specific projects to be considered for


                                                                                                                            113









                  the Significant Areas include: increasing the              JFK AND LAGuARDIA AIRPORT AREAS
                  capacity of the Goethals Bridge to improve                 Because of their significance to the local and
                  truck access from New Jersey to Howland                    regional economy, JFK and LaGuardia merit
                  Hook and the Brooklyn waterfront; providing
                  access ramps at 39th Street in Sunset Park to              special attention. Approximately 37,000 people
                                                                             are employed at JFK and in the surrounding
                  the Gowanus Expressway; construction of a                  industrial area. Truck access is the most critical
                  Newtown Creek crossing to facilitate access                problem for the air cargo facility at JFK, which
                  from north Brooklyn to the Long Island                     is the largest in the nation. The LaGuardia
                  Expressway; and completion of the Bruckner                 Airport area includes the airport and
                  Interchange to facilitate access to Hunts Point.           LaGuardia ferry dock. The Bowery Bay WPCP
                  The summary of the reach study recommenda-                 is located to the west. Area employment is
                  tions (Appendix A) identifies other area specif-           approximately 16,000. Although LaGuardia is
                  ic improvements.                                           primarily a passenger airport, its volume of air
                                                                             cargo would place it among the top 20 airports
                      WRP Policy 2 should be revised to apply                nationally.
                      specifically to the Significant Areas                      Improvements should be identified to
                  Although water-dependent uses are not feasible                 accommodate the needs of the airports
                  or appropriate in all waterfront locations,                    and air cargo facilities and to ensure their
                  WRP Policy 2 encourages them throughout the                    safe operation.
                  city. This can create conflicts with waterfront            Public actions should ensure that the safety
                  development and with unique natural areas.                 and operational needs of the airports are met
                  Clarifying this policy to apply specifically to            while protecting environmental resources in
                  the Significant Industrial Areas and to certain            Jamaica and Flushing bays. To improve pas-
                  water-dependent uses such as ferries would                 senger and freight movement, EDC, DOT and
                  make it more meaningful     and would facilitate           the Port Authority should pursue the poten-
                  WRP consistency reviews.                                   tial for waterborne movement of passengers
























                                                                      '*W'        @@W "0W






                      let landing at LaGuardia Airport, Queens



                  114





































                              A
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                                                    U
                                                                        "W
                                                0,,
                                                  Ak@
                                               "15


                   Dredging operation along Staten Island waterfront


                   and freight between JFK and Manhattan, and                   evaluation of working waterfront uses
                   for freight only, between the airport and New                and the overall best use of the land.
                   Jersey. There may be some potential for fast
                   freight ferry service between LaGuardia and              Certain industrially zoned sites appropriate for
                   Manhattan and New Jersey. Most important,                reuse are identified in the Plan for the Rede-
                   the city and state transportation agencies               veloping Waterfront. These represent a small
                   should examine strategies to improve truck               portion of industrially zoned waterfront land
                   access to JFK, including the widening of the             citywide. Potential reuse of other sites would
                   Van Wyck Expressway and improvements to                  depend on an evaluation of land use and the
                   alternate truck routes to the airport. Industri-         long-term needs of the working waterfront.
                   al zoning on land abutting JFK should be re-                 Develop a port improvement and invest-
                   tained to accommodate growth in the air                      ment program to propose a long-range
                   cargo industry.                                              strategy for capital improvements and
                   CITYWIDE STRATEGY FOR THE                                    development priorities for port-related
                   WORKING WATERFRONT                                           infrastructure.
                   in addition to the strategy for the   Significant        Waterfront infrastructure repair has been
                   Areas and the airports, the plan for the Work-           constrained by overlapping jurisdictions, a lack
                   ing Waterfront includes recommendations for              of coordination among agencies and insuffi-
                   other waterfront industrial areas, dispersed             cient funding. Establishment of a task force
                   working waterfront uses, capital investment              consisting of city, state and federal agencies
                   and financing, and regulator  y review.                  with port and waterfront jurisdictions is rec-
                                                                            ornmended to develop a coordinated capital
                   0   Retain manufacturing zoning in other                 improvement strategy for port facilities. This
                       waterfront industrial areas based on an              would include targeting and coordinating city,


                                                                                                                           115












                  state and federal funds for maritime-related                and to finance improvements. In conjunction
                  infrastructure repair and capital improvements              with this examination, the city should be
                  (e.g., bulkhead repair, pier rehabilitation,                encouraged to extend long-term leases to
                  channel dredging) in conjunction with port                  these businesses to increase their ability to
                  and other industrial developments.                          meet loan requirements.

                      Identify highway transportation im-                     M Permit ferries and excursion boats in
                      provements to improve truck freight                         more locations and encourage their
                      movement citywide.                                          development.

                  The plan identifies specific access improve-                The Zoning Resolution should be amended to
                  ments for the Significant Areas. Citywide                   permit greater flexibility in siting these uses in
                  highway system and access improvements are                  residential and commercial zones. These uses
                  essential to the long-term health of the city's             are compatible with many residential and
                  economy and its industrial areas, both on the               commercial uses but are restricted to manufac-
                  waterfront and inland. A number of studies by               turing districts and certain commercial zones.
                  DOT, DCP and State DOT have recommended                     They are dispersed throughout the waterfront,
                  improvements beyond those currently planned                 and could be incorporated more widely in as-
                  or funded. implementation of these improve-                 of-right development projects if permitted by
                  ments and local industrial area improvements                zoning. The success of ferry service could be
                  such as street repaving would facilitate indus-             enhanced by better coordination with subway
                  trial and working waterfront development.                   and bus service. The plan identifies several
                                                                              sites where new passenger ferry service could
                      Complete the Harbor Drift Program to                    be viable. The Department of Business Services
                      enhance maritime operations.                            and DOT should seek operators for ferry
                  The Port Authority, EDC and the Army Corps                  service at these locations. The plan identifies
                  of Engineers should work toward completing                  potential locations for the introduction of fast
                  the city's Harbor Drift Program by the year                 freight service. EDC and the Port Authority
                  2000. In view of their economic and ecological              should pursue their implementation by seeking
                  value, the Kill Van Kull and Hudson River                   private operators.
                  reaches should receive high priority for the                    Facilitate the development of marina
                  next round of funding. Issues regarding dis-                    and marina-support services.
                  posal of drift materials must also be resolved.
                                                                              Amending the Zoning Resolution can facilitate
                  M Seek revisions to city, state and federal                 the development of marina and marina sup-
                      financial assistance and highway aid pro-               port facilities by better defining these facilities
                      grams to increase the eligibility of mari-              and permitting them in more districts. Regula-
                      time-related businesses.                                tions governing accessory marina slips can be
                  A number of city and state financial assis-                 made less restrictive, and thereby encourage
                  tance programs are available to industrial and              their development in dispersed locations.
                  other working waterfront users for acquiring                    Amend the WRP to facilitate working
                  and improving sites, and maintaining and                        waterfront development.
                  repairing infrastructure. Some working water-
                  front uses are unable to meet the programs'                 Waterfront development is constrained by the
                  eligibility requirements. Eligibility require-              difficulty in obtaining permits and approvals
                  ments, particularly those related to collateral             for dredging and the repair and construction
                  requirements, should be examined and                        of bulkheads, piers, wharfs and other water-
                  amended where appropriate to expand their                   front infrastructure. The long term success of
                  applicability to maritime- related businesses               water-dependent and other working waterfront

                  116











                 uses can be enhanced by a more predictable,                      Encourage public access in public projects
                 less time consuming and less costly process for                  where safety can be assured and access
                 infrastructure development. Public agencies                      can be designed to avoid interference with
                 with waterfront and regulatory jurisdiction and                  industrial uses.
                 representatives of working waterfront indus-
                 tries should develop guidelines for develop-                 The revised WRP would not require public
                 ment and construction to facilitate approvals                access for private industrial developments.
                 for these essential activities. These guidelines             Public agencies, however, would be encouraged
                 would be incorporated into revisions to the                  to provide access, if appropriate and feasible,
                 Waterfront Revitalization Policies and given                 in conjunction with publicly sponsored devel-
                 geographic specificity. Guidelines would be                  opment. The plan for the Public Waterfront
                 established for the Significant Areas where                  recommends the development of piers and
                 environmental resources are less prevalent,                  street ends for public access in certain indus-
                 while different standards would be established               trial areas.
                 for industrial areas in proximity to unique
                 natural areas. A predictable regulatory environ-
                 ment is critical to the long term success of
                 water-dependent uses in New York Harbor. It
                 would facilitate new uses and the expansion
                 of existing uses by reducing uncertainty and
                 the time and cost required to obtain needed
                 approvals.





                                                                  ENDNOTES

               1.  The industrial sector consists of Manufacturing; Transportation, Communications and Public Utilities; Wholesale
                   Trade; and Construction.

               2.  Break-bulk refers to freight delivery of individual cargo pieces requiring unloading from the ship and repacking
                   for delivery to warehouses or consumers. Containers, which are filled with cargo pieces, are transferred directly
                   from ship to truck or railcar.

               3.  State financial assistance programs include NYS Job Development Authority Direct Loan and Loan Guarantee
                   programs, and Urban Development Corporation assistance programs. City programs include the Revolving Loan
                   Fund and Industrial Development Agency.

               4.  The Bi-State Regional Forum is a cooperative effort of the region's "Big Six" transportation agencies. The
                   membership includes the Port Authority, the NYS and NJ Departments of Transportation, City DOT, the MTA
                   and NJ Transit Corporation.










                                                                                                                                117





















                                                                                                                                                                                                                                                                                                                                                                                                                                                        "IMM,





























                                                                                                                                                                                                                                                                                                                                                                                                                                                                             ... .... .

                                                                                                                                                                                                                                                                                                                                                                                                                                            ...... . . .......





                                                                                                                                                                                                                                                                                                                                                                                                      . .. ... ... .







                             THE REDEVELOPING WATERFRONT


                   The general decline of industry, especially                The plan for the Redeveloping Waterfront
                   maritime uses, provides the opportunity to                 identifies waterfront development projects
                   expand areas zoned for residential and com-                which have been approved and require no
                   mercial uses and foster redevelopment oppor-               further discretionary actions; examines zoning
                   tunities that would revitalize the waterfront.             and planning issues related to redevelopment;
                   Redevelopment can benefit all New Yorkers by               proposes criteria for redevelopment; and
                   providing housing, fostering economic growth,              recommends areas suitable for new housing
                   and reestablishing the public's connection to              and commercial development.
                   the waterfront by integrating open space and
                   public access into redevelopment projects.                 THE REDEVELOPING
                   The redeveloping waterfront comprises those                WATERFRONT TODAY
                   areas that provide opportunities for non-                  ZONING
                   industrial waterfront development, including               Mapped parkland and manufacturing districts
                   residential, office, retail and community facility         occupy about 75 percent of the waterfront.
                   uses. The main principle guiding planning for              Much of the remaining waterfront land is
                   the redeveloping waterfront is to accommodate              zoned for lower-density residential develop-
                   and encourage change by taking advantage of                ment. Lower-density residential districts (RI
                   appropriately located vacant and underutilized             through 115) tend to be mapped on the perim-
                   land not identified in this plan as needed for             eter of the city, far from mass transit. These
                   other purposes. Such redevelopment is com-                 areas include portions of the waterfront in the
                   patible with, and will create important oppor-             East Bronx, Staten Island, Queens and the
                   tunities for public access and open space. With            southern shore of Brooklyn. Except for ap-
                   appropriate site planning, redevelopment can               proved projects and scattered and under-
                   also be compatible with natural features. The              utilized sites, there are few opportunities in
                   following goals have been identified for the               these lower-density districts where redevelop-
                   redeveloping waterfront:                                   ment could proceed as-of-right; lower-density
                   ï¿½    Promote economic development and en-                  areas are largely developed or are occupied by
                        hance the city's tax base by providing                protected wetlands or arterial roadways along
                        opportunities for new uses, including                 the shoreline. Some of these areas are mapped
                        housing for a range of income groups.                 with C3 districts, which permit water-related
                                                                              commercial uses such as marinas along with
                   ï¿½    Enliven the waterfront by promoting                   the lower-density residential development.
                        people-attracting uses, open space, and               (Map 6.0)
                        public access to the waterfront.
                                                                              Medium-density districts (116 and R7) on the
                   ï¿½    Integrate new development with adjacent               waterfront are mapped in limited locations
                        upland communities.                                   outside the central business district (CBD).
                                                                              These areas include Coney Island and Brighton
                   ï¿½    Consider land use, availability of services           Beach in Brooklyn, Roosevelt Island in Man-
                        and infrastructure capacity in determin-              hattan, Co-op City in the Bronx, and parts of
                        ing scale of redevelopment.                           the Rockaways in Queens. Areas permitting
                   ï¿½    Promote social and economic diversity                 higher density residential development (118, R9,
                        on the waterfront.                                    RIO densities) are located in Manhattan or in
                                                                              areas directly accessible to the Manhattan CBD.


                                                                                                                              119







                               MAP 6.0



















                                                                         .........                                 ..





                                                                                                              V
                                                                                                           ...........


















                                                                                                                                                                              .. ... .... . ...

                                                                                                                                                                                                        ..........
                                                                                                                                                                                                . . . .......



                                                                                                                                                                                                                                     ..........
                                                                                                                                                                                                                                  .... .......
                                                                                                                                                                                                                                                ..........
                                                                     ...............




                                                               -XX;


                                                            ..........
                       Existing Waterfront Residential and Commercial Zoning
                       Districts and Approved Redevelopment Projects


                                                         existing residenfial or commercial zoning district
                                                         fronting on water, esplanade, or public beach

                               9                         approved redevelopment project



                                                                                                                      Department of City Planning / Redeveloping Waterfront









                   These areas include the Upper East Side, the               ing units with local retail development, new
                   site of the proposed Riverside South project               waterfront parkland and community facilities.
                   and Battery Park City in Manhattan, and a                  The Fordham Landing project in the Bronx
                   portion of Long Island City in Queens.                     includes approximately 600 housing units,
                   Commercial districts are not widely mapped                 retail space and a waterfront esplanade.
                   on the waterfront. Coney Island contains a C7              Higher-density developments are planned for
                   district which permits open commercial                     the East River waterfront in Hunters Point,
                   amusement parks and excludes residential                   Queens, and Battery Park City in Manhattan.
                   development. General and central commercial                The Hunters Point project includes more than
                   districts, C4 and C6 (residential development              6,400 housing units, office and retail space and
                   allowed), are mapped in limited locations in               a waterfront esplanade. The residential project
                   lower Manhattan and in Co-op City. Local                   approved for the nearby East River Tennis
                   service and retail districts, CI and C2 (if                Club site would include 960 housing units,
                   overlay districts, governed by underlying                  local retail space, and a waterfront esplanade
                   residence   district bulk regulations),         are        which has the potential to connect to the
                   mapped in scattered locations such as                      esplanade planned for Hunters Point. The
                   Sheepshead Bay in Brooklyn, and College                    completion of Battery Park City north of the
                   Point and Arverne in Queens.                               World Financial Center will include housing,
                   ExiSTING REDEVELOPMENT PROJECTS                            a high school, office space, a hotel, local retail
                   In recent years, several major projects have               uses and public waterfront open space. The
                   been approved for both residential and com-                city has approved renovation of Pier A in
                   mercial waterfront development. Most of these              lower Manhattan for a restaurant, visitors'
                   projects incorporate new public waterfront                 center and public access.
                   access and urban design controls as an out-
                   come of the discretionary approval process.
                   They are summarized below and shown on
                   Map 6.0.

                   Five lower-density residential projects are
                   under construction or have been approved for
                   locations in Staten Island, Brooklyn and the
                   Bronx. The Captain's Quarters and Prince's
                   Point projects, both located on the south shore
                   in Staten Island, incorporate waterfront public
                   access, as do the Shorehaven and Castle Hill
                   Estates projects in the Soundview section of
                                                                                          '77-7,rMW7777@
                   the Bronx. The first phases of the Captain's
                   Quarters and Shorehaven developments are
                   complete. Rose Cove, located on the Lower
                   Bay adjacent to Dreier Offerman Park in
                   Brooklyn, combines low-rise residential devel-
                   opment with a marina and public esplanade.
                   The first phase of this project is complete.

                   Medium-density residential projects have been
                   approved for a site on the Harlem River in the
                   Bronx and on city-owned land in Arverne,
                   Queens. The Arverne plan calls for 7,500 hous-             Rose Cove development in Brooklyn


                                                                                                                              121









                  Two commercial developments have been ap-                    or areas in proximity to the city's two major
                  proved for waterfront locations in southern                  airports or its major port facilities. Most
                  Brooklyn. Development of a new Steeplechase                  industrial uses, however, do not require a
                  Amusement Park in Coney Island was ap-                       waterfront location. Some industries that
                  proved in 1989. More recently, redevelopment                 require, or could benefit from, a waterfront
                  of the former Lundy's Restaurant in Sheepshead               location, such as marina and ferry operations,
                  Bay was approved for restaurant and com-                     recreational excursions, and waste recycling
                  mercial uses. The Outerbridge area in Staten                 and transfer have shown modest growth re-
                  Island is the site of Harbor View, a planned                 cently and may offer some potential to grow in
                  banquet hall, restaurant, small hotel and                    the future. As discussed in the Working Wa-
                  public esplanade.                                            terfront chapter, the demand generated by
                                                                               these activities is not expected to be nearly
                  THE IMPORTANCE OF                                            enough to occupy waterfront land currently
                  REDEVELOPMENT                                                zoned for manufacturing.
                  ECONOMY                                                      The plan for the Working Waterfront desig-
                                                                               nates six industrial/maritime areas where
                  One of the foremost requirements of this com-                retention of manufacturing zoning is recom-
                  prehensive plan is to foster economic growth.                mended. These areas are particularly well-
                  The decline of industrial and maritime activity              suited to meet the future needs of the mari-
                  has left portions of the waterfront vacant and               time support industry and provide locations
                  underutilized, and future opportunities for                  for other industrial and municipal uses. Much
                  growth of these uses are limited. Waterfront                 of the manufacturing-zoned land outside these
                  redevelopment in selected locations can make                 six areas also would to be retained. Although
                  better use of this land by promoting activities              conditions in these zoning districts vary, a
                  that support the city's growing economic sec-                substantial amount of working waterfront
                  tors. It can play a crucial role in the city's               activity remains and will continue for the
                  economic growth by providing sites for the                   indefinite future.
                  expansion of the central and regional business               Many vacant and underused manufacturing-
                  districts and for local economic development
                  through the provision of new retail, office,                 zoned sites outside the significant industri-
                  hotel and entertainment uses. The future role                al/maritime areas and the airports offer im-
                  of the waterfront in the city's economy will be              portant economic development opportunities.
                  broader than its historic role in maritime and               Integration of commercial and retail uses with
                  industrial activity.                                         public open space can enliven the waterfront
                                                                               and make it attractive to residents, workers
                  The maritime industry was once the linchpin                  and tourists alike, as it has been done in
                  of the city's economy. The decline of this                   other cities and in developments like Battery
                  industry, combined with the overall decline in               Park City and the South Street Seaport.
                  industrial employment, has resulted in sub-                  Moreover, it can promote growth in the city's
                  stantial amounts of vacant or underused man-                 key industries (such as information -based
                  ufactu ring- zoned land throughout the city and              industries, tourism and culture), which func-
                  on the waterfront. industrial uses on the                    tion as the city's economic base, by bringing
                  waterfront will continue to play a role in the               income into the city from elsewhere. The
                  city's economy, particularly in those areas with             waterfront can boost growth also in industries
                  good access to the regional highway network                  that provide goods and services to local
                  and the central and regional business districts,             businesses and consumers.


                  122









                                                                                                                 WINM@











                                                                                               _7












                                         K




                      Vacant industrial land in Williamsburg, Brooklyn


                  The World Financial Center in lower                     HOUSING
                  Manhattan has extended the central business             Despite a substantial increase in the construc-
                  district to the Hudson River. Office space is           tion- of new unsubsidized and subsidized
                  integrated with public access, retail and en-           housing during the economic upturn of the
                  tertainment activities, a marina and ferry              1980s, supply did not keep pace with
                  service. On the East River, the South Street
                  Seaport integrates historic preservation with           demand. As a result, vacancy rates remained
                  uses that promote economic development and              low, and prices for market rate housing
                  waterfront revitalization. The Manhattan                increased. In 1982, the median home price in
                  waterfront plays a particularly important role          the New York metropolitan area was the
                  in promoting tourism through activities such            same as the national average; by 1985 it was
                  as the Seaport, the Circle Line and Intrepid            double the national average. Although the
                  Museum on the Hudson River in midtown,                  current economic recession has resulted in a
                  and ferry service to the Statue of Liberty and          fall in prices, the city must be poised for the
                  Ellis Island.                                           next economic upturn by ensuring opportuni-
                  Although tourism presently plays a less im-             ties for housing development.
                  portant role outside Manhattan, many water-             Housing production during the 1980s
                  front uses in the other boroughs contribute             remained well below the rates of the 1960s
                  to the city's economy. These include recre-             and early 1970s when financing was more
                  ation and marinas on City Island, deep sea              favorable and substantial federal housing
                  fishing boats and retail in Sheepshead Bay,             assistance was available. From 1961 to 1970,
                  and restaurant and entertainment uses such              an average of 34,900 units a year were com-
                  as the River Cafe and Bargemusic on the East            pleted, compared to an average of only 13,200
                  River in Brooklyn.                                      units a year during the peak 1980s period

                                                                                                                       123









                 from 1986 through 1989. During this latter                that makes the city more livable and attrac-
                 period, new housing was built at a range of               tive. Fostering waterfront activities that at-
                 densities and in a variety of areas throughout            tract people to it can add significantly to
                 the city to accommodate the preferences of                the quality of life in the city. These activi-
                 buyers and renters.                                       ties range from restaurants and retail devel-
                                                                           opments incorporating water views and
                 Although there is substantial zoned capacity              sitting areas, to excursion boats, restaurants
                 for residential development outside water-                on barges, and historic and cultural uses.
                 front areas, waterfront sites are important
                 because of the attractive views they offer and            As the public benefits from open space and
                 their ability to accommodate large-scale                  activities directly on the waterfront, upland
                 residential developments. In a densely built              areas also benefit. For example, the develop-
                 environment like New York City, large devel-              ment of the proposed esplanade on Manhattan's
                 opment sites are limited. Portions of the                 West Side will improve the quality of life for
                 waterfront can provide housing sites to help              nearby residents. Similarly, Riverside Park
                 meet future demand.                                       makes the adjacent neighborhoods a more
                                                                           attractive place to live. In low-scale waterfront
                 QUALITY OF LIFE                                           communities, point acces@, visual corridors and
                 The waters that surround the city comprise                suitably sited esplanades allow residents to
                 its largest contiguous open space, a resource             benefit from their proximity to the waterfront.







                                                                                     .. ...... "..-A







                                                          0@ M







                                                                                                     A,    I













                     Pier 17 at the South Street Seaport, Manhattan




                 124









                    WATERFRONT DEVELOPMENT                                    areas. Because existing zoning regulations do
                    ISSUES                                                    not require these elements, redevelopment
                                                                              under existing regulations can pose a barrier
                    ZONING                                                    rather than a gateway to the waterfront.

                    The 1961 Zoning Resolution did not anticipate
                    significant non-industrial waterfront develop-            Configuration, Bulk and Density
                    ment and therefore did not differentiate be-              Waterfront zoning lots are generally irregularly
                    tween waterfront and upland development.                  shaped. Because today's zoning regulations
                    Much of the waterfront in 1961 was occupied               were devised for regularly shaped lots, some
                    by industrial uses or mapped as parkland.                 waterfront sites are unbuildable. Development
                    Since then, public reviews of many waterfront             on other sites, particularly when portions are
                    projects have highlighted the inadequacies of             under water, could be out of scale with build-
                    the Resolution in regulating waterfront devel-            ings in similarly zoned upland neighborhoods.
                    opment. These public reviews have led the city
                    to incorporate elements that the Resolution               Moreover, current zoning does not distinguish
                    does not require, such as public access and               piers and platforms from upland areas and
                    open space, design controls and visual corridors.         does not recognize the unique planning con-
                                                                              cerns associated with development on these
                    Rezonings or other discretionary actions for              structures.
                    waterfront redevelopment continue to be sub-
                    jected to site-by-site negotiation to ensure the          The proposed generic waterfront zoning regu-
                    provision of these common elements. The                   lations presented in Chapter 7 respond to
                    absence of clear regulations and guidelines for           these issues and would achieve a number of
                    waterfront development has created uncertain-             goals for the redeveloping waterfront.
                    ty and a lack of predictability, discouraged
                    investment, and limited the city's ability to             REGULATORY REviEw
                    plan for the waterfront. Specific zoning issues
                    are identified below and discussed further in             The complexity of the permitting and approval
                    Chapter 7.                                                process can impede public and private invest-
                                                                              ment throughout the city. This problem is
                    Waterfront Use Groups                                     exacerbated on the waterfront, in part because
                                                                              of the concerns posed by waterfront develop-
                    The goal of enlivening the waterfront through             ment and overlapping governmental jurisdic-
                    redevelopment is sometimes constrained by                 tions. In addition, it is often difficult and
                    regulations that limit water-related uses such            sometimes impossible for waterfront redevel-
                    as ferries, accessory marinas, floating restau-           opment projects to be consistent with all WRP
                    rants and seasonal commercial uses along                  policies. Policy I explicitly promotes new
                    esplanades.                                               economic development in underutilized areas
                                                                              of the waterfront, but such development often
                    Public Access and Open Space                              conflicts with other WRP policy goals. The
                    The integration of public open        space and           waterfront plan can facilitate redevelopment by
                                                                              resolving these conflicts and by providing
                    access into residential and commercial water-             decision makers and the public with land use
                    front redevelopment is crucial to reestablishing          policies and zoning controls more responsive
                    the public's connection to the waterfront and             to public goals.
                    connecting new development with upland


                                                                                                                             125








































                                                                                                              .. ........
















                 Rendering of the planned East River Tennis Club development in Long Island City, Queens
                 Source. CetralRuddy Inc., Architects



                 AFFORDABLE HOUSING                                       INFRASTRUCTURE CAPACITY
                 One of the goals of the redeveloping water-              Infrastructure capacity and conditions may
                 front is to foster economic and social integra-          affect the location, uses and density of new
                 tion. Reusing portions of the waterfront for             development and dictate improvements and
                 residential use promises to create new com-              investments needed to expand capacity.
                 munities where none currently exist. The De-
                 partment of City Planning is exploring the               Highway Access
                 inclusion of affordable housing in new com-              Waterfront industrial areas developed when
                 munities and in large-scale developments                 freight transportation was primarily by water
                 throughout the city. Proposals from this                 and rail, and workers arrived on foot or by
                 study would apply to both waterfront and                 ferry. Therefore, certain industrial sites may be
                 upland properties.. The Waterfront Reach                 poorly suited to freight movement by truck.
                 studies also recommend waterfront areas for              Highway capacity and accessibility may limit
                 new housing development. Some of these                   redevelopment opportunities or the types and
                 areas could be developed with affordable                 intensity of new uses on a site, particularly for
                 housing, particularly where there are oppor-             those areas that are not readily accessible to
                 tunities to use publicly owned land to foster            mass transit.
                 mixed-income communities.



                 126











                  Mass Transit Access                                      REDEVELOPMENT CRITERIA
                  Waterfront areas well served by mass transit,            Areas identified as unique natural areas or as
                  such as in Manhattan and Long Island City,               best suited for parkland or industry generally
                  can generally accommodate a wider range of               are not considered appropriate for redevelop-
                  uses and higher densities of development than            ment. As discussed in the Working Waterfront
                  areas that are more auto-dependent. Poor                 chapter, areas best suited for maintaining
                  subway access limits development densities.              manufacturing zoning are primarily industrial
                  Surface transit is flexible, and routes can be           and have relatively high levels of industrial
                  adjusted to reflect new population, employ-              activity, good access for moving freight, and/or
                  ment, and commuting patterns. Provision of               hydrological conditions suitable for port-relat-
                  ferry service also can offset some constraints.          ed and maritime activities. In some instances,
                  Sewage Treatment                                         areas suited for industrial uses may be equally
                  Wastewater from new development must be                  suited for non-industrial uses. The waterfront
                  treated by one of the city's 14 water pollution          plan seeks to identify individual sites in these
                  control plants. Two of these facilities exceed           areas for reuse based, in part, on their poten-
                  their State Pollution Discharge Elimination              tial to accommodate new residential communi-
                  System permit capacities and one facility is             ties, extend existing communities to the water-
                  operating at or near its permitted capacity. The         front, or generate jobs and tax revenues.
                  city is evaluating methods to better measure             The identification of redevelopment sites must
                  and reduce flows, to better use excess plant             be balanced with the need to site municipal
                  capacity, and to expand capacity where needed.           facilities and other uses requiring manufactur-
                  Adequate capacity is an essential ingredient in          ing-zoned land. M3-zoned sites considered
                  the city's ability to grow and prosper. As
                  discussed in the Natural Waterfront chapter,             suitable for redevelopment may not be suitable
                  there needs to be a joint inter-agency working           for many municipal facilities, however, because
                  group to ensure that adequate capacity is                of proximity to residential uses and the need
                  provided for all as-of-right and discretionary           for an adequate buffer between the facilities
                  development. This requires better coordination           and residential or commercial uses. Sites
                  of land use and infrastructure planning, and             appropriate for both kinds of uses must be
                  the implementation of appropriate measures to            evaluated for potential benefits.
                  provide adequate capacity citywide.                      The land use criteria considered in determin-
                  Sewers and Streets                                       ing areas appropriate for reuse include:
                  Development of "older" waterfront areas or               E   the absence of unique or significant
                  waterfront areas that are not fully developed                natural features or, if present the poten-
                  may require upgrading, replacement or con-                   tial for compatible development;
                  struction of sewer lines and connections,
                  separate storm sewers and local streets. Lack of         0   the presence of substantial vacant land or
                  adequate local infrastructure need not preclude              land occupied by less intensive uses;
                  redevelopment, although it may require sub-
                  stantial infrastructure investments. For exam-           0   proximity to residential or commercial
                  ple, the Arverne project requires investments                uses;
                  in new sewage lines and streets. Similarly,
                  developments in certain waterfront areas in              0   the potential for strengthening upland
                  Staten Island require new storm sewers and                   residential or commercial areas and for
                  private sewage treatment plants.                             opening up the waterfront to the public;


                                                                                                                         127









                 ï¿½   the availability of neighborhood services,            The plan for the redeveloping waterfront is
                     either on- or off-site, such as open space,           summarized on the following pages. It consists
                     community facilities and retail services;             of approved projects for which no further
                     and                                                   discretionary actions are needed and proposed
                 ï¿½   the number of jobs potentially displaced              redevelopment opportunities for areas that
                     balanced against the new opportunities                would require rezoning and/or other discre-
                     created by redevelopment.                             tionary actions, such as dernapping of streets
                                                                           or disposition of city-owned property, for
                 In addition' to the significant maritime/in-              redevelopment to take place.
                 dustrial areas identified in the Working Water-           As shown on Tables 6.0 through 6.4, proposed
                 front chapter, retention of manufacturing                 redevelopment opportunities include density
                 zoning is appropriate for *other industrial areas         guidelines for most sites. The selection and
                 that do not meet the criteria for land use                mapping of specific zoning districts would be
                 change. Some sites located outside the signifi-           based on more detailed land use studies,
                 cant areas, however, may have active industrial           including the analysis of infrastructure capaci-
                 uses in close proximity to upland residential             ty. The highest-density residential zoning
                 neighborhoods. Although the current uses of               districts, R9 and RIO (and their commercial
                 such sites may be suitable, it would be appro-            equivalents), would permit excessive bulk
                 priate to reassess the zoning periodically as             along the waterfront if widely mapped. Most
                 current uses and conditions change.                       waterfront areas do not have adequate infra-
                                                                           structure to accommodate the density of
                 THE PLAN FOR THE                                          development permitted by these districts. As a
                 REDE    VELOPING WATERFRONT                               general rule, these highest-density districts
                 The goals of waterfront redevelopment can be              would be considered for mapping in only a
                 achieved in large part by two mechanisms:                 few locations directly accessible to the Manhat-
                 amending the Zoning Resolution to better                  tan CBD where mass transit access is excellent,
                 regulate waterfront development (Chapter 7);              the scale of development would be compatible
                 and rezoning specific areas appropriate for               with the upland character, and public policy
                 redevelopment using the amended regulations.              seeks to create a new, or reinforce an existing
                 Revising WRP policies (Chapter 8) to provide              activity center.
                 locational specificity also will help to achieve          BRoNx
                 the redeveloping waterfront goals.                        The Harlem and Hudson rivers border the
                 Based on the recommendations for the natural,             Bronx on the west. Few redevelopment oppor-
                 working and public waterfronts and the analy-             tunities exist; these waterfront areas are char-
                 sis of issues and criteria, this plan identifies          acterized primarily by parkland, rail facilities
                 areas suitable for redevelopment with commer-             and industrial uses. The plan proposes two
                 cial and residential uses. The choice of areas            industrially-zoned sites along the lower Harlem
                 represents a balance among the sometimes                  River and one site along the upper Harlem
                 competing objectives of the waterfront plan.              River for medium-density residential develop-
                 Redevelopment areas provide opportunities for             ment, in addition to the previously approved
                 expanding commercial and housing develop-                 Fordham Landing housing development and
                 ment, creating jobs and expanding the tax                 the previously proposed Harlem River Espla-
                                                                           nade. Nearer to the confluence with the Hud-
                 base, revitalizing the waterfront, and improv-            son River, a city-owned, six-acre site zoned R6
                 ing the quality of life in the city through               is recommended for residential development.
                 waterfront access and open space.



                 128











                                                                         BROOKLYN


                                                                         The Brooklyn waterfront from Newtown
                                                                         Creek south to Owls Head Park is zoned for
                                                                         manufacturing. Retention of the manufactur-
                                                                         ing zoning is recommended for most of this
                                                                         reach. Several privately owned sites in
                                                                         Greenpoint and Williamsburg meet the crite-
                                                                         ria for reuse; medium-density residential and
                                                                         local retail development is recommended.
                  L                                                      Both the Brooklyn Piers and Fulton Ferry can
                                          g,
                                                                         be redeveloped. The State Parks Department
                                                                         has recommended reuse of the Empire Stores
                                                                         Warehouses. Proposals being prepared for the
                                                                         Port Authority-owned Piers 1-5 should con-
                                                                         sider the inclusion of housing, mixed uses,
                                                                         recreation, open space and marina develop-
                                                                         ment. Residential and commercial redevelop-
                                                                         ment is recommended for a portion of the
                                     MEN
                                                                         Red Hook peninsula containing concentra-
                                      .M\
                                      "GO,
                                                                         tions of vacant and underutilized public and
                                                                         privately owned land.


                  Highbridge Yards site on the lower Harlem River,       The waterfront from Owls Head Park south
                  Bronx                                                  and west along the south shore of Brooklyn
                                                                         to Manhattan Beach is characterized by low-
                                                                         er-density residential communities, park-
                  The East Bronx is characterized primarily by           land, beaches and waterfront uses with
                  major parks and natural areas, lower-density           upland residential and commercial develop-
                  residential development, and industrial zon-           ment. Sites on the north shore of Coney
                  ing in the Westchester Creek area. Demap-              Island Creek and in Sheepshead Bay and
                  ping the unbuilt Shore Drive and remapping             Coney Island are recommended for redevel-
                  the bulkhead closer to shore in the Throgs             opment. Coney Island contains a consider-
                  Neck area would enable some lower-density              able amount of vacant land, with opportu-
                  development while limiting development of              nities for rebuilding the Steeplechase
                  lands under water. Along Westchester Creek,            Amusement Park and developing housing.
                  rezoning an industrially zoned site near               Sheepshead Bay offers opportunities for
                  Zerega Avenue is recommended. Already                  commercial development to complement its
                  approved redevelopment projects in the East            "fishing village" character.
                  Bronx include lower-density residential devel-
                  opment at Shorehaven and Castle Hill Estates.
                  (Map 6.1 and Table 6.0)






                                                                                                                     129
















                                                       .. . ...... .































                    Planned Coffey Street recreation pier adjacent to proposed redevelopment area in Red Hook, Brooklyn


                Most areas bordering Jamaica Bay are expected             water's edge. Because much of the available
                to remain as parkland and protected natural               waterfront land is in public ownership, there
                areas because of their significant natural value.         are opportunities to close gaps in access and to
                A few upland sites can accommodate lower-                 encourage redevelopment, taking advantage of
                density residential and retail development'               the waterfront's proximity to the CBD and
                These areas do not contain significant natural            high-density residential areas. DCP is partici-
                features and can be buffered from natural                 pating in several planning efforts affecting
                areas by careful site planning and public open            Manhattan's waterfront, including the West
                space. Site planning guidelines would be estab-           Side Waterfront Panel, the Plan for lower
                lished prior to disposition of these city-owned           Manhattan, and planning for Riverside South.
                sites. Rezoning a portion of the Mill Basin               Several redevelopment nodes and areas on the
                manufacturing area to R5, C2 and C3 is rec-               West Side have been designated to provide for
                ommended. This area is underutilized and                  a balanced mix of revitalization opportunities.
                adjacent to residential and commercial devel-             The East Side and lower Manhattan offer
                opment. (Map 6.2. and Table 6.1.)                         locations for a mix of water-related and pub-
                                                                          licly oriented uses such as the reconstruction
                                                                          of the Whitehall ferry terminal with retail and
                MANHATTAN                                                 restaurants, and a ten-year interim plan for the
                Consistent with the Manhattan Waterfront                  East Side Docks. The Plan for Lower Manhat-
                Plan recommended by the Manhattan Borough                 tan will make more specific recommendations
                President, one of the primary goals of this               for the long term use of this and other water-
                comprehensive plan for Manhattan is to                    front sites.
                achieve continuous public access at or near the


                130






















                           -'A' A'A.LAML






                                                                                                            7
                                      gwl;
                                                                                                                     A









                       Sherman Creek area, Manhattan



                   The Upper Manhattan waterfront is character-            The Upper East River from Astoria to the
                   ized primarily by parks. At West 125th Street,          Flushing River is characterized primarily by
                   the Urban Development Corporation is con-               industrial uses and LaGuardia Airport, The
                   ducting feasibility studies for the proposed            underutilized M3-zoned area between the
                   Harlem on the Hudson mixed-use project,                 Flushing River and downtown Flushing pre-
                   with the waterfront edge designated for open            sents opportunities to extend the downtown to
                   space and recreation. On the Harlem River,              the waterfront and provide open space.
                   the portion of the industrially zoned area
                   north of Sherman Creek and south of 207th               The north shore of Queens extends from
                   Street is recommended for residential or com-           Flushing Bay to the city border. This area is
                   mercial reuse in conjunction with expanded              characterized by lower-density residential
                   recreation activities at Sherman Creek. (Map            development, parkland, important natural
                   6.3 and Table 6.2)                                      areas, and some industrial uses, primarily in
                                                                           College Point. Selected sites along this water-
                   QUEENS                                                  front meet the criteria for reuse and could be
                                                                           redeveloped.
                   Approved projects on the East River waterfront
                   in western Queens include the mixed-use                 In addition to the approved residential Arverne
                   Hunters Point project and the nearby East               project in the Rockaways, redevelopment and
                   River Tennis Club project. The waterfront plan          revitalization is recommended in the Edgemere
                   proposes residential reuse and parkland for             section through the construction of affordable
                   sites north of these projects, and waterfront           housing (primarily on city-owned land), sup-
                   access which includes an esplanade along                port services, infrastructure improvements and
                   portions of the waterfront north to Pot Cove.           parks. (Map 6.4 and Table 6.3)


                                                                                                                        131

























































































                                                                                                                                                                                                                                                                                                                                                                      q,










                                                                                                                                                                               . ....... ..


                                                                                                                                                                                 . . . . . . . .. . . .
                                                                                                                                                          [IF

                                                       Arverne project site, Queens


                                                        132










                    STATEN ISLAND
                    The Staten Island waterfront consists of signifi-        Redevelopment is recommended for several
                    cant maritime and industrial areas along the             areas on Staten Island's North Shore. integrat-
                    Kill Van Kull, and environmentally sensitive             ed development of transportation, residential,
                    and manufacturing zones along the west shore.            commercial and public spaces is recommended
                    The south shore is characterized by beaches,             for the St. George Ferry Terminal and the
                    parkland and low-density residential develop-            adjacent Chessie Rail Yard Site. Some industri-
                    ment. Although most of the West Shore is                 ally zoned sites north and south of the termi-
                    recommended for continued manufacturing                  nal also are appropriate for reuse. (Map 6.5.
                    zoning or is designated wetlands, the water-             and Table 6.4.)
                    front in the vicinity of the Outerbridge Cross-
                    ing south of the approved Harbor View project
                    should be studied to determine if it is suitable
                    for lower-density residential and water-related
                    uses. New development along the South Shore
                    would require investment in infrastructure or
                    alternative storm water management systems.



















                                                              A
                       +16











                                                                                                                -MEN=
                    St. George Ferry Terminal and Chessie Rail Yard site, Staten Island


                                                                                                                           133








           TABLE 6.0



                                                                      BRONX


                                                Existing Redevelopment Projects



           PROJECT             ACRES            ZONING                USE         OWNERSHIP              PROJECT DESCRIPTION

           Fordham                 3.7            R7-2              Vacant            Private            Approximately 600 housing units
           Landing                                                                                       planned with retail uses, open
                                                                                                         space, and waterfront esplanade.


           Shorehaven/             66             R3-2              Partially         Private            172 units (of planned 1183)
           Castle Hill                                                built                              completed at Shorehaven; 511
           Estates                                                                                       units planned for Castle Hill; public
                                                                                                         access included in both projects.



                                         Proposed Redevelopment Opportunities


           SITE                ACRES            ZONING                USE         OWNERSHIP              PROPOSAL

           225th Street            2              Mill          Auto-repair           Private            Rezone to permit medium-
                                                                                                         density residential.

           University Heights      10             Mi-i              Vacant,         Public and           Rezone to permit medium-
           Bridge Area                            M3-1           industrial,          private            density residential.
                                                                commercial

           Highbridge              17             Mi-I              Railroad          Private            Rezone part of site to permit
                                                                     yard                                medium-density residential.

           Spuyten Duyvil          6               R6               Vacant            Public             Develop for residential use;
           Village                                                                                       incorporate public open space,
                                                                                                         trails and waterfront access.

           Sites south of          5              Mi-i        Open storage/           Private            Rezone to permit lower-density
           Zerega Industrial                                        Vacant                               residential.
           Park

           Throgs Neck            N/A           R2, R3,             Vacant            Private            Demap Shore Drive and
           Area                                 R4,C3               areas                                remap bulkhead line to permit
                                                                                                         lower-density development.








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                                                                                                                                                                                                                                      of Zerega
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                                                                                                                            Highbridge                                                                      Castle Hill                                                                 Neck 13
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                                                    The Plan for the Redeveloping Waterfront                                                                                                                                                                                                          The Bronx



                                                    *                       approved redevelopment project

                                                    *                       proposed redevelopment opportunity





                                                                       Comprehensive Waterfront Plan / NYC Department of City Planning / Redeveloping Waterfront







            TABLE 61
                                                                           BROOKLYN
                                                        Existing Redevelopment Projects

            PROJECT                    ACRES            ZONING                  USE            OWNERSHIP                 PROJECT DESCRIPTION

            Rose Cove                      24              C3                   Partially           Private              60 units in two 4-story buildings and
                                                                                built                                    87-slip marina completed. Plans for
                                                                                                                         70 additional units and a clubhouse.

            Lundy's,                       0.9          R5, C2-21               Vacant              Private              Plans for restaurant and/or
            Sheepshead Bay                                                      building                                 commercial uses in 3-story building.

            Steeplechase,                  23              C7                   Vacant            Public and             Plan for development of Steeplechase
            Coney Island                                                                            private              Amusement Park.


                                                Proposed Redevelopment Opportunities

            SITE                       ACRES            ZONING                  USE            OWNERSHIP                 PROPOSAL

            Greenpoint Lumber              31              M3-11                Lumber              Private              Rezone for residential reuse if the
            Exchange                                                            storage                                  Lumber Exchange ceases operation.

            Greenpoint Terminal            14              M3-1                 Mostly              Private              Rezone for medium-density residential
            Market Site                                                         vacant                                   and light manufacturing.

            Eastern District               20              M3-11                Mostly              Private              Rezone for medium-density residential
            Terminal Site                                                       vacant                                   and light manufacturing.

            Red Hook                       N/A             M1-1'                Vacant              Public               Rezone for residential and commercial
            between Van Brunt                              M2-1,                and                   and                uses; if feasible, reuse Van Brunt ware-
            and Walcott Sts.                               R5                   industrial                               houses and associated properties.

            Fulton Landing                 15              M2-1          State Park and             Public               Support proposal for cultural,
                                                                        vacant buildings                                 recreational and commercial uses.

            Brooklyn Piers 1-5             15        M2-1/Special          Warehouses             Public and             Develop for mixed uses: open space,
            (Brooklyn Harbor)                     Scenic View Dist.                                 private              housing, retail and marinas.

            White Sands                    10           R4 and                  Vacant              Private              Zone unzoned land to R4; map C2 over-
                                                        unzoned                                                          lay for public marina; provide public
                                                                                                                         access link to Dreier Offerman Park.

            Emmons Ave. between            2.5          R5, C2-21          Vacant and               Private              Redevelop for mixed-use including
            Dooley and E. 21 Sts.                                               parking                                  restaurants, retail and parking.

            Area bet. W. 32 and            N/A             R5                   Mostly            Public and             Develop strategy for housing
            W. 37 Sts.                                                          vacant              private              redevelopment.

            Brighton by                    15              C3              Beach Club               Private              Rezone for medium-density residential,
            the Sea                                                                                                      open space and public access.

            Flatbush Avenue                12              C3                   Vacant              Public               Develop for lower-density residential;
            (Four Sparrows Marsh)                                                                                        transfer adjacept 65-acre Four
                                                                                                                         Sparrows Marsh property to DPR.

            Mill Basin                     48         M3-2, M2-1                Mostly              Private              Rezone to R5, C3, C2-1, and M1 -2;
                                                           Mi -1                vacant                                   map waterfront access.

            Paerclegat Basin               60           R5,C3                   Mostly              Private              Develop site plan to permit low-density
                                                                                vacant                                   housing along street fronts, preservation
                                                                                                                         of natural and buffer areas along basin,
                                                                                                                         and continuous public access linked to
                                                                                                                         existing parks; transfer wetlands to DPR.









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                                                                                                                                         ............... Greenpoint
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                                                                                                         ...........                     Brooklyn Eastern
                                                          .. .........                               I...........
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                                                                                                     U
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                                                                                                     Red Hook

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                                                                                                                                                                                                                                          ....... . . . . .


                                 The Plan for the Redeveloping Waterfront                                                                                                    Brooklyn



                                 0        approved redevelopment project

                                          proposed redevelopment opportunity
                                                                                                     Ma
                                                                                                     ha
















































                                 Comprehensive Waterfront Plan / NYC Department of City Planning / Redeveloping Waterfront








             TABLE 6.2
                                                                                 MANHATTAN
                                                            Existing Redevelopment Projects

             PROJECT                       ACRES            ZONING                    USE              OWNERSHIP                   PROJECT DESCRIPTION

             Pier A                            1.14           C6-4               Fire Department            Public                 Renovation for restaurant, visitors'
                                                                                 Marine Station                                    center and public access.

             Battery Park                      40             BPC                   Partially               Public                 Housing, office space, hotel, local
             City North                                                                built                                       retail uses, open space and high school.
                                                     Proposed Redevelopment Opportunities

             SITE                          ACRES            ZONING                    USE              OWNERSHIP                   PROPOSAL

             Former                            4.5            M2-2                  Vacant               Public and                Reuse as TV or film studios as proposed
             Washburn Wire                                    137-2                                         private                by EDC; explore reuse of pier for public
             Plant                                                                                                                 access.

             E. 60th Street                    2              M3-2               Heliport, DOS              Public                 Adapt former Marine Transfer Station
                                                                                                                                   for open-air pavilion, a restaurant,
                                                                                                                                   and/or other public uses.

             East Side                         N/A          C5-3CR,                 Vacant                  Public                 Include public-oriented uses, ferry
             Docks                                            C4-6                                                                 services and a continuous esplanade,
                                                                                                                                   in accord with ten-year interim plan
                                                                                                                                   for piers 9, 11, 13, 14.

             Marginal Street                   1.031          C2-8                  Vacant                  Public                 Develop barge restaurant.

             Ferry Terminal                    N/A            M1 -4              Transportation             Public                 Reconstruct with retail, restaurants.
                                                                                                                                   Improve pedestrian access.

             Pier 40                           16             M2-3               Parking and                Public                 As proposed by West Side Waterfront
                                                                                 warehouses                                        Panel, develop public open space and
                                                                                                                                   new housing and / or commercial uses,
                                                                                                                                   with a maximum FAR of 3.0

             Chelsea Piers                     N/A            M2-3                  Television              Public                 As proposed by West Side Waterfront
                                                                                    studios,                                       Panel, adapt or redevelop piers for public
                                                                                    parking,                                       open space and housing with ground floor
                                                                                                                                   retail, or office space with design controls
                                                                                                                                   and a maximum FAR of 1.5


             Pier 76                           N/A            M2-3                  Parking                 Public                 Proposed Hudson River Center Project
                                                                                                                                   would include hotel / meeting facilities.


             Piers at 42nd                     N/A            M2-3               Community                  Public                 As proposed by West Side Waterfront
             Street                                                                 facilities,                                    Panel, redevelop to allow more cruise
                                                                                 recreational                                      and charter boats, and permit restaurants,
                                                                                 and cultural                                      entertainment and visitors' facilities.

             Passenger Ship                    N/A            M2-3                  Shipping                Public                 Explore potential for redevelopment in
             Terminal                                                                                                              conjunction with enhanced passenger
                                                                                                                                   ship terminal operations.

             Riverside South                   76           R8, R1 0,            Mix of vacant              Private                Develop with residential, commercial,
                                                            C3, C4-7             land, buildings                                   parkland, with densities and design
                                                                                 and parking                                       requirements determined during
                                                                                                                                   planning process.

             Harlem on the                     is             Mi -1,             Vacant land             Public and                Develop the waterfront for open space
             Hudson                                           M2-3,              and industrial             Private                and recreation. UDC is examining mixed-
                                                                                      uses                                         use alternatives for the upland.

             Sherman Creek                     N/A            Mi -1              Vacant and              Public and                Rezone area south of 207th St. for resi-
             Area                                             M3-1                  industrial              private                dential, commercial and recreation.

             '0.57 acres upland and 0.46 acres underwater.







                               MAP 6.3

                                                                                                                                                                         . ............ ....
                                                                                                                                                                         ............... ....
                                                                                                                                                                         ...... ............ ....
                                                                                                                                                                         ... -, ............ ....
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                                                                                                                                                                         ............   ....

                                                                                                                                                                         ..................  .....

                                                                                                                                                                         ................
                                                                                                                                                                         ................
                                                                                                                                                                                        Sherman
                                                                                                                                                                                         Creek
                                                                                                                                                                         .................
                                                                                                                                                                         ...... ...
                                                                                                                                                                                          Area
                                                                                                                                                                         ...........
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                                                                                                                                                                         ...... ....
                                                                                                                                                                                                               The
                                                                                                                                                                         . ........
                                                                                                                                                                         .... ..........
                                                                                                                                                                                                               Bronx


                                                                                                                                                                         ...........

                                                                                                             Harlem
                                                                                                             on the
                                                                                                                                                                         ...........
                                                                                                                                                                         ...... ...                            ...
                                                                                                             Hudson


                                                                                                                                                                         ri
                                                         Now
                                                                                                                          ..............                                                                         ......
                                                       Jersey
                                                                                                                       .. ........
                                                                                                                        . . .....                                        ...                                          ........-      ......



                                                                                                                                                                                                   ............
                                                                                                                                                                           X.

                                                                                                                                                                                                                             ..................
                                                                                                                                                                                                                             ..... . ....
                                                                                                                                                                                                           .................... ....
                                                                                                                                                                                                                        .. . ...............
                                                                                                                                                                                                                                  ............

                                                                                                                                                                                   .............. .......
                                                                                                          ..............                                                          . ........                   . . ...       .........  ......
                                                                                                      ......      .....                                                                                        . . ...       .. ..... .........
                                                                               Rive                 rside                                                                E 3
                                                                                                                                                                                           X
                                                                                                    South
                                                                                                                                                                                                               ..........

                                                                                                                                                                         -X
                                                                                                                                                                         .....             .... . .
                                                   Passenger Ship Terminal
                                                                                                    ........ ..N
                                                                                                                                                                           Washburn
                                                                                                                                                                         ..................
                                                                                                                                                                                                        ...                  ..............
                                                                                                                                                                         . .....                   .........
                                                       Piers at 42nd Sit.                                                                                                      Wire
                                                                                                                                                                                                                             ..............

                                                                                                                                                                         .... .....                  .....
                                                                                                                                                                         ..... .......

                                                                  Pier 76
                                                                                                                                                                         E 3
                                                                                                                                                                                                                                 . . . . . . . . . . .
                                                                                                                                                                                                                             . . . . . . . . . . . . . . . . .
                                                                                                                                                                                                                             . . . . . . . . . . . . . . . . .
                                                                  Chelsea
                                                                                                    ... ........
                                                                                                    ........                                                                                                                    .....
                                                                                                    ........ .....



                                                                                                                                                                         ...........
                                                                                                    ....                                                                 ........
                                                                     P
                                                                              '7                                                                                         X
                                                                       iers                         13

                                                                                                                                                                         E. 60th St.
                                                                                                    .............                                                        1b
                                                                                                    ..........
                                                               Pier 40
                                                                                                    ............                                                         .......
                                                                              ..... .. . ....                                                                            ....... .....

                                                                                                    ................
                                                                               ...................
                                                                                                    ...............

                                                                         . ...........                                                                                   ........
                                                   Battery Park
                                                                                                    rl
                                                    City North         -.r--..'@..".".*,.*..*.::::::::::;::::::::::::::::::::::::::@ &A
                                                                                                                                                                         ............ .....
                                                                                                    .........                                                                                      Queens
                                                                                                    .......                                                              .... ........ .....
                                                                                                    .........                                                            ............ .......
                                                                                                                                                                         .......... .......
                                                                                                    .........                                                            ...........
                                                                                                    ........                                                             ... 11.1 ...... ........
                                                                                                    ........                                                             .............. ........
                                                                                                    ...I....                                                             ............I......
                                                                                                    ........                                                             .............. ....
                                                                                                    ...                                                                  ............. .....
                                                                                                                                                                         ........... ...
                                                                                                                                                                         ..........
                                                                                                    ....                                                                 ..............
                                                                                                                                                                         ....... ......
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                                                        Pier A
                                                                                                                                                                         ............
                                                                                                                                                                         ............ ....
                                                                                                                                                                         .......... ...
                                                                                                                                                                         ........... ....

                                                                            ...............                                                                              .......
                                                                         . ............                                                                                  ......
                                                                                                                          ............
                                                                                                                          ............
                                              Ferry
                                            Terminal                                                13
                                                                          ............
                                               Site     .......
                                                                  ........ ....
                                                             ............                                                 .......
                                                                           ..........               .......
                                                                                                    ........ ....
                                                                                                                                                                         Brooklyn
                                                          ............    r                         ... .. East       Marginal
                                                                            &xxx:
                                                                                                          River          Street
                                                 :V                                                 ......
                                                   M LE                                                   Docks           Site
                                                                             . . ................


                           The Plan for the Redeveloping Waterfront                                                                                                      Manhattan




                            0              approved redevelopment project

                            a              proposed redevelopment opportunity





                             RECLAIMING THE CITY'S EDGE / NYC Department of City Planning / Redeveloping Waterfront








            TABLE 6.3

                                                                               QUEENS


                                                         Existing Redevelopment Projects

            PROJECT                    ACRES             ZONING                USE              OWNERSHIP                PROJECT DESCRIPTION

            Arverne                        300           R6, C1                Vacant                Public              7500 housing units with retail, public
                                                                                                                         open space, and community facilities.

            Hunters Point                  74              N/A             Vacant and             Public and             Planned development at densities
                                                                              industrial             private             equivalent to R9 and C6 includes 6,400
                                                                                                                         housing units, office space, retail space,
                                                                                                                         and 18-acre park with waterfront
                                                                                                                         esplanade.

            RAK East River                 6             R9, R7A,          Tennis club               Private             Approximately 960 housing units with local
            Tennis Club                                  C2-5                                                            retail space and waterfront esplanade.



                                                Proposed Redevelopment Opportunities

            SITE                       ACRES             ZONING               USE              OWNERSHIP                 PROPOSAL

            Cresthaven                     16            R3-2, R2              Vacant                Private             Retain R3-2 and R2 west of Powell's
                                                                                                                         Cove Boulevard to allow low-density
                                                                                                                         housing; rezone waterfront area to C3
                                                                                                                         to permit marina and esplanade.

            Skyline                        2.5           M1 -1                 Vacant                Private             Rezone to C3 for commercial and
                                                                                                                         public uses.

            Downtown                       44            M3-1                 Vacant,                Private             Guided by DCP'S Downtown Flushing
            Flushing                                                         industrial,                                 Comprehensive Plan, redevelop for
            Waterfront                                                         retail                                    residential and commercial uses and
                                                                                                                         public open space in the long-term;
                                                                                                                         rezone to M1 -1 as an interim measure.

            Pot Cove                       20            M1 -1           Manufacturing               Private             As a long-term goal, rezone for medium-
            waterfront                                                     and vacant                                    density residential and create an
                                                                                                                         esplanade to link existing parks and
                                                                                                                         access points.

            33rd Road and                  15             R5                  Industrial             Private             Retain R5. Future development would
            35th Avenue                                                                                                  be required to incorporate a waterfront
            Sites                                                                                                        esplanade.
            Northern                       28            M1 -3,               Vacant,             Public and             Rezone for medium-density residential with
            Hunters Point                                M3-1                 industrial,            private             waterfront access and open space in
            Waterfront                                                      commercial                                   accordance with DCP's Long Island
                                                                                                                         City Framework for Development.

            Edgemere URA                   1451          R4, R5,            Residential           Public and             Guided by DCP's Edgemere Neighborhood
                                                         R6, C1 -2,        and vacant                private             Land Disposition Plan, develop with
                                                      C2-4, C8-1                                                         affordable housing, public open space,
                                                                                                                         and supporting services.




            159 acres vacant









                                                 .............                                                                 ..............
                                                 ..............    ...                                                         ............... ..........
                                                 ..............
                                                                                                                                             ......       ............... .........
                                                                                                                                                                             -XX
                                                                                         The Bronx
                                                                                                                                  ...................
                                                                                                                                                          .............     .. .....
                            MAP 6 4.
                                                                                                                   ...                       ........                       ...........
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                                                                                 ............

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                                                                     .. ............ .........                                                            ......
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                                                                                                                        Cresthaven
                                                                                                                                                 .............
                                                                                        ..........
                                                                                                                                                                   IX
                           .................                                                                       Skyline
                                                                        Pot Cove
                           .. . . .........      r
                                                               13     33rd. Rd.      35th Ave.


                                                                 Northern Hunters Point
                                                                                                                   :13
                           ..........
                           ..........
                                                          .13
                                                               RAK East River Tennis C
                                                                                                 lub               Downtown
                                                        . ....                                                     Flushing
                                                                        Point
                                                 ...........
                                                 .........   ......
                                                 ........       ....
                                                 ........        .....
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                                                                                                                                                                                          Nassau


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                                                                                                                   ..... .....
                                                 Brooklyn                                                          X.


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                                                                                                                                             Abh* V,'* Ocea****
                                                                                                .............. .
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                                                       ........... ......... ........   ...                        .. ....... :::                                  :::: ...                   .
                                                                                                                   - - - - - - -  "'. ". - - ". - - - ". - , ..". """. - "' "., * * * * * :. ........     ........
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                                                                                                                                                          ......   .... ...............         ..............


                           The Plan for the Redeveloping Waterfront                                                                          Queens



                           0           existing redevelopment project

                           a           proposed redevelopment opportunity





                           Comprehensive Waterfront Plan / NYC Department of City Planning / Redeveloping Waterfront







             TABLE 6.4



                                                                   STATEN ISLAND

                                                        Existing Redevelopment Projects

             PROJECT                   ACRES          ZONING                 USE             OWNERSHIP               PROJECT DESCRIPTION

             Prince's Point                35         R3-2, C31              Vacant              Private             396 housing units, a public esplanade,
                                                                                                                     and a private sewage treatment plant.

             Harbor View                   13.5         M1_11                Vacant              Private             Banquet hall, restaurant, 50-room
                                                                                                                     hotel, and a public esplanade.

             Captain's                     35           R3-21            Residential,            Private             272 housing units with common areas,
             Quarters                                                        vacant                                  recreational facilities, and a private
                                                                                                                     sewage treatment plant. The first
                                                                                                                     phase is completed.



                                               Proposed Redevelopment Opportunities

             SITE                      ACRES          ZONING                USE              OWNERSHIP               PROPOSAL

             Chessie Site                  29           Mi -1               Parking              Private             Rezone for medium-density residential
                                                                                                                     and commercial development with
                                                                                                                     public access and recreation.

             St. George                    N/A          Mi -1          Transportation            Public              Develop a plan for a new civic,
             Ferry Terminal                                                                                          transportation, and visitor center.

             Wrigley Site                  3            M3-1                 Vacant              Private             Rezone to R4 for residential
                                                                                                                     development with public access and
                                                                                                                     accessory marina.

             Alice Austen                  9          M3-1, R6          Marine repair            Private             Redevelop for residential use with
             Place                                                        boat yard                                  medical office space, public access
                                                                                                                     and marina.


             North                         N/A          M1-1,            Vacant and              Private             Study waterfront area in the vicinity
             Tottenville                                M3-111             industrial                                of the Outerbridge Crossing south
                                                                             uses                                    of the planned Harbor View project
                                                                                                                     for low-density residential and
                                                                                                                     waterfront commercial uses.




             'Special South Richmond Development District









                                                                                                                                                                                            X

                                                                                                                                                                                      ............. ...
                                                                                                                                                                                        ..........
                                                                                                                                                                                    . ................
                                                                                                                                                                                   . ..........
                                                                                                                                                                                    ...............
                                                                                                                                                                          ........ ....         ..
                                                                                                                                                                     ... .................. .......
                                                                                                                          ...                                                          .... ....
                                                                                                                                                                                  .................                                    ........
                                  MAP 6.5                                                                                                                                                                                              .......
                                                                                                                                 .............
                                                                                                                                                                              ... ... ...........

                                                                                                                                                        N.J.
                                                                                                                                                                                                                           ::X.X.X.::
                                                                                                                                                                                                                             ....... .. XX
                                                                                                                                 ............                                                                                          ::::
                                                                                                                                                                                ii@::ixx: ............
                                                                                                                     ................ *** ...........
                                                                                                                      ................... ... ...                                                                                      .......
                                                                                                                         .................                                    ......
                                                                                                                                                                                                                                       X
                                                                                                               ...........................................
                                                                                                            ................................. . ...
                                                                                                            ..............
                                                                                                            .................................................
                                                                                                            ............... . ...............
                                                                                                            . ................................................             Chessie                  13
                                                                                                                .. ............     ...........W   .....    . ...........
                                                                                                    . . ............                ............
                                                                                                    ...                 ............ ...........
                                                                                                                        ............. ............                        Rail Yard                        X.,
                                                                                                                                                                                          St. George:...'
                                                                                                                                                                              Site            Ferry
                                                                                                                                                                                                           X,
                                                      Now                                                                                                                                   Terminal
                                                     Jersey


                                                                                                                                                                                                  Wrigley
                                                                                                                                                                                                                     .............
                                                                                                                                                                                                     Site
                                                                                                                                                                                                               13    X.
                                                                                                                                                                                                                      ...............
                                                                                                                                                                                                           Alice
                                                                                                                                                                                                           Austen
                                                                                                                                                                                                                          ........... .....
                                                                                                                                                                                                           p
                                                                             :X
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                                                                                                                .......                                                                                                                    ...



                                                                                    ..........

                                                                                     ...................                                                                                                   ... ....
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                                                                                            ..........
                                                                                     .......    . ............                                                                                     .....   ........
                                                                                   ..........                                                                                                   . ....... .........                        ...









                                                                                                                                                                                                           .....                       ........
                                                                                                                                                                                                           .....                       ......

                                                 ............
                                                                                                                                                                                                                                           X,

                                                                                                                                                                                                                                           -X
                                                                                                                                                                        ........                           .....





                                                                  Harbor
                                                                    View
                                                                                                                                                            X
                                                                                                Prince's
                                                                                                                  . ..........
                                                                                                                   . . . . . . . . . . . .. .
                                                                                                    Po
                                                                             Captain's

                                                          e
                                                             bridge
                                                                              Quarters                                                                                                                                                 .........

                                                          Area                                                                   -X.

                                                                                                                                 :X:                                                                       X.



                                                                                                                                                            ..... ... . . . .....



                                                                                            . . . . . . . . . . . . . . . . . . . . . . . . .
                                                                                      ......... ..
                                                                                         . . .. .....


                             The Plan for the Redeveloping Waterfront                                                                                          Staten Island



                            0               existing redevelopment project

                             a              proposed redevelopment opportunity





                               Comprehensive Waterfront Plan / NYC Department of City Planning / Redeveloping Waterfront

























                                                                 IN@















                                                                     AM,
                                                      'num m4f:









                                                                      WO







                           WATERFRONT ZONING PROPOSAL


                  When the 1961 amendments to the Zoning                   contain additional regulations specific to the
                  Resolution went into effect, shipping and other          districts. Regulations may be as-of-right or
                  industrial uses occupied vast stretches of the           discretionary.
                  New York City waterfront. Much of the rest               The 1961 Zoning Resolution could not address
                  was designated as parkland or was developed              the issues such as public access to the water-
                  with low-density housing.                                front, visual corridors to the water, floating
                  Consequently, the drafters of the amendments             structures, design controls for waterfront
                  designated a full one-third of the waterfront            construction, the desirability of fostering
                  for manufacturing uses. They experimented                water-related uses, and the desirability of
                  with new zoning techniques in many residen-              mixing water-related uses with other kinds of
                  tial and commercial areas, but they saw little           development. After studying zoning and its
                  need for change on a waterfront whose uses               relation to the waterfront, DCP concluded that
                  appeared fixed. The vast shifts in waterfront            nothing short of a series of innovative changes
                  use and the public interest in waterfront could          in the zoning text could provide the tools to
                  not be predicted. Today, the waterfront has              plan for new waterfront development.
                  outgrown the Zoning Resolution, which has
                  become an obstacle to the evolution of water-            PROPOSED WATERFRONT
                  front uses and public policy.                            ZONING REGULATIONS
                  As port-related activities declined, some water-         The Comprehensive Waterfront Plan proposes
                  front districts became vacant and derelict.              zoning text changes to regulate waterfront
                  Public and private developers sought, and                development. The proposed text would permit
                  often obtained, rezoning and other approvals             a range of development options that would
                  for residential or commercial development on             protect and enhance the unique qualities of
                  specific sites. The Resolution did not provide           the waterfront. It would promote maritime
                  standards against which these applications               uses by expanding the locations in which they
                  could be   udged or mechanisms for achieving             are permitted and exempting them from
                                                                           stringent regulations. The proposed zoning
                  evolving public purposes. Special permits, re-           amendments would apply primarily to higher-
                  strictive declarations, the creation of special          density residential, commercial and mixed-use
                  zoning districts, and the creation of public             developments on waterfrontage blocks.
                  authorities such as the Battery Park City Au-
                  thority were used in the absence of adequate             Many specific recommendations described in
                  zoning tools.                                            Chapters 3 through 6 can be implemented
                                                                           through generic changes which would be trig-
                  The main elements of the New York City                   gered primarily when development occurs.
                  Zoning Resolution are use groups that describe           These changes would:
                  the activities permitted in a given zoning dis-              provide opportunities for increased pub-
                  trict; regulations controlling the bulk (height              lic access to the waterfront, including im-
                  and setback, open space, yards) and parking                  proved linkages to the water's edge from
                  regulations applicable to each zoning district;              upland communities, links between exist-
                  and maps showing zoning district locations.                  ing public spaces on the waterfront and
                  In addition to generic zoning districts, the                 design guidelines for the public spaces at
                  ordinance describes 34 special districts which               the water's edge;
                  are overlaid on the generic districts and


                                                                                                                         145










                   ï¿½   preserve existing views and provide addi-              rules in one chapter would make the rules
                       tional visual access to the waterfront;                easier to understand and would simplify their
                                                                              administration. Revisions and elaborations are
                   ï¿½   expand recreation opportunities on the                 needed in basic definitions, definitions of new
                       waterfront for new residents and existing              uses, categorization of uses, public access
                       communities;                                           requirements, parking requirements, and
                   ï¿½   expand opportunities for siting ferries                adapting established bulk controls to the
                       and other waterborne transportation;                   unique characteristics of the waterfront.
                   ï¿½   allow a greater mix of uses in waterfront              WATERFRoNT AREA
                       developments and encourage uses that                   To establish waterfront zoning regulations, it
                       are public in nature and activate the                  is necessary to define the area within which
                       waterfront;                                            they would be applicable. The waterfront area
                   ï¿½   exempt water-dependent uses ftom new                   would include all the full zoning blocks which
                       regulations;                                           are intersected by a line measured 800 feet
                                                                              upland of the shoreline.
                   ï¿½   define floating structures and develop                     The seaward boundary would be the
                       regulations for their location and use;
                       and                                                        pierhead line or, where no pierhead line
                                                                                  exists, the mean high water line' (the
                   ï¿½   develop new bulk controls for develop-                     shoreline).
                       ments along the waterfront that would
                       be compatible with adjoining neighbor-                     The upland boundary would be the up-
                       hoods or create a new context for water-                   land perimeter of all blocks intersected
                       front communities; and continue to                         by a line 800 feet from the mean high
                       allow for buildings using cost-effective                   water line.
                       construction techniques.
                                                                              The upland boundary would be set using the
                   Because most of the city's waterfront is park-             800-foot distance because it is the length of
                   land, zoned for industrial use, or developed               most New York City blocks and would estab-
                   with low-density housing, many of the pro-                 lish a maximum distance for preserving visual
                   posed zoning text changes would become                     corridors to the waterfront. Zoning regulations
                   applicable only when areas were rezoned or                 are built around the concept of the block,
                   public land was disposed of for residential or             which is an area bounded by streets, public
                   commercial development.                                    parks, railroad tracks or the pierhead line. The
                   In proposing waterfront zoning reform, care                entire block would be included if any portion
                   has been taken to establish specific standards             of it fell within the 800-foot line to ensure that
                   for most development. Wherever possible, as-               regulations were applied consistently up to the
                   of-right standards are preferred because they              next intervening public way. (Figure 7.1)
                   make development more predictable, stream-                 Narrow tributaries would not be viewed as
                   line the regulatory process, and minimize the              having waterfronts for zoning purposes; only
                   costs of development and administration of                 waterways that are at least 100 feet in width at
                   the regulations. Discretionary reviews are                 mean hi h water would be included. Where
                   prescribed when warranted.                                          9
                                                                              inlets or streams narrow to less than 100 feet,
                   To implement the recommendations of the                    waterfront regulations would be inapplicable
                   Comprehensive Waterfront Plan, a new chap-                 from that point upstream even if the water-
                   ter on waterfront zoning would be added to                 body widened again.
                   the Zoning Resolution. Keeping the waterfront


                   146


Waterfront Boundary										FIGURE 7.1
													Waterfront Area

													Legend

														Area Within the 
														Waterfront Boundary







                                 The proposed bulk controls and generic public                                                              To regulate the use of underwater lots, the
                                 access requirements would apply only to the                                                                Resolution would be amended to define water-
                                 waterfrontage block, which is the block be-                                                                front zoning lots as having two portions,
                                 tween the water's edge and the first upland                                                                divided by the bulkhead line. (Figure 7.2)
                                 public street. Other regulations, such as													  
                                 waterfront access plans, would apply through-                                                                     Upland Lot ("A" in Figure 7.2): The
                                 out the waterfront area.                                                                                          portion of a waterfront zoning lot locat-
                                 ZONING LOTS                                                                                                       ed landward of the bulkhead line (or
                                 Waterfront Zoning Lots                                                                                            shoreline if there is no bulkhead line)
                                 Most of the city is divided into blocks of                                                                        would be defined as the upland lot. Any
                                 relatively uniform dimensions. 'Blocks are                                                                        land already extending beyond the bulk-
                                 subdivided into zoning lots. The Zoning Res-                                                                      head line would be included in the up-
                                 olution's height, setback and floor area regula-                                                                  land lot.
                                 tions work with these relatively standardized                                                                     Seaward Lot ("B" in Figure 7.2): The
                                 units of blocks and zoning lots.                                                                                  portion of a waterfront zoning lot locat-
                                 This system does not work well along the                                                                          ed seaward of the bulkhead line (or
                                 waterfront because zoning lots there often                                                                        shoreline if no bulkhead line exists)
                                 include a high proportion of land under                                                                           would be defined as the seaward lot.
                                 water, which generates floor area just as the													   
                                 land above water does. Because the underwa-                                                                The bulkhead line has historically been the
                                 ter floor area can be applied to construction                                                              seaward limit for landfill and the limit to
                                 on the upland portion of the site (subject to                                                              which waterfront property owners can develop                
                                 certain bulk limitations), new buildings on                                                                upland uses. Use of underwater property
                                 the waterfront might be disproportionately                                                                 beyond the bulkhead line has traditionally
                                 larger than those in similarly zoned upland
                                 neighborhoods.                                                                                            been limited to riparian uses.

                                                                                                                                                     147
 







                  Absence of Mapped Streets                                change the way development rights are gener-
                  Large zoning lots that are not    intersected by         ated by excluding underwater land beyond the
                  streets sometimes extend along the waterfront            bulkhead line from floor area calculations. The
                  for great distances, in some cases for thou-             bulkhead line would be the boundary between
                  sands of feet. Considerable floor area can be            the upland and seaward portions of the lot, as
                  aggregated on these large lots, which may                shown in Figure 7.2. In those few places where
                  result in the construction of excessively large          land exists beyond the bulkhead line, it would
                  buildings that are out of context with similarly         be included in the upland lot and would
                  zoned upland neighborhoods.                              continue to generate floor area. (Figure 7.3.)
                                                                           By reducing the area from which the FAR
                      The waterfront zoning proposal would                 could be calculated, the proposal would pro-
                      provide for public access and visual corri-          tect the waterfront from overly dense and out-
                      dors at intervals along the waterfront.              of-scale development on the upland lot.
                      Large properties would be broken up into                 Full development rights would be gener-
                      portions, each of which would be subject                 ated by the upland portion of the zoning
                      to height and setback controls along all                 lot (A). No transfer of bulk would be
                      frontages. Aggregation of floor area would               permitted to the seaward lot.
                      be limited, and the scale of potential de-
                      velopment would be controlled.                           On the seaward lot (B), development
                                                                               rights would be generated only by piers
                  Subdivision of Zoning Lots                                   and platforms. Transfer of development
                                                                               rights would be permitted only from
                  The proposed requirements for public access                  existing overwater structures to the up-
                  would not apply on small sites. Under current                land lot. The transferred development
                  zoning, zoning lots could be subdivided into                 rights could not increase the permitted
                  lots small enough to effectively evade the                   FAR of the upland lot by more than 20
                  proposed public access requirements. The                     percent.
                  waterfront zoning proposal would protect
                  against this possibility with the following              DEFINITION OF WATER-DEPENDENT
                  provision:
                                                                           AND WATERFRONT-ENHANCING USES
                      To subdivide zoning lots within the
                      waterfront area, the chairman of the City            One of the goals of the Comprehensive Water-
                      Planning Commission would have to                    front Plan is to promote the use of the water-
                      certify that the lots resulting from the             front for activities that need to be at the
                      subdivision would meet the public access             water's edge or that enliven it. The current
                      requirements of the undivided lots.                  Zoning Resolution however, restricts water-
                                                                           related uses to a narrow range of zoning
                                                                           districts. The proposed waterfront regulations
                  CALCULATING FLOOR AREA ON                                would permit and encourage water-related
                  WATERFRONTAGE LOTS                                       activities in more zoning districts. The propos-
                  Under current zoning regulations, the entire             al would divide all uses into three categories
                  area of a waterfront lot, including underwater           based on their relationship to the water, would
                  land and overwater structures (piers and                 make inclusive lists of water-dependent uses
                  platforms) up to the pierhead line, is used in           and waterfront- enhancing uses, and would
                  calculating the floor area. The proposal would           develop regulations for each separate category.


                  148







                                                                                                                                                                                                            FIGURE 7.2
                                                                                                                                                                                                            Waterfront Zoning Lot
                                                                                                                                                      F7                                                         Legend                Upland Lot (A)
                                                               EJ
                                                               0",                                                                                                                                   ... .....
                                                                                                    EI                                                                                                                                 Seaward Lot (B)
                                                                                  .......................
                                                                                  .......................
                                                                                                                                                                                                     X.
                                                                                  .......................
                                                                                                    ....................
                                                                                                                                                                                                     X.
                                                                                                                                   .......                                                           . . ...........                   Zoning Lot Boundary
                                                                                                                                   ...........
                                                               .............................................
                                                               ...........................                                                                                                           ..........
                                                                                                                                                                                                     ... ........ ..........
                                                                                  ..........................
                                                               ...............
                                                               ..................... .......



                                                                                                                                                                                                     .. ............ ...
                                                               ............................................                                                                                          ......
                                                               .................................                                                      . ...                                          .: .... F.,
                                                                                                                                                                                                     ..... .. ... ..
                                                               .............                        I..........................
                                                               .....................................

                                                                                                    .........................
                                                        :@Ywv. ... V:
                                                                                                                  ..........
                                                                                      . . .........................

                                                                                                                  . .. ...... ......
                                                                                                     .. . .............                                                                              .. .....
                                                                                                    A
                                                                                  ..............:...,
                                                                                  ......                                 .... ...
                                                                                  .............
                                   MEM
                                                                                                                  ...........
                                                                                                                  ..........
                                                                                                    ...           ............     .........
                                   ...............      ..........                ................... ... ...........

                                                                                                                  ............


                                                        ............
                                                                                                    ......                                            .........
                                                                                                                         .....................
                                   .................
                                                                                                                         .. . .........
                                                                                                                  44:11                               . . .. ....
                                                                                  . .....................




                                                                                  ...............................
                                                                                  ............
                                   .................

                                         ...............
                                                        ...........................
                                   ................ 11                            ... ..........    xx@...
                                   .. . ......
                                   .................................
                                                               .. ......          ...


                                                                                                                                                                                                            FIGURE 7.3
                                                                                                                                                                                                            Calculating Floor Area on a
                                                                                                                                                                                                            Waterfront Zoning Lot
                                                                                                                                                                                                     ...................
                                                                                                                                                                                                     ...................
                                                               00=1
                                                                                                                                                                                                     ...........
                                                                                                                                                                                                               Legend

                                                                                                                                                                                                                                    Full Flo
                                                                                                                                                                                                                                                  or Area Generated



                                                                                                                                                                                                     ............
                                                                                                                                                                                                                                    No Floor Area Generated
                                         . . . . . . .                                                            . . . . . . . . . . . . . . . . . .                                                _,- .440.*@:;%.
                                                                                                                                                                                                     .V*'i, -XI
                                         . . . . . . .         . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
                                                               ........ . . . . . . . . . . . . . . . . . . . . . . . ..... . . . . . . . .......
                                                                                  . . . . . . . . . . . . . . . . . . . . . . . .  . . . . . . . .
                                         . . . . . . .         . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
                                         . . . . . . .         . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
                                                               .............. . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . .                                                    X
                                                                                  . . . . . . . . . . . . . . . . . . . . . . . . . . . .
                                                                                                                                                                                                                                 I Zoning Lot Boundary
                                                                                                                                                                                                     -N
                                   . .......                   .......                                                             ...........
                                                                                                                                                                                                     ......... .
                                                                                                                                                                                                     .-N
                                         ......                                   .................................
                                         .......        I      ........... ..........................
                                         . . . . . . .         . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . .......                                                     4. 4t,
                                                               . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
                                                                                                                                                                                                     @N@
                                                               . . . . . . . . . . . . . . . . . . . .            . . . . . . . . . . . . . . . . . . . .
                                                                                                                                                                                                     X
                                                                                                    . . . . . . . . . . . . ... . . . . . . . . . . . .
                                         . . . . . . .         . . . . . . . . . . . . . . . . . . . . . .               . . . . . . . . . . . . . .

                                                        . . . ..... ..
                                                                                  . . . . . . . . . . . . . . . . . . . . .
                                                                                  .1. . . . .                     . . . . . . . . . . . . . . . . .
                                   Me    "Mi6ft:                  ...                 ...                                          ........
                                                        J..

                                                                                                                         ...............
                                                                                                                  .....................
                                                                                                    +
                                                                                                                                                                                                     4++., 1: @::A7.%
                                                                                                                                   . . . . . . . . . . . . .
                                                                                                                                   .. . . . . . . . . .
                                                                                                                                   ............


                                                                                                                                                                                                     .... ........
                                                                                                                                                      ......                                         - -- ---------- ... ..
                                                                                                                         ...........                  ....                                           ........
                                                               . ..........                         ... ...
                                                                                                                                                                                                     ............
                                                                                                                                                                                                     ........... .................
                                                                                                    . .......     . . ......                          .............. .                               ... .............
                                                                                                    I I....       :*:* .............. ..............................                                 ... 4;;;i ....
                                                                                  ..................              ......                                                                             .......
                                                                                                                         .............................                                               .................
                                                                                  ..........                                       -------
                                   . ................          ... .......                                                                                                                           . ........ .. . ... ...
                                                               .... .. ....                                                                           ...........                                    I..... ..
                                                                                  .........................                                           ...............
                                                                                  ...........
                                                                                  . ..............   .... ...                                         .......                                        ..........
                                            .........   t.....
                                            !-@         ..............                                                                                                                               ......
                                                                                                                                                                                                     .........................
                                   .... .............
                                             ..........
                                   . ...............
                                   .. ...............                                               ........
                                   . ..................                                                                  ... ....     . . ....
                                                               x                                    ....... ..    X.
                                         ...................   ...........        ....................
                                         ...............                                                                                              ........ .........
                                                                                                                                                                                                     ............
                                                                                                                                                      ..........
                                                                                                                                                                                                     ....... ... . .....
                                                                                                                                                                                                     . ..............
                                                                                                                                                                                                     ..................
                                         ................
                                         ...........           .....              ..................                               ......
                                                                                                                                                      .................                              .. ... ...
                                                                                                                                                      + * ` .. + +++.+.*.+..                         - -
                                                                                                                                     . . . .................                                         ...... .. ......
                                                                                                                                                                                                     .......................... ...
                                                                                                                  .................
                                   .............................                                                                                                                                     ....... ..... ...
                                         -................ ...... ...                               .............. .......:...........
                                   ................ ............                                    .. ..................... .......



                                   Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                                                Waterfront Zoning










                 ï¿½   Water-dependent uses would be those                                      Table 7.1
                     that require direct access or proximity to                   WATER DEPENDENT USES
                     marine or tidal waters in order to func-               Uses That Are Functionally Dependent
                     tion. Such uses include marinas, boat                                  on the Water
                     repair, shipping or seaplane bases, and
                     recreational facilities such as beaches or             1.  Waterfront shipping
                     fishing piers. A number of industrial and              2.  Boat or ship building and   repair (under
                     semi-industrial facilities in Use Groups                   200 feet)
                     16, 17 and 18 use the water for transport              3.  Boat or ship building and   repair (over
                     of materials and products and would be                     200 feet)
                     included in this category as would air-                4.  Boat or ship rentals, open  or enclosed
                     ports and heliports, which need to be
                     adjacent to the water for reasons of safe-             5.  Docks for small pleasure boats, commer-
                     ty. (Table TO                                              cial
                                                                            6.  Boat or ship fuel sales restricted, open or
                 ï¿½   Waterfront-enhancing uses would be                         enclosed
                     primarily recreational, cultural, retail or            7.  Boat or ship fuel sales -unrestricted,
                     entertainment uses whose location on the                   open or enclosed
                     waterfront would add to public use and                 8.  Marine Transfer Stations
                     enjoyment of the water's edge. Water-
                     front-enhancing uses include recreation                9.  Boatels
                     centers, museums, fairs and amusement                 10.  Commercial beaches
                     parks, swimming pools, skating rinks,                 11.  Boat or ship mooring (new)
                     restaurants and hotels. (Table 7.2)                   12.  Ferry stops (new)
                 ï¿½   Non-water-related uses would include         all      13.  Water taxi stops (new)
                     uses that do not require a waterfront                 14.  All other uses in Use Groups 17 & 18
                     location and whose location at the wat-                    that ship or receive materials by water
                     er's edge would not automatically add to              15.  The following Use Group 16 uses that
                     public use or enjoyment of the water-                      ship or receive materials by water
                     front. Examples of these uses are parking                  - Warehouses
                     fields, manufacturing or warehouse facili-
                     ties unrelated to port activity, residences                - Wholesale with no limitation
                     and offices.                                               - Public transit yards
                                                                                - Trucking terminals
                                                                           16.  Sewage Disposal Plants
                                                                           17.  Seaplane bases
                                                                           18.  Heliports
                                                                           19.  Airports










                 150











                                                                  Table 7.2
                                                 WATERFRONT-ENHANCING USES
                          Uses That Are Commercial in Nature and Draw People to the Waterfront


                  1.  Eating or drinking without restrictions              29.  Tourist cabins
                  2.  Eating or drinking establishments                    30.  Animal exhibits
                      - entertainment restriction                          31.  Clubs-non commercial except outdoor
                  3.  Eating or drinking establishments                         pools
                      without entertainment/dancing restric-               32.  Clubs with outdoor pools more than 500
                      tion but limited to hotels                                feet from lot line
                  4.  Bicycle rentals                                      33.  Clubs with outdoor pools less than 500
                  5.  Refreshment stands - drive-in                             feet from lot line
                  6.  Refreshment stands                                   34.  Community centers
                  7.  Dance halls                                          35.  All other uses in Use Groups 6A & C
                  8.  Museums                                              36.  Camps, overnight or outdoor day
                  9.  Art galleries                                        37.  Athletic goods stores
                 10.  Commercial galleries                                 38.  Fishing tackle or equipment rental
                 11.  Arenas, auditorium-stadiums                          39.  Boat showrooms or sales with no repair
                 12.  Arenas, auditorium or stadiums                       40.  Boat showrooms or sales of boats less
                      - limited                                                 than 100 feet in length
                      - unlimited                                          41.  Boat storage, repair, or painting includ-
                 13.  Theaters - limited and unlimited                          ing the incidental sale of boats, boat
                 14.  Skating rinks - indoor                                    parts or accessories with restrictions on
                                                                                boat size and setbacks
                 15.  Recreation centers                                   42.  Sail-making establishments
                 16.  Ice skating rinks - outdoor                          43.  Ice vending - coin operated
                 17.  Outdoor roller rinks                                 44.  Ice vending - (large scale)
                 18.  Swimming pools - commercial
                 19.  Stables for horses

                 20.  Tennis - outdoor and indoor
                 21.  Miniature golf
                 22.  Carnivals - temporary
                 23.  Fairs - temporary
                 24.  Children's amusement parks (small)
                 25.  Children's amusement park (large)
                 26.  Outdoor theaters - unlimited

                 27.  Hotels - transient

                 28.  Motels



                                                                                                                          151









                  WATERFRONT USE REGULATIONS                                     fied to encourage mixed residential and
                  As portions of the waterfront have been re-                    water-related uses, in part by making
                  zoned for residential or commercial redevelop-                 bonus provisions applicable in C3 dis-
                  ment, current zoning regulations have been an                  tricts. C3 districts are waterfront com-
                                                                                 mercial districts that permit commercial
                  obstacle to the inclusion of water-dependent                   marinas and also permit residential use
                  and waterfront-enhancing uses, especially in                   subject to the requirements of R3-2 dis-
                  the types of mixed-use developments contem-                    tricts. In R3-2 districts, a development is
                  plated by the Comprehensive Plan.                              eligible for floor area and density bon-
                  Zoning regulations include most waterfront                     uses in exchange for superior site plans
                  activities under the category of        waterfront             and amenities. These bonuses are not
                  shipping in Use Group 17 and          limit their              available, however, in C3 districts. To
                  location to manufacturing districts. Uses such                 obtain them, developers currently must
                  as docking, repair and storage for smaller                     seek rezoning to a residential district,
                  boats are categorized as recreational boating in               thereby eliminating desirable commercial
                  Use Group 14 and are limited to C2, C3, C7,                    uses that could enliven the waterfront.
                  C8 and M        districts. The proposal would                  The listing of docks for pleasure boats
                  extend water-related activities to a wider range               would be expanded to include moorings.
                  of zoning districts.                                           Pleasure boat docking would remain in
                  The Zoning Resolution has not been amended                     Use Group 14 and would continue to be
                  to keep up with changes in activity along the                  permitted in C2, C3, C7, C8 and M
                  waterfront. For example, when the Resolution                   districts.
                  was adopted, most docking facilities were full-
                  service commercial marinas. Many of the                        Marinas currently are permitted as acces-
                  newer and smaller facilities, which involve less               sory uses in residential developments if
                  repair, storage, or vessel service, could be                   they are used exclusively by the residents.
                  compatible with a range of residential and                     The regulations would be modified to
                  commercial uses where they are not now                         make accessory boat slips available to
                  permitted. In recent years, there has also                     non-residents as well. The proposal
                  been a trend toward smaller docking facili-                    would:
                  ties for ferries and other forms of water-
                  borne transportation.                                          -   allow up to 40 percent of accessory
                                                                                     slips to be rented to non-residents;
                  The waterfront zoning proposal includes                        -   require one parking space per non-
                  changes and additions to the Zoning Reso-
                  lution that reflect the prospects of the                           resident slip (except in Manhattan
                  waterfront.                                                        CDs I through 8 where parking is
                                                                                     not required) in a separate parking
                  ï¿½   Waterfront shipping, currently listed in                       area adjacent to the slips; and
                      Use Group 17, would be broken down                         -   allow accessory boat slips to be locat-
                      into several categories based on intensity
                      and type of use so it can be located in a                      ed off the zoning lot if both lots are
                      wider range of zoning districts.                               under the same ownership and are or
                                                                                     would be contiguous but for a street.
                  ï¿½   The regulations for large-scale residential
                      developments (LSRDs) would be modi-


                  152








                        Docking facilities for ocean-going passen-                    docking facilities with an aggregate
                        ger vessels, currently permitted only in                      capacity of not more than 2,500
                        M districts, would be allowed in central                      persons per zoning lot would be
                        business district (C6) zones by special                       allowed as-of-right in high-density
                        permit and would continue to be allowed                       commercial districts (C4-4A - C4-7;
                        in M districts as-of-right. Docks that can                    C5; C6; C7; C84).
                        accommodate ocean-going vessels cur-
                        rently are located in M districts only. If,               Docking facilities for ferries would be
                        however, some M districts were rezoned                    permitted in a wider range of zoning
                        to C6, oceangoing passenger vessels                       districts to promote this form of public
                        would become non-conforming uses;                         transit. Ferry docks would be permitted
                        new ones would not be permitted.                          as-of-right in all commercial and manu-
                        These ships could be compatible with                      facturing zones without size limitation.
                        other uses permitted in C6 districts,                     Special permits would be required in
                        which permit mid- to high- density                        residential districts.
                        development. A special permit would be
                        granted only after review of the trans-                   Parking requirements for docks, for
                        portation impacts.                                        sightseeing and excursion vessels and for
                        Docking facilities for sightseeing and                    ferries would be based largely on prox-
                        excursion vessels would be newly per-                     imity to mass transit and type and dens-
                        mitted in a variety of commercial dis-                    ity of use. Parking requirements would
                        tricts. The permissible capacity of the                   be relatively lenient in high-density dis-
                        docking facilities would be proportion-                   tricts, where mass transit is more likely
                        ate to comparable uses now permitted                      to be used than the automobile. Parking
                        in these districts. In low-density C2                     would be required in all zones except
                        districts, docks would be equated with                    Manhattan CDs I through 8. Whether
                        200-seat restaurants. In medium-density                   or not parking would be required, an
                        commercial districts, docks would be                      off-street area for dropping off and
                        equated with large restaurants. In high-                  picking up passengers would have to be
                        density zones, docks would be equated                     provided. Parking requirements for
                        with arenas and auditoriums holding up                    docking facilities would generally be
                        to 2,500 persons. Under the new regula-                   based on present requirements for plac-
                        tions,                                                    es of assembly, taking into account the
                        -   docking facilities with an aggregate                  fact that passengers from several vessels
                            capacity of not more than 200 per-                    might be using one parking facility at
                            sons per zoning lot would be al-                      the same time.
                            lowed as-of-right in local retail/                A special permit would be required to waive
                            service and waterfront districts (C2              or modify the parking requirement. In eval-
                            and C3);                                          uating a special permit application, the City
                        -   docking facilities with an aggregate              Planning Commission would look at the
                            capacity of not more than 500 per-                availability of mass transit, other transporta-
                            sons per zoning lot would be al-                  tion services such as vans, and available
                            lowed as-of-right in regional shop-               capacity in other parking facilities.
                            ping, heavy commercial and amuse-
                            ment districts (C4-1 - C44; C7; C8-
                            I - C8-3); and


                                                                                                                                 153









                                         Table 7.3                                      A floating structure would be defined as
                            PARKING FOR DOCKS FOR                                       any vessel, barge or water-supported
                        SIGHTSEEING AND EXCURSION                                       structure that is intended to remain
                               VESSELS AND FERRIES                                      moored or attached to a pier, wharf,
                                                                                        dock, bulkhead or floatation system for
                                       Parking Requirement as % of                      at least 120 consecutive days. Temporary
                    Zone           Maximum Dock Passenger Load*                         or seasonal floating structures docked or
                                                                                        moored for less than 120 consecutive
                    Highest parking         25% (approx. I per 4 pass.)                 days would not be defined as floating
                    requirement                                                         structures and would be treated as navi-
                    (C2-1, C3, C4-1)                                                    gational vessels.
                    High parking            19% (approx. 1 per 5 pass.)
                    requirement                                                         Floating structures for non-water-depen-
                    (0-2, C4-2, C8-1)                                                   dent uses would not be permitted to
                    Medium parking          13% (approx. I per 8 pass.)                 cover more than 50 percent of the land
                    requirement (C2-3,                                                  under water on any given zoning lot.
                    C4-3, C7, C8-2)                                                     Piers and platforms on the lot would be
                    Low parking            13% (approx. I per 12 pass.)                 included in the computation. Water-
                    requirement                                                         dependent uses on floating structures
                    (C24, C44, C8-3)                                                    would not be subject to coverage regu-
                                                                                        lations. The height of floating structures
                    Lowest parking                        None required                 would be limited by zoning district regu-
                    requirement                                                         lations. (Table 7.4) Floating structures
                    (C2-5 through C2-8;                                                 existing prior to the adoption of these
                    C44A through C4-7;                                                  regulations which exceed the coverage
                    C5; C6; C8-4)                                                       and height regulations would be consid-
                    Dock passenger load would be the total passenger                    ered non-complying and as such would
                    capacity of all the vessels served by the dock.                     be allowed to remain and relocate.
                    FIDATING (IN-WATER) STRUCTURES                                      Waterfront-enhancing uses would be
                    Floating structures raise unique planning                           allowed on floating structures by special
                    problems, not least the problem of definition.                      permit, except for restaurants and cultural
                    Zoning requires that most uses be located in                        facilities covering less than 5,000 square
                    buildings. Buildings are defined as structures                      feet of water, which would be allowed as-
                    that are permanently affixed to the ground.                         of-right. The special permit finding would
                    Floating structures do not meet the definition                      require that the design of the develop-
                    unless they are supported by cradle founda-                         ment significantly enhance public access
                    tions built in the water. Cradle foundations                        to and use of the waterfront.
                    increase shading, impede water flow and add                         Non -wate r- related uses would not be
                    to the cost of floating structures.                                 allowed on floating structures, except for
                    The proposal would define floating structures                       power plants and government facilities
                    and the uses permitted to locate on them.                           that would be allowed by special permit
                    Water-dependent uses would be permitted as-                         subject to a CPC finding that there was
                    of-right, as would some small waterfront-en-                        no reasonable way to site the use without
                    hancing restaurants and cultural facilities. All                    a floating structure.
                    other uses would be permitted only by special
                    permit.


                    154









                    All developments on floating structures           Signs: No advertising signs would be
                    would have to meet the following                  permitted. Business signs would be
                    standards:                                        permitted pursuant to applicable district
                                                                      regulations.
                    Public access: Where public access was
                    required, it could be provided either on          Visual access: Floating structures would
                    the floating structure or elsewhere on            not be permitted to block a required
                    the zoning lot.                                   visual corridor except by special permit.
                    Parking: The requirements for accessory           Height: Water-dependent uses in M-
                    off-street parking and loading berths             zones would be exempt from height
                    would be determined by applicable                 restrictions. Other uses permitted as-of-
                    zoning district regulations.                      right on a floating structure would be
                                                                      limited to a height of 23 feet from the
                    Permits: To facilitate CPC review, all            waterline. The proposed height limits
                    applications for state and federal per-           for special permit development are
                    mits and other approvals should be filed          shown in Table 7.4. The height could
                    concurrently with the application to the          be increased to the maximum only if
                    Department of City Planning.                      a ship or boat were being converted
                                                                      to a floating structure.





                                                          Table 7.4
                    HEIGHT CONTROLS FOR DEVELOPMENTS REQUIRING A SPECIAL PERMIT
                                               ON FLOATING STRUCTURES

                         TYPICAL ZONES*                                              Height             Max.
                Residential         Commercial              Manufacturing            Standard             Ht.

                RI thru R5          Cl, C2 in R1-R5         MIA                      23'                  40'
                                    C3, C4-1                M2-1
                                    C7, C8-1                M3


                R6                  Cl, C2 in R6                                     40'                  60'
                                    C4-2


                R7, R8              CI, C2 in R7, R8        MI-3                     50'                  70'
                                    C44, C6-1               M2-2
                                    C84


                R9, R10             Cl, C2 in R9, RIO       M1-6                     60'                  150'
                                    C5, C6-6


                Districts listed are representative of a group of districts with similar bulk characteristics, The final list will be
                comprehensive in its listing of all districts in each category.





                                                                                                          155









                  OVERWATER STRUCTURES (PIERS AND                               A pier would be defined as any over-
                  PLATFORMS)                                                    water structure or portion of one with
                  Piers and platforms are overwater structures.                 greater length than width. A platform
                  Piers and platforms are treated differently from              would be defined as any overwater
                  one another under the proposed regulations                    structure with greater width than length.
                  because of the difference in their configura-                 (Figure 7.4)
                  tions. New York's historical "finger piers"                   Platforms would be viewed as a recon-
                  project from the shoreline, often by as much                  figuration of the shoreline and part of
                  as 1,000 feet. Platforms, on the other hand, are              the land for purposes of building size
                  wider than they are long and can be viewed as                 and placement. (Figure 7.4) Piers would
                  extensions of the land.                                       have their own bulk restrictions.
                  Traditionally, piers served water-dependent                   Existing piers and platforms (including
                  uses such as shipping. With the decline of                    pilefields) would be those visible in the
                  port-related activity, many piers were left to                aerial photographs in the 1988 Army
                  deteriorate. Some have been redeveloped for                   Corps of Engineers Port Survey.
                  new uses such as ferry stops, recreation, com-
                  mercial developments and housing. Others are                  New piers and platforms would be those
                  available for reuse.                                          not visible in the Army Corps aerial
                  Piers can provide excellent opportunities for                 photographs.
                  waterfront- enhancing uses, public access and             Regulations for Existing Piers and
                  other redevelopment, but unregulated devel-
                  opment on piers can interrupt the views and               Platforms
                  openness from shore. Consequently, the pro-                   Existing platforms would be subject to
                  posal sets forth restrictive controls on the size             the same use, public access, visual corri-
                  and placement of buildings for piers, though                  dor and bulk regulations as the upland
                  not for platforms. Water-dependent uses                       lot. Existing piers could be developed
                  would be exempt from the proposed bulk                        for any uses permitted by the applicable
                  controls and public access requirements for                   zoning, except for exclusively residential
                  piers in order to foster such uses.                           developments. Residential uses would be
                  The proposed controls on piers typically would                permitted on piers only if they con-
                  limit the achievable FAR to less than the                     tained waterfront- enhancing uses on the
                  maximum generated by the pier. Waivers to                     ground floor, which would promote
                  modify the bulk controls and public access                    public access.
                  requirements would be available by special                    The following height and setback con-
                  permit from the City Planning Commission if                   trols would be applicable for as-of-right
                  other public purposes were served. If granted,                development on existing piers in all
                  these waivers would permit the full use of the                zones and for all uses except manufac-
                  floor area generated by the pier.                             turing and water-dependent uses. Mod-
                  Under the proposed regulations:                               ification of the controls would be
                                                                                allowed by CPC special permit only.
                      Piers and platforms would be defined as                   (Table 7.5)
                      overwater structures that are fixed and
                      supported by piles.




                  156









                                                                                                                                     FIGURE 7.4
                                                                                                                                     Piers/Platforms: Configuration


                                                                                                                                       Legend

                                                                                                                                       r
                                                      ............@                                     ......
                                                                                                                                                -A Land
                                                                                                        ............
                                                                                                        .............

                                                       ..........          ...
                                                                                                          ...........
                                  .......                                                         .......                                             Pier (or Pier Portion)
                                                                                                  ..........


                                           .................... ... .. ..
                                             ...............
                                             ft
                                  A.,                                                             . ......
                                                                                                                                                      Platform
                                                                                                   .............
                                                                                                    .........................

                                                        .......... ...


                                                      .. ..........                                                                  Length: 600 ft.
                                                                                        . . . . . . . . . . . .
                                                        .............
                                         ... ....... ... .. ..........
                                                                                                    ........... .......
                                                             .................................                                       Width: 100 ft.
                                                                             .........           .... .....     ...                  Ratio: 6:1 > 1:1 (length to width)
                                  Pier (Example)








                                                                                                        ..........-
                                                                                                        .................
                                                                                                        .............


                                                                                                        ............
                                                                                                        .................

                                                                                                        ................
                                                                                                        .................
                                                                                                        ................
                                                                                                        .................







                                                                                                   ...... .... ......
                                                     ...........
                                                                                        ..............       .....                   Length: 500 ft.
                                           a :::In*ai@;@@@l@;@ii;@i@@@@@@@@@@@ ...      ...........
                                                                   ...................
                                                            .. .......................... ...
                                                                                        ----------
                                                                                                                                     Width: 1000 ft.
                                  ..........................................            . ....     .......


                                     ......  .....
                                                                    ......              ................                             Ratio: 0.5:1 < 1:1 (length to width)
                                  Platform (Example)






                                  fti




                                                                                                             ..........


                                  ..........
                                   ::8b

                                                                  . . ...... ......
                                                                                                             ........                Platform
                                                                  . . . . . . . . . . . . . . . . . . . . .
                                                                                                                                     Length:300 ft.
                                              :L                                                                                     Width: 1000 ft.
                                     ler
                                                                          .............
                                    ......................
                                                                 ............                                                        Ratio: 0.3:1 < 1:1 (length to width)
                                                                           ...................          ....
                                             ............4......
                                                   ..........                                     .........................
                                                                                                     ....................
                                                                                                                                     Pier
                                  Platform with Pier Portion (Example)                                                               Length: 300 ft.
                                                                                                                                     Width: 80 ft.
                                                                                                                                     Ratio: 3.75:1 > 1:1 (length to width)


                     Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning











                                                                          Table 7.5
                                           HEIGHT AND SETBACK REGULATIONS FOR PIERS


                                                                                 Max. Ht.                                  Maximum
                                    TYPICAL ZONES*                               Before                  Req.              Height of
                   Res.                    Comm.                 Mfg.            Setback                 Setback"            Structure
                   RI thru R6              C2, C3,               MI-1            30'                     15'                          40'
                                           C4-1, C7              M2-1
                                           C8-1                  M3


                   R7, R8                  C44                   MI-3            50'                     15'                          70'
                                           C6-1                  M2-2
                                           C84


                   R9, RIO                 C5                    MI-6            60'                     15'                         150'
                                           C64


                        Districts listed are representative of a group    of zones with similar bulk characteristics. Final list will be
                        comprehensive in its listing of all districts in each height category.
                        Setback could be reduced to 10 feet in all zones on frontage facing an open area greater than 40 feet in
                        width.



                   The maximum permitted length or width of                        upon certification by the Chairman of the City
                   any building on a pier would be 200 feet in all                 Planning Commission that the proposed space
                   zones. The minimum distance between build-                      would be sufficiently large and designed to
                   ings would be 100 feet. Any building not                        promote public use and enjoyment of the
                   exceeding 30 feet in height, however, would be                  waterfront.
                   unrestricted in length or width as long as
                   public access standards still could be met.                     New Piers and Platforms
                        Public access would be required on all                     Current zoning does not limit the size of new
                        piers developed for non -manufacturing                     piers or platforms. Consequently, there is no
                        and non-water-dependent uses. The up-                      prohibition against covering an entire seaward
                        land 40 feet and the seaward 25 percent                    lot with a new overwater structure. Moreover,
                        of the length of the pier must be provid-                  current zoning permits piers and platforms to
                        ed as public access area. A public path at                 be used for any purpose allowed by the appli-
                        least 15 feet wide would be required                       cable zoning regulations. The proposed regula-
                                                                                   tions would be much more restrictive in the
                        along the sides of the pier, or it could be                size  and use of new overwater structures.
                        combined on one side. (Figures 7.5, 7.6,
                        7.7, and 7.8) These areas would count                            New piers and platforms would be per-
                        toward the public access requirement for                         mitted for the development of water-de-
                        the entire zoning lot. Some allowance for                        pendent uses or for open recreation. A
                        upland building extensions and kiosks                            modest percentage of the area of a pier
                        would be made in the public access areas.                        or platform built for water-dependent
                   In those cases where buildings exist on piers,                        uses could be assigned to waterfront-
                   alternate public access areas could be located                        enhancing uses. Any subsequent conver-
                   inside the buildings or elsewhere on the pier                         sion to non -water- dependent or non-

                   158









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                                                                                                                                                                                   FIGURE 7.5 Legend
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                                                                                                                                                                                   Requirements for Pier Development Public Open Space
                                                                                                                                                                                   High Coverage (Optional In All Districts):
                                                                                                                                                                                   Maximum Height: 30'
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                                                                                                                                                                                   FIGURE 7.6 Legend
                                                                                                                                                                                   Proposed Envelope and Public Access
                                                                                                                                                                                   Requirements for Pier Development Public Open Space
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                                                                                                                                                                                   RI-R6 Zones and Commercial Equivalents: Private Open Space
                                                                                                                                                                                   Maximum Height: 40'
                                                                                                                                                                                   Required Setback at 30'
                                                                                                                                                                                   Floor Area on 120'x 800' Pier: 90,240 sq. ft.


                                Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning



















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                                                                                          FIGURE 7.7                                                                                                                                                                                                                                                                                                                                                           Legend
                                                                                          Proposed Envelope and Public Access
                                                                                          Requirements for Pier Development                                                                                                                                                                                                                                                                                                                                    Public Open Space
                                                                                          R7-R8 Zones and Commercial Equivalents:
                                                                                          Maximum Height: 70'                                                                                                                                                                                                                                                                                                                                                  Private Open Space
                                                                                          Required Setback at 50'
                                                                                          1Floor Area on 120'x 800' Pier: 156,600 sq. ft.

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                                                                                          FIGURE 7.8                                                                                                                                                                                                                                                                                                                                                           Legend
                                                                                          Proposed Envelope and Public Access
                                                                                          Requirements for Pier Development                                                                                                                                                                                                                                                                                                                                    Public Open Space
                                                                                                                                                                                                                                                                                                                                                                                                                                                               I::: @M '."'*,-,@1--l-"...".,"....,[email protected]'."..",.."@@i!@@@!@@@i@i@i...'@'.
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                                                                                          R9-R10 Zones and Commercial Equivalents:
                                                                                          Maximum Height: 150'                                                                                                                                                                                                                                                                                                                                                 Private Open Space
                                                                                          Required Setback at 60'
                                                                                          1Floor Area on 120' x 800' Pier: 288,000 sq. ft.

                                                                                          Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning









                     recreational uses would be subject to all            require public access connections through the
                     regulations for existing piers and plat-             development, at prescribed intervals, from the
                     forms. Any modifications of bulk or                  waterfront to the first upland public street.
                     public access requirements would be by
                     CPC special permit only.                             Design controls would be established for the
                                                                          development of required public spaces. The
                The overwater coverage of        new piers and            Department of City Planning would record
                platforms for open recreation use would be                each new public access area to (1) certify that
                limited to an area not to exceed 50 percent               design requirements were met before issuance
                of the underwater portion of the zoning lot,              of a temporary or permanent certificate of
                inclusive of all piers and platforms on the lot.          occupancy, and (2) provide the public with a
                New piers and platforms for water-dependent               source of information on public access areas.
                uses would not be subject to a coverage
                limitation. No transfer of bulk from new                  In general, potential conflicts with industrial
                piers or platforms to the upland lot would be             uses preclude requiring public access on
                permitted.                                                industrial waterfront lots. Some specific
                                                                          opportunities to achieve public access do exist
                WATERFRONT PUBLIc AcCESS                                  in manufacturing districts, and a number of
                The waterfront is a valuable resource that the            these opportunities are identified in the
                                                                          Reach Studies. Small residential and commer-
                people of New York have grown to appreciate               cial developments typically do not generate
                and enjoy. A major objective of the Compre-               sufficient demand to require public access
                hensive Waterfront Plan is to promote and                 unless such developments are part of a planned
                retain public access to and along the waterfront.         open space network. They would be required,
                The proposal would establish generic require-             however, to provide a waterfront yard, or no-
                ments for public access when development                  build zone, along the waterftontage.
                occurs on zoning lots fronting the water in               Consequently, these public access recommen-
                mid- to high-density residential and commer-              dations apply only to large residential and
                cial developments (including large commercial             commercial developments and not to industri-
                developments in manufacturing districts), and             al developments or small residential and com-
                for large low-density residential developments.           mercial developments unless otherwise noted.
                (Table 7.6) It would provide also for the
                adoption of local plans, called Waterfront                The generic requirements for public access on
                Access Plans, to meet the public access needs             waterfrontage lots would mandate that 15 to
                of specific communities.                                  20 percent of the area of the lot be made
                The proposal would require that 15 to 20                  available for public access. The 15 to 20 per-
                percent of the open space on the zoning lot be            cent would be derived from the size of the
                available for public access. The percentage               upland lot and the area of any piers or plat-
                represents a balance among the public's desire            forms extending into the water from that lot.
                to enjoy the waterfront, the costs of providing           The 15 to 20 percent would constitute the
                and maintaining public access, the likely added           Total Public Open Space. It would have two or
                costs to waterfront developers, the need for              three components: (1) waterfront public access
                private open space, and the area required to              areas, (2) upland public access connections,
                build on waterfront lots in a way that meets              and, if necessary to achieve the required area,
                proposed urban design standards.                          (3) an aggregate of open space that adjoins the
                To maintain the link between upland commu-                waterfront public access area.
                nities and the waterfront, the proposal would



                162











                                                                     Table 7.6
                                           WATERFRONT PUBLIC ACCESS REQUIREMENTS


                                                    Waterfront Yard/                    Upland
                     Zoning                        Waterfront Public                Public Access                 Total Public
                     District                          Access Area                   Connection                    Open Space
                     RI - R5, CI - C4-1,              Waterfront yard                None required               None required
                     C8-1 Zones and                        required
                     Equivalent
                     Commercial                      No WPAA required
                     Development
                     in M Zones


                     Large Scale Sites* in         Minimum 25 foot wide                 Required             15% of the lot area
                     RI - R5, Cl - C4-1,           linear WPAA required
                     C8-1 Zones and                          and
                     Equivalent                    Minimum 15 foot wide
                     Commercial                        no-build buffer
                     Development                           required
                     in M Zones


                     R6 - RIO, C4-2 - C7,          Minimum 25 foot wide                 Required             15% of the lot area
                     C8-2 - C84 Zones                  WPAA required                                       in R6 - R7 zones and
                     and Equivalent                          and                                         commercial equivalents
                     Commercial                    Minimum 15 foot wide                                                 or
                     Development                       no-build buffer                                           20% of lot area  .
                     in M Zones                            required                                       in R8 - RIO zones and
                                                                                                         commercial equivalents


                     M1 - M3 (Use Groups                None required                None required                None required
                     16, 17, 18 only)


                         A development site made up of one or more zoning lots which has at least 600 feet of waterfrontage and
                         1.5 acres of lot area.
























                                                                                                                                163









                 Most of the total public open space would                    destrian path at least 10 feet in width,
                 have to be physically available to the public.               flanked on either side by a 10 foot wide
                 Some of it would be landscaped areas that                    landscaped no-build area that would be
                 need be accessible only visually and would                   visible to the public and would serve as     a
                 serve as buffers between public access areas                 buffer between the public pathway and
                 and private development.                                     the private development.
                 The components of the proposed generic                       Aggregate Public Open Space would be
                 public access requirements are described in                  required for all developments where the
                 greater detail below and in Figure 7.9:                      combined WPAA and UPAC did not
                     Waterfront Public Access Areas (WPAAs)                   meet the generic requirement for 15 to
                     would be continuous linear public access                 20 percent public open space. The aggre-
                     improvements running along the shore-                    gate public open space would have to be
                     line. WPAAs would be required in new                     located adjacent to the WPAA so it could
                     developments above a minimum size in                     be developed, for example as a plaza, a
                     all residential zones R6 and above, in                   waterfront park or scenic overlook. The
                     their commercial equivalents, and in                     public access requirement could not be
                     large multi-family developments in R3-2,                 achieved by the inclusion of small open
                     R4 and R5 districts. The WPAA would                      areas scattered on the lot that provide no
                     include a public passageway at least 25                  real opportunity for public use.
                     feet wide and a landscaped strip at least            All these requirements would be automatic for
                     15 feet wide that would be visible from              the districts specified. Waterfront Access Plans,
                     the public passageway and would serve as             on the other hand, would become require-
                     a buffer between the public access area
                     and the private development.                         ments only as a result of action by the City
                                                                          Planning Commission and the City Council.
                     WPAAs would be required also in new                      Waterfront Access Plans (WAPs) could
                     developments in low-density commercial
                     districts on large zoning lots with sub-                 be adopted by the CPC and the City
                     stantial waterfrontage; in large commer-                 Council to refine the generic public ac-
                     cial developments in manufacturing                       cess requirements for a particular locale.
                     districts; or where the City Planning                    The WAP might specify the location of
                     Commission has mapped a Waterfront                       upland public access connections or
                     Access Plan.                                             visual corridors appropriate to a local
                     Certain waterfront-enhancing uses such                   setting, or the placement of the aggregate
                     as cafes or kiosks would be allowed in                   public space on a given lot. The CPC
                                                                              could not increase or decrease the re-
                     WPAAs located in commercial zones, in                    quired amount of public access beyond
                     order to make the space more attractive                  that of the generic standard. (Fig. 7.10)
                     to and safe for the public.
                     Upland Public Access Connections                         In multi-family lower-density districts
                     (UPACs) would provide direct access                      (R3-2 - R5 or commercial equivalent),
                     from a WPAA to the first upland public                   where public access is not automatically
                     street or public area such as a park.                    required, adoption of a WAP could cre-
                     UPACs would be required at intervals of                  ate a public access requirement.
                     no greater than 600 feet along the shore-            For new developments in low-density residential
                     line, or at specific locations as required           and commercial districts, the only generic
                     by a Waterfront Access Plan. If not a                requirement would be a waterfront yard.
                     mapped street, a UPAC would be a pe-


                 164





                                                             I @                                                                                                            FIGURE 7.9
                                   Laterfro t                oundary                                             R6                                                         Waterfront Public Access
                                                                                                                                                                            (Higher Density Development)
                                                             00=                                                       E3                                             4.
                                                                                                                                                                                             d
                                                                                                                                                                . . . . . . . . . . . Legen
                                                                                  E10
                                                                                                                                                                i!@                                       Waterfront Public
                                                                                                                                                                                                          Access Area (WPAA)
                                                                                                                                                    . .............
                                                                                                                                                                                                          Upland Connection (Also
                                                                                                                                                                                                          Serves as Visual Corridor)
                                                             600 Feet Maximum


                                                                                                                                                                                                          Aggregate Open Space
                                                                                                                                                                X...
                                                                                                                                                                .. ...... .......
                                                                                                                                                                X
                                                                                                                                                                X
                                                                                                                                                  .. ..........
                                                             Area of Delail
                                                                                                                                                                ..........                                Tidal Wetland
                                                                                                                                        ..........


                                                                                                                                       .............
                                                                                                                                                ..............
                                                                                                                                                ..............
                                                                                                                                                   ............
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                                                             ..... .......
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                                                                                                                                                                            FIGURE 7.10
                                                             it Bounda                                           R6                                                         Waterfront Access Plan
                                                                                                                                                                            with Visual Corridors

                                                             DOM
                                                                                                                                                                                 Legend
                                                             EJ
                                                                                                                                                                                                          WPAA
                                                                                                                                                                                                          (Generic Requirement)
                                                                                                                 E@ jo
                                                                                                   W
                                                                                                                               54                                                                         Designated WPAA
                                                                                                                                                ;Iii-7
                                                                                                                                                . ........                                                (Nature Trail)

                                                                                                                                                                                                          Upland Connection
                                                                                                                                                                                                          (Generic Requirement)
                                                                                                                                       ............


                                                             ..... .                                                                   . .....
                                                                                                                                                                                                          Designated Upland
                                                                                                                                                                                                          Connection
                                                                                  ..........

                                                                                                                                       .... .........
                                                                                                                                       .... .........
                                                                                                                                       ... .........                                                      Visual Corridor
                                                             ,&                   ........         ......
                                                             U
                                                                                                                                                                                                          (Generic Requirement)
                                                                                  ...........
                                                                                  .................                                       ......
                                                                                  .......                                              .......

                                                                                  .......          ..... .........
                                                                                       . .... .... ... .                                                                                                  Designated Visual
                                                                                                                                                                ......................
                                                                                                                                       .......................
                                                                                                                                       ......... XXXXXXX
                                                                                                                                                                xxxxx

                                                                                                                                       .............................................
                                                                                                                            . .................
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                                                             ..........           .....
                                                                                                                                                                ......... ...
                                                             . ..... ....

                                                             ... . ..............                  .. .....                                                     ........
                                                             . .....              .................
                                                                                                   ::-V ....
                                                                                  .............                      -.X:   .. ....................................................
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                                                                                  ..........................
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                                                                                  ................
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                                                                                       .. . ....                                                                                                          Tidal Wetland
                                                                                                                               ........................
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                                                             ....... . ....       . . ... ........                    .... . ...
                                   .. .......... . . .       . ..........
                                                             ... . .. ... .



                                   Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                        Waterfront Zoning











                      Waterfront Yards would be continuous                     Visual Corridors
                      no-build zones along the shoreline of                    A visual corridor would be defined as
                      waterfront lots in lower-density residen-                an open area, public street, upland
                      tial and commercial districts (R1 - R5,                  public access connection or other open
                      CI and C2 overlays in RI - R5 and                        area which provides a continuous view
                      C4-1). They would serve as buffer zones                  to the water and is unobstructed from
                      between upland development and the
                      shoreline. Physical public access would                  its base to the sky except for permitted
                      not be required unless a Waterfront Ac-                  obstructions, such as kiosks, sculptures,
                      cess Plan were adopted or the zoning lot                 trees, landscaping and boats. Where
                      were very large, with significant water-                 there were significant grade changes
                      frontage. The waterfront yard would                      between the shore and the upland, some
                      maintain openness along the water and                    development might be permitted below
                      reserve an open corridor for public ac-                  the upland grade.
                      cess should the city choose to acquire it
                      for recreational purposes. (Figure 7.11)             A visual corridor might be a public access
                                                                           way and might fulfill the requirements both
                 VISUAL CORRIDORS                                          for public access and for public views.
                 Street vistas are an important design consid-             When required as the continuation of a
                 eration in New York because they provide                  mapped street, a visual corridor would have to
                 visual relief, light and air, and extended views.         be as wide as or wider than the mapped street.
                 Visual corridors to the waterfront are a partic-          Visual corridors not located within the right-
                 ularly important public amenity because of the
                 water's aesthetic value. The proposal would               of-way or continuation of a mapped street
                 protect views of the waterfront by defining a             would have to have a minimum width of 50
                 system of visual corridors in which no new                feet (the minimum distance set forth in the
                 buildings would be permitted. Public streets              Zoning Resolution for a new public street).
                 would be the basic framework of the visual
                 corridor system.                                          Generic Visual Corridor Requirements
                 As with waterfront public access, visual corri-               Any mapped street, whether open or
                 dors would in some instances be mandated                      unimproved, would have to be main-
                 generically, and would in other instances be                  tained as a visual corridor on properties
                 mandated as a result of a specific action taken               between the shoreline and the first up-
                 by the City Planning Commission and the City                  land street. If a mapped street inter-
                 Council.                                                      sected the mean high water line at an
                                                                               oblique angle of less than 45 degrees,
                 The generic requirements would be based on                    no visual corridor would be required
                 the public expectation that mapped streets                    because it could pose an unreasonable
                 would remain as visual corridors from the first               obstacle to development.
                 upland street to the waterfront, and that visual
                 corridors are desirable at frequent, specified                The continuation of any existing upland
                 distances along the waterfront. (Figure 7.12)                 street that terminates at the first upland
                                                                               street parallel to the water would have
                 Beyond the generic requirements, the protec-                  to be maintained as a visual corridor
                 tion of specific views and panoramas could be                 on properties in the waterfront block if
                 mandated by mapping appropriate visual                        the continuation intersected the mean
                 corridors. These corridors might extend be-                   high water line at an angle of 45 degrees
                 yond the first upland street but not beyond the               or more.
                 waterfront area.



                 166







                                                                                                                                         FIGURE 7.11
                                                                                   RIS                                                   Waterfront Yard
                                                                                                                                         (Lower Density Development)
                                                                                            L]
                                                                                                                                            Legend
                                                      L-]                                                                             . .....               Waterfront Yard         No
                                                                                                                                              - M           Public Access Required
                                             ..............................        . ...............
                                                                                                                                      ...................   Zoning District Boundary
                                                                                                                                      ........... ...... ....
                                                                                                                                      .....................
                                                                                                                                      :: . .....................
                                             @R5=


                                                                                                                                      ............
                                                                                                                                                            Tidal Wetland


                                                                                                                                      ..... ............
                                                                                                                                      . . . . . . . . . . .
                                                                                   [Ell
                                                                                                                                      ....................
                                                                                                                                      ...................
                                                                                                                                      ......................................
                                                                                   LJ
                                                                        Li                                                            ............................ ..........
                                             . . . . . . . . . . . . . .
                                                      El F=]                                                                          ....... .........................
                                                                                                                                      w.::,w ftl YO 0
                                             ..........                                                                               :0 ......
                                             ... ..............                                   El                                  ........................
                            .................................
                            ........................
                                                                                                                                      .............
                                                                                                  El
                            :Xftk,                                      .......... ......... . . . . . . . . . . . . . . . .
                                                                                                                                      .............
                                                      ..................
                                                   .......                         ..                                                 ......
                                                                        . . . ..... .........
                            ......................
                                                                        .. ...     ........

                            ...................I......
                                                   .....................
                            ::::***:*:,*,.".,,*",..",.:,:,:,.:,.:,".:,,:::.:,.:.:.::.:.:,:.:- :::: *-*-*,-*:::::: !@J t [] EJ
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                                             ...............            ......     .... ....
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                                                   ..................... ::U:iii@i@i]
                            . ................
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                                                      . ....                       ..............       ...............................................
                                                                                                        ...............................................
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                                                                        . ...      ..................
                                                                                                                                      .............................
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                                                                ..................................... ..
                                                                                   ..........                                         .....
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                            ...................... ..... ...............................................
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                            ...........................
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                                                   ...............,
                                             ............ ............. .....                                                         ... ... .......
                            ............................ .. ..................                                                        ......
                            .............                                          ......
                                                                        ::: ..................................
                                             . .........
                                             ...........                                                                              ....... .. . ..... ... .. ................ .........
                                                                                                                                      ....... .......
                                                                                   ......                                             .......
                                                                                                        ...........                   .......... ........
                                                                                                                                      .......................
                                                                                                                                      ..........
                                                   .......................... .......
                                                        ...............            ...   .......
                                                                                                                                      ............... .......I............


                                                                                                                                         FIGURE 7.12
                                             Iit oundary                           L                                                     visual corridors
                                                                                                                                            Legend          Mapped Street within
                                                                                                                                                            Waterfront Block

                                                                                                                                      .. ...........
                                                                                                                                      ............
                                                                                                                                      ...............       (Mandatory Location for
                                                                                                                                      ...........
                                                                                                                                      ...............
                                             __j                                                                                                            Visual Corridor)

                                                                                                                                                            Mapped Street Ending
                                                                                   600 Feet Maximum*                                                        at First Upland Street
                                             9                                                                                                              (Alternative Locations for
                                                                                                                                      . ...... .......
                                                                                                                                                            Visual Corridors Mandatory
                                                                                                                                                            at Maximum Intervals of
                                                                                                                                      =Z:@ . . . . ...........
                                                                                                                                      ........... ....
                                                                                                                                      ........... ...
                                                                                                                                      ............. ...
                                                                                                                                                            400 feet)*

                                                                                                                                      ......................


                            ..................
                            AOMAH* it....                                                               0                                                   No Upland Street
                            ......           :: ....9.........
                            ..................
                                                                                                                                                            (Visual Corridor Mandatory
                            ..........
                                             ..........
                                                                                                                                                            at Maximum Intervals of


                                                      .................
                            ..............                                                                                                                  600 Feet)*
                                                   . ................
                            ...........
                                                                                                                                      ...........
                                                      ................
                                                                                                                                                            Tidal Wetland
                                                      .............
                                                                                   ........                                           ........
                                                                                                                                      ........... ..........
                                                                                                                                      . ........ ........
                                             ...... .......... :"       .          :::: ::
                                             ::::: ::; .......                     ..... . .                                          ........ ........ .
                            ................. ..........                . . . ..... .....
                                                                                                                                      .... ........ .....
                                                                                   .............                                      .. . ........ ........
                                                                                   .... .......                                       ........................
                                                      ............
                                                                ..........         ...... ........
                                                                                         . .........
                                             ...                ... ..... ... .....
                                                                                            . .... .......
                                                                                                        . . .................................. ......
                                                                                   ... . ................ ..
                                                                                   . ............ .... ...                            ......
                                                                                                                                      ...............................

                                             ....                                                       ...........                   ..........
                                             ........ .. X.
                                                                        ................
                            OM               du. .                                                                                    ...... ..................
                                             ne    . . ............................                                                   ... .. .. ...........
                            ................ .....              ...............    .....
                            ................... ....
                                                   ...........  ........           .......
                            ..........................                             ........
                                                                ............                    ......... X- ......
                                             1:1:1:.::.::. 1                                            ..                            ........ ........
                                                                        ...............
                            .............
                            ...............
                            ..............
                            ...............
                            ...............
                            ..............





                            ...........                                            .........
                            .............    ...........                           . .....                                            ................. . ....
                                                                                                                                      ::-   * Specific Visual Corridors may be
                                                                                   ................... ....
                            ............     ....                                                                                     .................................
                                             .................
                                                                                                ................
                                                                . . . .. ................ ... . .                                             designated through mapping
                                             ............ ....                                                                        .......
                            ....... .......  ....                                  ...........                                        . .. ...... .........
                            ............................                           . .. . ... ............ ............               ......
                            .....................                                  ........ ...
                                                                                                                                      ........ (Fig. 7.10)
                                                                                                                                      .............
                            ...............................                                                                           .............
                                                                ................................... .......
                                                                ...................... ... ................................. .......... ...........
                                                                . .............................                                       ........................ ........
                                                                .............................
                                                                                                        ..........................


                            Comprehensive Waterfront Plan / NYC 'Department of City Planning / Waterfront Zoning









                 ï¿½   A visual corridor would not be required,              HEIGHT AND SETBACK, OPEN SPACE
                     however, if, at the time the zoning lot               AND YARD REQLTmEmEws
                     was developed, there was an existing                  Height and setback regulations, and yard and
                     mapped street or other designated visual              open space requirements allow for li ht and
                     corridor within 400 feet, measured along                                                      9
                     the first upland mapped street.                       air on the street, and open space on the lot, by
                                                                           controlling the placement, scale and configura-
                 ï¿½   Where there were no mapped streets,                   tion of development. Waterfront developments
                     visual corridors would have to be provid-             raise specific urban design issues relating to
                     ed at intervals not exceeding 600 feet.               visual character, human scale and the com-
                                                                           patibility of new development with existing
                 No visual corridor would be required if it                neighborhoods.
                 would encumber more than 50 percent of a
                 zoning lot. Existing non-complying buildings              In lower-density neighborhoods (R1 - R5), the
                 would be permitted to remain but could not                compatibility of new buildings with the water-
                 be enlarged in a manner that would increase               front is adequately ensured by existing zoning
                 the obstruction.                                          regulations. Height is generally limited to 40
                                                                           feet. In mid- to high-density districts, however,
                 Developments on piers and floating structures             the regulations do not adequately address
                 (except for water-dependent uses) would not               waterfront development.
                 be permitted within a visual corridor except by
                 CPC special permit.                                       There are two sets of bulk regulations in mid-
                                                                           to high-density districts. "Height factor" regu-
                     Specific Visual Corridor Requirements                 lations, introduced in 1961, are based on
                     Two types of visual corridors could be                mathematical formulas that relate the permissi-
                     mapped by special action of the CPC:                  ble height of a building to the amount of open
                     designated visual corridors and pan-                  space provided on the zoning lot. These for-
                     oramic views. Designated visual corri-                mulas encourage tall buildings with low lot
                     dors would be continuations of specific               coverage.
                     streets or other open areas for* the pres-            In contrast, contextual bulk regulations enact-
                     ervation of important views. The widths               ed in the 1980s result in buildings of lower
                     would be designated when the visual                   height and higher coverage, which resemble
                     corridor was adopted.                                 the building types constructed before the
                     Panoramic views would be designated to                introduction of height factor zoning.
                     preserve outstanding or unique views                  The low lot coverage required by height factor
                     over the water from public parks,                     bulk regulations often presents limitations in
                     streets, waterfront access areas or                   site planning and building massing, and pre-
                     mapped public places. Panoramic views                 cludes the mixture of low building forms with
                     could be designated when new develop-                 tower elements. The height regulations im-
                     ments might otherwise obstruct an                     posed by contextual bulk regulations can
                     outstanding view. Panoramic view regu-                present site planning and building massing re-
                     lations would mandate building height                 strictions that are not universally desirable on
                     and other design controls.                            waterfront sites.
                     All visual corridors would be recorded in             Locations where contextual bulk regulations
                     the Department of City Planning registry              might be desirable include areas where there is
                     established to ensure an adequate public              a strong upland context to be supported by
                     record of public access sites.                        new development. Contextual bulk envelopes
                                                                           originally were developed to reinforce existing


                 168









                    neighborhood contexts on regular city blocks,              could include buildings of extraordinary
                    promote streetwalls and limit building heights.            height - 40 stories or more - easily taller
                    These regulations would be appropriate for                 than buildings previously built under R6
                    some waterfront areas. If used exclusively,                height factor zoning and potentially taller than
                    however, they would not be flexible enough to              most buildings in RIO districts.
                    produce an interesting, varied and visually
                    open waterfront.                                           Proposed Bulk Controls for Waterfrontage
                                                                               Blocks in R6 - RIO Districts and Commercial
                    Height factor height, setback and floor area               Equivalents
                    regulations work best when applied to proper-              The proposed bulk controls for new residential
                    ties on blocks within a regular street grid. The           and commercial developments along the water-
                    zoning lots on these blocks usually have pre-              front are intended to meet urban design con-
                    dictable and limited sizes and shapes. When                siderations that would:
                    these height, setback and coverage controls are
                    applied with the appropriate FARs, the result-             a   accommodate the public access require-
                    ing buildings are relatively predictable in size               ments;
                    and scale.
                    Along the waterfront (particularly outside of              E   encourage low- to medium-rise buildings
                    Manhattan), developable property is often                      adjacent to waterfront public access
                    located on large, irregularly shaped parcels in                areas, upland public access connections
                    areas without a consistently mapped street                     and local streets, in order to provide for
                    system. Applying height factor regulations to                  activity and security in public spaces;
                    such sites would not necessarily result in                 0   avoid "walling off" the waterfront with
                    predictable building heights, shapes or sizes.                 excessively wide buildings along the
                    Excessively tall buildings, and buildings that                 shore;
                    11wall off" the waterfront, could be built on
                    such sites. Moreover, height factor zoning                 N   avoid overwhelming the waterfront with
                    would fail to achieve other urban design                       excessively high buildings; and
                    objectives of safety, security and human scale             0   foster predictability in building bulk.
                    along public access areas along the waterfront.
                    Figures 7.13 and 7.14 show possible develop-               Under the proposal, mid- to -high-density
                    ment schemes on typical, large waterfrontage               contextual districts could continue to be
                    blocks in an R6 district using the existing                mapped along the waterfront. Where non-
                    height and setback regulations, contextual and             contextual mid- to high-density districts are
                    height factor. In both illustrations, the pro-             mapped the proposal would eliminate height
                    posed generic public access requirements have              factor zoning on waterfrontage blocks and
                    been met. Figure 7.13 shows potential develop-             replace it with a new set of controls.
                    ments using the bulk controls for an R6A                   These new bulk regulations would be intro-
                    contextual district, as amended in accordance              duced in R6 through RIO districts and their
                    with the Department's recently published                   commercial equivalents to provide site plan-
                    report Quality Housing Zoning These pro-                   ning flexibility while preventing excessively tall
                    posed amendments would permit more liberal                 buildings. The proposed zoning regulations
                    site planning on large and irregularly shaped              would be a hybrid of height factor and contex-
                    lots and are necessary to make the program                 tual regulations and would apply wherever
                    successful along the waterfront.                           contextual zoning was not mapped. Figure 7.15
                    Figure 7.14 shows developments on the same                 shows developments on typical large R6 water-
                    sites using the height factor bulk controls for            front lots using the proposed height and
                    an R6 district. Height factor development                  setback regulations.

                                                                                                                               169









                                                                       ..............                                                                                              ... ..    .......
                                                                                                         .............     ........
                                                                                                                     ....................
                                                                                                            .......... .. ........... .........

                                                                                                                       ..... .  ....... ..
                                                                                                                                                                ....................
                                                                                                                          ... ...............                                                                                                              ......

                                                                                                                 ........................



                                                                                                            ............
                                                                 .. ...........                                                                                                                                                                                                              .......

                                                                           ..................                                                                                                                                                              .. . ...
                          ...........
                          ..............                                                                                                                                                                                                                                         ..........
                                                                                                                                                                                                                                                                               .............
                                                                      ............   ..........
                                                                        X.;             .: : X
                          ........                                                     .....
                          ..........


                                                                                 ....                                                                                                                                             ...           ............
                          ...........
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                                                                                                                                                                                    0
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                          ..........
                          ......... .. ....
                          ..........




                                                                                                                                                                     27th Avenue














                          ..........
                          ..........
                          ..........
                                                   ar


                          FIGURE 7.13
                          Urban Design Case Study: Pot Cove, Astoria, Queens
                          Waterfrontage Blocks Developed Under Existing R6A Regulations
                          (To Remain Available Under Zoning Proposal)


                          Legend

                                                     Zoning Lot Boundary of
                                                      Potential Developments


                                                       Public Access Areas











                          Comprehensive Waterfront Plan / NYC Department of City Planning                                                                                                                                                            Waterfront Zoning









                                                                                                          ...............               .......
                                                  ..........                       ..........................                                                                                                                                                                                                                                                       . ... ....
                                                                                                                                                                                                                                                                                                                             .....................
                                                             .................                                                                                                                                                                            .... ..
                                                                                                                                                                            ..........                   ......
                                                                                                                                                               . ..........                              .......                                                ....................
                                                  ...............                                                                                                                                                                                                                                                            ............ ...
                                                                                                                                                                                                                                                                                                           .........                    .......
                                                                                                                                                                                        .......................
                                                                                                                                                                                        ..........................                                 ...........
                                                                                                         ...............                                                                                                                    ................
                                                     ....                    ....... ....                 .....................                                                                              .....................
                                                                                                                                                                               . . . . ....... ...........               ..................
                                                                                ..........                                                                                                                                              :::::::
                                                                                                                                                                                                                         .... ...........                                                        ....................
                                                                                                                                                                                                                                                                                                 . ......               .................
                                                                                                                                                                       . ................ ...........    ...............          .......
                                                                                       ...................        I...............                    ........................       X.:        ..........................
                                                                                    ............. ...................... ..................
                                                                                                                                                                       .. .....................................                .......
                                                                                                                                                                                                                                                                                                       ......................................
                                                                                                                                                                                                                                                                                      ................
                                                                                   ...........................         .......                  .........................
                                                                                                            .............
                                                                                                                  ..........          ...........................
                                                                             .............
                                                                                                                                                                                                  .................
                                                                                                                                                                                                                                                                .................
                                                                                                                                                                                                                                                                                             ..............
                                                                                                                                                                                                                                                                                         ...................... .
                                                                                                                                                                                                               ..........
                                                                                                                                                                                                                                                                      ...........................     ............
                                                                                                                            .............                                                                                                                                                                     ............
                                                                                                                             ...........                               ......                    ....... ....................

                                                                                                                                                                                                                                                                                         ...............
                                                                                                                                                           ..........                                                                                                                                                   L1.0 .... ..
                                                  ............      .......                                                                                                                                                                                                                                                                       ..........
                                                                                                                                                                                                                                                                                                                        ..........
                                                  ..........
                                                                                                                                                   ..... ....... .                                                                                                    . . ..... .......................                       ........
                                                                                . . ...............
                                                                                           .................                             .......           .........
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                                                                                                 .. ........                                                                                                                                                                                 ..... .
                                                                                                    ............    .......
                                                                                                                                                                                                                                                                I. . . . ... .....   1-  .. ........
                                                                                                                                                                                                                                                                      .. .........                         ........
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                                                                                                                                                                                                                                                                                                                                      . ........... .
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                                                  ............................
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                                                                                                                                                                                                                                                                                ..........       . ....... ...............
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                                                                                                                                                                                                                                                                                                             ......................


                                                                                                                                                                                                                                                                                   .........                . .....



                                                                                                                                                                                                                                                            AA:




                                                  ......................

                                                  ............
                                                                                                                                                                                                                                   26t




                                                                                                                                                                               C71




                                                                                                                                                                                                                                                                                                 -f;                                f;
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                                                  .........          .....
                                                  .........           ......
                                                  .........          .......

                                                                                                                                                                                                                         27th Avenue















                                                  ..........



                                                  FIGURE 7.14
                                                  Urban Design Case Study: Pot Cove, Astoria, Queens
                                                  Waterfrontage Blocks Developed Under Existing R6 Height Factor Regulations
                                                  (No Longer Applicable Under Zoning Proposal)

                                                       Legend

                                                                                       Zoning Lot Boundary of
                                                                                        Potential Developments


                                                                                        Public Access Areas










                                                       Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning












                       I

                 Building coverages would be set by a simple
                 maximum coverage limit, as in contextual
                 zoning. Maximum coverages would be set for
                 each district paralleling the contextual districts.
                 These coverages would permit a wide range of
                 site plans that could accommodate a variety of
                 site conditions and would address public access
                 and private open space,.requirements.

                 FARs in residential districts would be based on
                 the highest achievable FAR under current
                 height factor zoning for each district. Existing
                 FARs would continue to apply in commercial
                 and manufacturing districts.

                 For residential development, density would be
                 measured by lot area per dwelling unit, as in
                 contextual zoning, rather than by a lot area
                 per zoning room count, as in height factor
                 zoning. The proposed maximum lot coverages,
                 FARs and maximum densities for each district
                 are shown in Table 7.7.






                                                                   Table 7.7
                                                LOT COVERAGE, FAR AND DENSITY
                                   Maximum
                 District*              FAR                          Lot Coverage by Percent                     Lot area/DU

                 R6                     2.43                         60 interior/80 corner                                  278


                 R7                     3.44                         65 interior/80 corner                                  198


                 R8                     6.02                         70 interior/80 corner                                  123


                 R9                     7.52                         70 interior/80 corner                                   98


                 RIO                   10.00**                       70 interior/100 corner                                  79




                     residential districts and their commercial equivalents

                     increase to 12 with Inclusionary Housing









                 172










                                                                                                                                                                                                                                                                                                                                 .............
                                                                                                                                                                                                                                                               ......      . ........................                 ......................
                                                                                                                                                                                                                               . ..............                ............  ................
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                                                                          Park


                                            FIGURE 7.15
                                            Urban Design Case Study: Pot Cove, Astoria, Queens
                                            Waterfrontage Blocks Developed Under Proposed R6 Height and Setback Regulations
                                            (To Replace Existing Height Factor Regulations Under Zoning Proposal)

                                              Legend

                                                                            Zoning Lot Boundary of
                                                                            Potential Developments


                                                                              Public Access Areas











                                               Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning









                 Height and Setback Regulations                            of predictability and discernable distinctions
                                                                           among districts. An R6 district, for example,
                 To prevent exceptionally tall buildings, the              should produce a building of a predictable
                 proposal would establish height limits in each            maximum height, with no possibility of sub-
                 district. Achievable heights under height factor          stantially greater height even if the lot is very
                 regulations were examined as a guide in pro-              large, as are many waterfront lots. Similarly,
                 posing new height limits.                                 an R7 district should produce a building
                 In R6 districts, at a maximum FAR of 2.4j,                taller than an R6 building but not as tall as
                 height factor regulations permit buildings as             an R8 building, and an R9 district should
                 high as 15 stories. These buildings are atypi-            produce a building taller than an R8 building
                 cal of R6 districts as they require great                 but not as tall as an RIO building.
                 amounts of open space and cover as little as              Several other factors that could restrict site
                 16 percent of the zoning lot. Buildings in R6             planning were considered in proposing height
                 districts typically range from three to 12                limits. These included provid    -ing public ac-
                 Stories. Under height factor regulations a                cess, parking and the need to maintain af-
                 shorter building can have a larger floor plate            fordability. Sufficient height had to be al-
                 which usually makes for a more economical                 lowed to accommodate the required water-
                 building. For example, buildings of nine                  front public open space, which would ac-
                 stories achieve almost 97 percent of the al-              count for 15 to 20 percent of the lot area,
                 lowable FAR, at 26 percent lot coverage.                  and to account for potential subsurface prob-
                 In R7 districts, at an FAR of 3.44, height factor         lems that might limit below-grade parking. In
                 regulations permit 14 stories. The allowable              addition, affordability would have to be
                 FAR diminishes as the building rises above                maintained in R6 and R7 districts, in which
                 that height. In R7 districts, buildings typically         expensive steel or concrete construction
                 range from three to 14 stories.                           normally is not used, by permitting buildings
                 In R8 districts, at the highest achievable FAR            without cost-adding setbacks.
                 of 6.02, building heights range from 17 to 20             The new height and setback regulations would
                 stories. Greater amounts of open space are                be flexible enough to permit the lower build-
                 required for each additional story.                       ing forms of contextual zoning but also would
                 In R9 districts, buildings reach their maximum            allow buildings with tower elements. The
                 FAR of 7.52 at heights ranging from 14 to 17              Quality Housing height and setback regula-
                 stories, although many R9 developments forfeit            tions as proposed in the Department's recently
                 allowable FAR to build higher. There are very             published report QualitX Housing Zoning, and
                 few R9 districts in Manhattan and only one in             the proposed height factor replacement regula-
                 another borough.                                          tions for waterfrontage blocks (Table 7.8) are
                                                                           illustrated on a 20,000 square foot zoning lot
                 In RIO districts, building height is not a                with 100 feet of water frontage. Figure 7.16
                 function of floor area and open space ratios.             illustrates this hypothetical zoning lot, and
                 Most RIO developments are built under                     Figures 7.17 through 7.21 illustrate the devel-
                 tower regulations which permit 40 percent lot             opment options for each district.
                 coverage. Buildings of 30 to 40 stories are not
                 uncommon.


                 In addition to retaining a relationship to
                 heights currently achievable upland, the pro-
                 posed bulk regulations would offer a degree

                 174












                   Two controls would be introduced to ensure                Because much of the floor area would be
                   predictability and permit design flexibility. The         located below the base height, streets and
                   first would be a straightforward height limit in          public access ways would be lined with rela-
                   each district, ranging from I 10 feet (I I or 12          tively low building elements, which would
                   stories) in an R6 district to 280 feet (28 to 30          reinforce traditional streetwall character and
                   stories) in an RIO district.                              provide "eyes on the street." Above the base
                                                                             and beyond a setback distance, towers would
                   The second control would require that at least            be permitted up to the height limit. The pro-
                   one-half the floor area in each building be               posed height limits and packing requirements
                   located below a specified base height. This               are shown below.
                   mechanism is called "packing the bulk."







                                                                   Table 7.8
                                       MAXIMUM HEIGHT AND PACKING REQUIREMENTS


                                      Maximum                     Packing                   Packing
                                  Building Height                  Height                    Score              Approx
                   District*           (in feet)                  (in feet)              (in percent)            of Stories

                   R6                     110                         40                       50                         11


                   R7                     135                         50                       50                         14


                   R8                     180                         60                       50                         19


                   R9                     225                         70                       50                         24


                   RIO                    280                         110                      50                         30




                     And Commercial Equivalent Districts


















                                                                                                                            175













                                                                                                                                                                               Waterfrontage Block






                                                                                                                                                                                                           . .. . . . . . . . . . . .






                                                                                              4-
                                                                                                                                  Interior Lot Portion

                                                                                             05


                                                                                                                              -------------------









                                                                                                                                                                                                                                                                                             C)
                                                                                                                                                                                                                                                                                             CV
                                                                                                                                    Corner Lot Portion                                                                                                                            C)



                                                                                                                           ...................................
                                                                                                                                                                                                                         30'Setback Required
                                                                                                                                                                                                               Cb        At or Below Base
                                                                                                                                                                                                                         Height Level
                                                                                                                                                                                                           . .. . . . . . . . . . . .
                                                                                                                                                                                                                         No-Build Buffer Zone


                                                                                                                                                                                                                                            ian Public
                                                                                                                                                                                                                                            Easement

                                                                                                                            ......................................                 ....            . . . ........................... .............            ... ................................
                                                                                                                                                                                                                                                                ................... ....
                                                                                                                                                                                                                                                                                         . ..........
                         ... ......... . .............   ..................... . ..............  ..................... . .............   ..................... . .............                                                                                                     ..... ...............
                                                                                                                                                                               -****--"-""'-"'-I                  .......:..................... . ................................... . .......... ...
                         ..............................................................................................................................................................................................................................................................






                    FIGURE 7.16
                    Waterfront Zoning Lot (Typical Condition for Bulk Studies, Figures 7.17- 7.21)


                         Legend                                                                                       Study parameters:
                                                                                                                      -The area of the Zoning Lot is 20,000 sq.ft. with 100 ft. of water frontage.
                                                   Waterfront Public                                                  -A 40 ft. deep Waterfront Public Access Area (WPAA) is provided along the shore.
                                                   Access Area                                                        -The Zoning Lot is bounded on one side by a narrow public street.
                                                                                                                      -The upland boundary of the WPAA is treated as a streetline.
                                                                                                                                                                                                                         Pedestr
                                                                                                                        MIN TL-D                                                                                         Access




                                                                                                                      -Floor plates range from a maximum depth of 70 feet to a minimum depth of
                                                   Zoning Lot Boundary
                                                                                                                      55 feet.
                                                                                                                      -The minimum size of a floorplate is 4,000 sq.ft., except for penthouses,
                                                                                                                      which may be less.


                         Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning





































                                                I%

                                  XXX             %








                Quality Housing Bulk Configuration                 Proposed Low Height  Configuration















                                                                                                \%













                                                                                               . . . .......

                Proposed Maximum Height Configuration              Proposed Maximum Height Configuration
                with Setb ck at 40'                                with Setback at Grade



             FIGURE 7.17
             Bulk Diagrams: R6 Districts and Commercial Equivalents


             Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning
































           Quality Housing Bulk Configuration                    Proposed Low Height  Configuration
















                              RX





                                                      .... .. ....                                         ....... . ..





          Proposed Maximum Height Configuration                 Proposed Maximum Height Configuration
          with Setback at 50'                              1   1 with Setback at Grade


       FIGURE 7.18
       Bulk Diagrams: R7 Districts and Commercial Equivalents


       Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning























                                M.







                                         ..... .....







                                                                                                       -:7:



                                        .... ..                                           . . .....
               Quality Housing Bulk Configuration                  Proposed Low Height Configuration


































                                                                . . . . . . . . . . . .
                                          Proposed Maximum Height Configuration

                                                                                                                  __j

             FIGURE 7.19
             Bulk Diagrams: R8 Districts and Commercial Equivalents


             Comprehensive Waterfront Plan / NYC Department of City Planning                   Waterfront Zoning
























                         .16


















                                  ..... ....                                                ... ......


           Quality Housing Bulk Configuration                   Proposed Low Height Configuration



























                                      Proposed Maximum Height Configuration


        FIGURE 7.20
        Bulk Diagrams: R9 Districts and Commercial Equivalents


        Comprehensive Waterfront Plan / NYC Department of City Planning                    Waterfront Zoning














































































                                   w.

                                                                               . ... .....

             Quality Housing Bulk Configuration                           Height Configuration












           FIGURE 7.21
           Bulk Diagrams: R10 Districts and Commercial Equivalents


           Comprehensive Waterfront Plan / NYC Department of City Planning / Waterfront Zoning









                  The proposed bulk regulations would require                 important on the waterfront where many sites
                  setbacks at certain heights in order to place               are remote and pedestrian traffic may be
                  tower elements away from streets, visual corri-             minimal. The planting requirements and
                  dors, upland public access connections and                  parking location rules would contribute to
                  waterfront public access areas. Setbacks of at              more attractive landscaping and streetscapes.
                  least 15 feet would be required from any
                  street, visual corridor or public access connec-            The proposed amendments to these elements
                  tion, and at least 30 feet from any waterfront              of the Quality Housing Program are described
                  public access area. In order to permit relatively           in detail in the Department's report Quality
                  low six and seven story buildings without                   Housing Zonin , and are necessary to allow
                  costly setbacks in R6 and R7 districts, setbacks            the successful use of the program along the
                  could be provided at any level below 60 feet,               waterfront.
                  including grade.
                  R8, R9 and R10 districts would have two                     PARKING WITHIN THE
                  setback requirements. Setbacks would be                     WATERFRoNT AREA
                  required at 85 feet and could be provided at                Accessory Parking
                  any lower level, including grade. A second                  Parking is often a necessary component of
                  setback would be required for any portion of                waterfront developments. Screening and land-
                  a building higher than 150 feet that faces a                scaping can enhance its attractiveness. Current
                  waterfront public access area. This second                  parking regulations are fairly strict in requiring
                  setback would have to be at least 15 feet in                on-site parking in residential zones. To provide
                  depth and would be measured from the street-                greater site planning flexibility, off-site access-
                  wall of the building. This requirement would                ory parking rules would be liberalized.
                  add articulation to tall buildings facing the
                  waterfront and would encourage developers to                    On-Site Accessory Parking
                  place tall buildings with their narrower face                   No accessory parking spaces, aisles or
                  along the water's edge.                                         driveways would be permitted within
                  To further the latter goal, the width of a                      waterfront public access areas, upland
                  building facing the shoreline would be limited                  public access connections or aggregate
                  to 100 feet above the maximum base height                       open space on waterfrontage block sites.
                  for its zone: that is (1) a building in an R6 or                Open parking would be permitted in
                  R7 district exceeding 60 feet in height, or (2)                 visual corridors, which are often coinci-
                  a building in an R8, R9 or RIO district ex-                     dent with streets or the continuation of
                  ceeding 85 feet in height.                                      streets. Quality Housing Program parking
                                                                                  standards would be applicable on all
                  Compliance with the Quality Housing pro-                        waterfrontage blocks.
                  grammatic elements (Zoning Resolution Article
                  2, Chapter 8) would be mandatory for all                        Trees planting standards would be estab-
                  residential developments on waterfrontage                       lished for all open parking areas on
                  blocks. Requirements such as maximum num-                       waterfrontage blocks. Parking areas
                  ber of dwelling units permitted per corridor                    would have to be screened from public
                  indirectly would limit the length of a building                 access areas either by low, dense shrub-
                  and encourage relatively slender towers, and                    bery or by opaque walls up to 3'- 6"
                  would maximize light, air and views. The                        in height.
                  safety and security features, such as the re-
                  quirement that entrance doors be located in
                  clear view of the street, would be particularly

                  182









                       Off-Site Accessory Parking in Residence                    Screening: A four-foot wide landscaped
                       Districts                                                  buffer would be required along all lot
                       Off-site accessory parking for residential                 lines.
                       developments is not currently permitted                    Trees: Trees would be required in open
                       in residence districts except as part of a                 parking areas.
                       parking facility shared with another devel-
                       opment. To provide greater site planning                   Off-Site Accessory Parking in Non-Resi-
                       flexibility, the proposal would permit off-                dence Districts
                       site parking in the same or an adjoining                   Off-site accessory parking would be per-
                       multi-family residence district (districts                 mitted in non-residence districts as pres-
                       other than RI, R2, R2X, R3A, R3X, R3-1,                    ently permitted, with the following mod-
                       R4A, R4-1 and R413) if the off-site parking                ifications: 1) parking facilities could be
                       facility met the following requirements.                   located a maximum of 1,000 feet from
                       Contiguity or Distance: In R3 through R5                   the principal lot, and 2) such parking
                       zones, the accessory lot would have to be                  could be provided in dedicated public
                       contiguous to the principal lot (except for                garages or public parking lots.
                       a street separation). In R6 through RIO               Public Parking Facilities
                       zones, all off-site spaces would have to be
                       within 1,000 feet of the principal lot.               Public parking facilities might be desirable
                                                                             along parts of the waterfront that are distant
                       Size and Arrangement: In R3 through R5                from mass transit. They would be problematic,
                       zones, the size of each accessory lot                 however, if large, if located on waterfrontage
                       would be limited to 10,000 square feet or             blocks, or if serving upland non-water-depen-
                       100 feet of street frontage. The facilities           dent or waterfront- enhancing uses. Their
                       would have to be self-parking. In R6                  locations would be strictly limited.
                       through R10 zones, the current maxi-                       On all sites within the waterfrontage
                       mum permitted for on-site parking (200
                       or 300 spaces) would apply to future off-                  blocks, parking facilities would continue
                       site parking.                                              to be permitted as-of-right only in Man-
                                                                                  ufacturing and C8 districts. In all other
                       Parking Structures: In R3 through R5                       districts where parking facilities currently
                       zones, no accessory off-site parking stru-                 are allowed as-of-right, they would be
                       ctures would be permitted, but they                        permitted on waterfrontage lots only by
                       would be permitted in R6 through RIO                       CPC special permit, up to the capacity
                       zones. The height in any rear yard would                   limitation of the applicable district. The
                       be limited to 14 feet.                                     permit findings would be based on the
                                                                                  need to serve a waterfront development
                       Yards: No parking spaces could be locat-                   or the inability to site the facility on a
                       ed in the front yard if the yard were re-                  non-waterfrontage lot.
                       quired by the zoning district.




                                                                    ENDNOTES

                1. The definition of "mean high water" used by the National Oceanographic and Atmospheric Administration
                     would be adopted for zoning purposes.




                                                                                                                                183














                                                                                             4e-







                             NEXT STEPS


                  The Comprehensive Waterfront Plan proposes               release of the plan to community boards,
                  a far-reaching vision for the waterfront. The            public officials and agencies, and neighbor-
                  plan lays out a series of recommendations to             hood and civic groups. The ensuing dialogue
                  guide land use change, planning and coor-                will result in plan modifications to further
                  dination, and capital investment far into the            reflect the diverse views and concerns of the
                  future. However, no plan, no matter how                  public. In response to this public discussion,
                  comprehensive, can remain static. The plan               proposed zoning text amendments will be filed
                  must be revisited periodically to keep pace              for public review, individual reach plans will
                  with changing needs and conditions,                      be published, and revision of the Waterfront
                                                                           Revitalization Program under the 197-a pro-
                  Major elements of the plan can be implement-             cess will be initiated.
                  ed through regulatory changes, some of which,
                  such as zoning text reform, will advance rela-           To be successful, the plan must be viewed
                  tively quickly. Where broad integrated plan-             as a process rather than a destination. In
                  ning efforts are proposed, the Department of             fact, many of its recommendations, such as
                  City Planning will work with agencies and the            WRP revision, acquisition of land for parks
                  public on issues that can best be resolved               and natural resource protection, and other
                  through interagency and intergovernmental                capital investment, will demand continuing
                  planning and program coordination. Still other           public involvement to set priorities and
                  strategies requiring capital investment and              refine public policies.
                  maintenance funding will be implemented
                  incrementally within the confines of public              ZONING REFORM
                  budgetary constraints. By providing a frame-
                  work for waterfront improvements, the plan               ZONING TExT AmENDMENTS
                  can guide future public investment and re-
                  source allocation as funding becomes available.          The success of the Comprehensive Waterfront
                                                                           Plan will rest in large part on adoption of the
                  PUBLIC PARTICIPATION                                     proposed zoning text reform, as modified after
                                                                           public review and discussion. The Department
                  Development of the plan has been guided by               will give highest priority to implementing these
                  city, state and federal agencies and officials,          proposals, because of their wide-ranging effect
                  waterfront experts and civic organizations               on shaping waterfront development, creating
                  concerned about the future of the city's water-          public access and encouraging working water-
                  front. A comprehensive and coordinated                   front uses.
                  planning process has involved numerous
                  public meetings and valuable advice from a               Based on public response to the comprehen-
                  citywide waterfront advisory committee and               sive plan, the Department anticipates preparing
                  from community boards and local groups for               zoning text amendments for consideration
                  individual Reach Studies.                                later in the year by the public, community and
                                                                           borough boards, the City Planning Commis-
                  The public-private collaboration will continue           sion and the City Council. The Department
                  this fall when the Department of City Planning           will be responsible for preparing the necessary
                  convenes a series of public meetings following           environmental assessment.


                                                                                                                         185









                 ZONING MAP CHANGES                                        well-suited to certain natural waterfronts, If,
                 In addition to zoning text changes that would             for example, it is determined that additional
                 apply to the entire waterfront, the plan recom-           protection is needed for the Staten Island
                 mends zoning map changes in specific areas                Special Natural Area beyond that already
                 where waterfront redevelopment is desirable.              provided by existing regulations, DCP would
                 Zoning map changes may also include a Wa-                 evaluate the suitability of additional land use
                 terfront Access Plan (WAP) to establish site-             controls and their affect on administrative
                 specific public access plans in selected areas.           resources. DCP will also determine if a "trans-
                                                                           fer of development rights" approach would be
                 Recommended zoning map changes, as modi-                  appropriate for further study and if it could be
                 fied based on public discussion, may be initiat-          accommodated within the Zoning Resolution.
                 ed by public and private land owners, commu-              One of the plan's goals'is to encourage social
                 nity groups, community boards, elected offi-              and economic diversity on the waterfront. The
                 cials, public agencies or by the Department               Inclusionary Housing Program adopted by the
                 itself. Upon adoption of zoning text reform,              city in 1987 provides an as-of-right floor area
                 the Department may initiate recommended                   bonus to developments in exchange for afford-
                 land use changes, but budget constraints would            able housing units. The program is applicable
                 make it impossible to initiate all such changes.          only in RIO districts, all of which are located
                 In some cases, detailed land use studies may be           in Manhattan. The Department is exploring
                 necessary to confirm the appropriateness of               ways to expand the program to other areas of
                 zoning and land use changes. These studies                the city, including the waterfront. The goal of
                 will be integrated into the Department's work             socio-economic diversity may also be advanced
                 program over time. The Comprehensive Wa-                  on city-owned redevelopment sites and in
                 terfront Plan will provide the planning frame-            urban renewal areas by incorporating guide-
                 work and citywide context for review of the               lines for the provision of affordable housing
                 proposals submitted by others. The land use               units in property disposition agreements.
                 and environmental review process for the sites
                 will determine precise densities, uses and
                 infrastructure needs.                                     CITY MAP CHANGES
                 To facilitate area-wide rezonings; from manu-             Recommendations for city map changes in-
                 facturing to residential use, the city is explor-         clude dernapping underwater or unbuilt
                 ing the use of generic environmental impact               streets, mapping or remapping pierhead and
                 statements. It is also exploring options for              bulkhead lines, and mapping public parks or
                 facilitating the disclosure and mitigation of             walkways. These changes may be initiated by
                 potential environmental impacts that may be               the Department, other city agencies with
                 caused by the presence of hazardous materials             jurisdiction over the affected areas, or private
                 on sites formerly used for manufacturing.                 applicants. Like the zoning map changes, the
                                                                           Department will not be able to initiate all
                 ZONING AND LAND USE STUDIES                               proposed map changes because of budget
                 The plan recommends several citywide zoning               constraints. Many of these recommendations
                 studies and local land use studies to further its         can be implemented in conjunction with
                 objectives.                                               projects proposed by public and private appli-
                                                                           cants. However, the Department will give
                 The Zonin Resolution contains special zoning              priority to bulkhead and pierhead line changes
                            9                                              needed to accommodate the zoning text re-
                 districts designed to protect unique natural              form, and to mapping public parkland in
                 features such as mature trees, aquatic habitats           conjunction with land acquisition proposals
                 and hillsides. The Department continues to                initiated by the Department of Parks and
                 explore the appropriateness of this technique             Recreation.
                 for resolving land use conflicts in environmen-
                 tally sensitive areas. This approach might be


                 186









                    WATERFRONT REVITALIZATION                                   The revised policy guidelines would provide
                    PROGRAM REFORM                                              the necessary information to allow for formal
                    Revising and enhancing the city's Waterfront                revision to the city's Waterfront Revitalization
                    Revitalization Program (WRP) will significantly             Program under Section 197-a of the City
                    advance achievement of the plan's goals and                 Charter. They would clearly define the city's
                    policy recommendations. WRP has not been                    waterfront characteristics and priorities and
                    revised since its adoption ten years ago. Dur-              add geographic specificity to the application of
                    ing this time the city and its waterfront have              WRP policies. As recommended in the plan,
                    changed, and experience with application of                 the revisions would advance habitat and
                    WRP policy reviews has highlighted its                      natural resource protection, public access,
                    strengths and weaknesses. Its strengths lie, in             water-dependent uses, and redevelopment in
                    part, in its articulation of broad goals for the            appropriate locations by providing locational
                    waterfront, and in its role in coordinating                 parameters to policies which generally are
                    waterfront development. Its weaknesses lie in               applicable across-the-board. The revisions
                    the lack of geographic specificity in its 56                would incorporate specific guidelines to allow
                    policies, despite the vast body of knowledge                such actions as dredging, waterfront infra-
                    which has been collected on the city's waters               structure repair and redevelopment to proceed
                    and shoreline. To the extent that the WRP                   more expeditiously and in an environmentally
                    better reflects the city's waterfront planning              sound manner. Development of these guide-
                    objectives, it will begin to acquire a more                 lines will require a coordinated effort by DCP
                    realistic and focused interpretation.                       and other city and state regulatory agencies.
                    Revision of the Waterfront Revitalization                   Until WRP is formally revised under 197-a, the
                    Program requires several steps. The first and               Department will be guided by the findings and
                    most important is the preparation of a set of               recommendations of the Comprehensive Water-
                    regional policy guidelines for New York City                front Plan in its WRP consistency reviews.
                    which would more precisely delineate the areas              PUBLIC INVESTMENT
                    of special significance identified in the compre-
                    hensive plan and define the parameters for                  The city is faced with enormous demands
                    reviewing proposals in these areas.                         on its capital resources, from the need to
                                                                                rebuild its infrastructure to the need to
                    The policy guidelines would provide the foun-               address environmental and social problems.
                    dation for development of one of the regional               The Comprehensive Waterfront Plan con-
                    waterfront plans called for throughout the                  tains recommendations which require capi-
                    state by the Governor's Task Force.                         tal and operating expenditures well beyond
                                                                                the city's current ability to fund. However,
                    New York City is a region itself,        with five          the plan is intended as a long-term strategy
                    counties and almost 20 percent of the 3,200                 for guiding future waterfront investment
                    total miles of New York State's coastline. The              and resource allocation over a span of many
                    city is strategically located at the intersection           years. Even in the short-term, the plan can
                    of three other significant regional entities: the           provide a basis for better coordinating
                    Hudson River Estuary, the Long Island Sound                 waterfront     capital    investments, setting
                    and the Atlantic Ocean Bight. Multi-jurisdic-               priorities and identifying alternative funding
                    tional. issues involving adjoining Hudson River             sources and mechanisms.
                    or Long Island regions would be addressed as
                    part of this effort.                                        The four basic components of the plan require
                                                                                somewhat different investment strategies, most
                    Just as New York City was the first municipal-              of which must be implemented by agencies
                    ity in the state to adopt a local WRP, it can               other than DCP from a variety of funding
                    again provide the model for the state's regional            sources.
                    planning efforts.


                                                                                                                                 187









                 THE NATuRAL WATERFRONT                                     tenance, and DOT's program for rehabilitating
                 The natural waterfront has benefitted from                 and building pedestrian bridges over roads and
                 tremendous public investment in water quality              rail lines. DCP will encourage these agencies to
                 improvements over the past 30 years. In addi-              consider and incorporate recommended im-
                 tion to continuation of existing and planned               provements in their capital program when
                 programs for wastewater treatment and CSO                  allocating future resources. As funding be-
                 abatement, the plan recommends additional                  comes available, acquisition and development
                 investment to reduce non-point source pollu-               programs should be targeted to linkages be-
                 tion, especially in the areas identified as having         tween existing public open spaces, and to areas
                 significant natural resources. An investment               that are currently underserved by waterfront
                 strategy relating to non-point pollution, in-              open space and have limited potential for
                 cluding stormwater runoff guidelines and                   waterfront redevelopment.
                 preservation of wetland buffer areas, should be
                 developed jointly by concerned agencies in-                DCP will also help identify alternative funding
                 cluding DEP, DRP, DCA City and State De-                   sources. For example, the recently approved
                 partments of Transportation, the NYS Depart-               Federal Intermodal Surface Transportation
                 ment of Environmental Conservation and the                 Efficiency Act of 1991 (ISTEA) provides a pool
                 NYS Department of State.                                   of federal funds for improvements related to
                                                                            bicycle and pedestrian waterfront trail develop-
                 One of the primary mechanisms for protect-                 ment and pedestrian bridges over highways and
                 ing environmental resources is the acquisi-                rail corridors. To obtain these funds, the De-
                 tion of private property. The plan supports                partment of City Planning, City and State
                 DEP's program to acquire wetlands for                      Departments of Transportation, and City and
                 stormwater management and pollution                        State Departments of Parks and Recreation
                 control in Staten Island and DPR`s acquisi-                should continue to work together in developing
                 tion of critical areas for habitat preservation            a coordinated waterfront open space strategy.
                 as funding becomes available.
                                                                            Creation of public access on privately-owned
                 THE PUBLIC WATERFRONT                                      property requires a monitoring and enforce-
                 New waterfront public access will be achieved,             ment effort to ensure that the components are
                 in large part, through private and pubfic                  built as planned and, once constructed, are
                 redevelopment of the waterfront. Approved                  properly maintained and kept open to the
                 redevelopment projects will incorporate public             public. DCP will work with other agencies to
                 access, and zoning text reform will require                examine alternative management models and
                 public access in future redevelopment.                     to set guidelines for the maintenance of these
                 The plan for the public waterfront identifies a            properties. Certain major redevelopments, such
                 range of capital improvements, including new               as Manhattan West Side Waterfront, Hunter's
                 access to and along the waterfront, develop-               Point in Queens, or Brooklyn Harbor, are
                 ment of a network of bicycle and waterfront                likely to be managed by specific entities estab-
                 trails, acquisition of new parkland and im-                lished for that purpose. Alternatives for other
                 provements to undeveloped parks and other                  waterfront developments might include, for
                 access points. Many of the plan's recommen-                example, the grouping of a number of sites
                 dations parallel those identified by DPR for its           under the jurisdiction of a conservancy or
                 existing parks, or have been endorsed by open              special administrator using pooled contribu-
                 space organizations.                                       tions for maintenance and security. The study
                                                                            of management alternatives would examine the
                 The city's budget constraints have reduced                 feasibility of such a conservancy, including its
                 DPIVs capital program and operating budget                 structure and funding sources, as well as the
                 for park acquisition, improvements and main-               issue of liability.

                 188











                    THE WORIUNG WATERFRONT
                    Perhaps more than any other capital asset, the              protection, including beach nourishment, non-
                    infrastructure that sustains working waterfront             point source pollution, harbor drift and site
                    uses has been neglected and allowed to decay.               planning guidelines for city-owned properties
                    Investments in bulkhead repair, pier stabiliza-             in Special Natural Areas. The plan for the Pub-
                    tion and highway and rail intermodal connec-                lic Waterfront requires a cooperative effort to
                    tions are needed. As called for in the plan for             further public access including maintenance,
                    the working waterfront, DCP will seek to                    management, planning and public education.
                    establish a task force of public agencies with              The Working Waterfront recommends a
                    waterfront jurisdiction to develop a coordinat-             coordinated strategy for improving the port
                    ed capital improvement strategy for port                    infrastructure while establishing harbor-wide
                    facilities. The task force would examine meth-              maintenance standards that provide a balance
                    ods of more effectively leveraging private                  between habitat protection and essential
                    money by extending the terms of municipal                   dredging and operational improvements.
                    leases on waterfront property and encouraging               DCP is committed to the establishment of
                    lessees to undertake capital improvements.                  interagency working groups and the coordina-
                    THE REDEVELOPING WATERFRONT                                 tion of efforts needed to implement these
                    Many potentially developable sites are under-               recommendations. Where interagency task
                    served by vital infrastructure including road-              forces are in place, the Department will work
                    ways, sewer, water and public transportation.               with them to coordinate particular areas of joint
                    These infrastructure needs will be determined               concern. The Department will issue periodic
                    more specifically in the context of the rezoning            status reports as implementation of the Com-
                    process. Public capital investments in infra-               prehensive Waterfront Plan progresses.
                    structure will be coordinated with redevelop-
                    ment projects, where appropriate.
                                                                                Taken together, the strategic actions outlined
                    COORDINATION                                                in this chapter represent a new beginning for
                    Coordination is one of the keys to successful               the city's waterfront. The potential now exists
                    implementation of the Comprehensive Water-                  for concerted public action in response to the
                    front Plan. Public agencies, industries, private            citywide enthusiasm for an active and accessi-
                    land owners, residents, civic organizations and             ble shoreline. There are renewed commitments
                    community and neighborhood groups all have                  for coastal management programs on both the
                    an interest and a role in planning and manag-               federal and state level. The challenge of this
                    ing the waterfront. Many recommendations                    plan is to set a realistic course of action for the
                    cut across jurisdictional boundaries and will               waterfront that strengthens the city's economy,
                    require thoughtful discussion and, perhaps,                 promotes public enjoyment and tourism,
                    new structures for intergovernmental coopera-               provides new housing and preserves our natu-
                    tion. These recommendations include develop-                ral resources.
                    ment of guidelines as part of WRP reform,
                    formulation of a non-point source pollution
                    control program and c.apital investment strate-
                    gies.

                    The plan for the Natural Waterfront calls for
                    new and existing interagency groups to work
                    on a variety of programs for natural resource


                                                                                                                                 189








                    APPENDIX A



                                        SUMMARY OF WATERFRONT REACH STUDIES

                    A major component of this Comprehensive Waterfront Plan is a set of local land use studies prepared
                    for each segment of city's waterfront. These studies both inform and are informed by the policies
                    articulated in the plan. They examine waterfront conditions and land use, providing the necessary
                    building blocks for developing the plans for the Natural, Public, Working and Redeveloping Waterfronts.
                    At the same time, the goals and policies articulated in the Waterfront Plan helped shape the local
                    waterfront studies and their specific recommendations.
                    The city's waterfront was divided into 22 study reaches (Map A. 0), reach being a nautical term for
                    a continuous expanse of water The reaches were designated based on land use, natural features,
                    and physical and political boundaries. In most cases, the depth of the reach study area was limited
                    to blocks fronting on or near the waterfront. However, in most areas where significant land use
                    changes were considered, the studies examined broad upland areas to assess the implications of
                    change on the waterfront. Each reach study includes an examination of existing conditions, an
                    identification of planning and waterfront issues, and recommendations for achieving the goals
                    articulated in the Waterfront Plan. Detailed reports on each of the reach studies will be released over
                    the coming months.
                    This appendix summarizes those reach studies. Each Reach Summary includes a "Gazetteer"providing
                    basic geographic, land use and zoning information, and the study s major recommendations. The
                    recommendations are grouped according to the four major elements of the waterfront plan - Natural,
                    Public, Working and Redeveloping - and keyed to a map of the reach. If major findings or
                    recommendations are not made for a particular element, it has not been included in the summary.




                                                 WATERFRONT PLANNING REACHES


                          1   Manhattan East Side                                   12 West Queens

                          2   Lower Manhattan                                       13  Newtown Creek

                          3   Manhattan Lower West Side                             14  Brooklyn Upper Bay

                          4   Manhattan Upper West Side                             15  Brooklyn Lower Bay

                          5   Northern Manhattan                                    16  Coney Island/Sheepshead Bay

                          6   Bronx/Harlem and Hudson Rivers                        17  Jamaica Bay/Rockaway

                          7   South Bronx                                           18  Staten Island North Shore

                          8   Bronx River                                           19  Staten Island South Shore

                          9   East Bronx                                            20  Arthur Kill South

                           10 Queens North Shore                                    21  Arthur Kill North

                           11 Queens Upper East River                               22  Kill Van Kull










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                                            Reach Study Recommendations                                                                                                                                                                                              Key Map




                                                                                                                                                                                     reach boundaries






                                            Comprehensive Waterfront Plan                                                                                                                            NYC Department of City Planning                                                                                               Reach Studies










                                                      REACH 1: MANHATTAN EAST RIVER

                       Location: Manhattan's East River waterfront from the Brooklyn Bridge to 125th Street, including
                       Roosevelt Island, and Randalls and Ward's islands

                       Upland Neighborhoods: Lower East Side, Midtown East, Upper East Side, East Harlem, Roosevelt
                       Island

                       Shoreline: bulkhead, riorap, and pierlplatform
                       ZoninglLand Use: M-zoned parking and municipal facilities outboard of FDR Drive, high-density
                       (R7-R10) residential and institutional inland. Roosevelt Island is medium-density (R7-2) residential
                       and institutional, and Randalls Island contains parkland and Ward's Island contains parkland and
                       municipal facilities.
                       Waterfront Parkland: Randalls Island Park, Carl Schurz Park, East River Esplanade, East River
                       Park



                                                        SUMMARY OF RECOMMENDATIONS

                       NATURAL WATERFRONT                                              WORKING WATERFRONT

                       Manhattan's East River shorefront does notcontain               The majority of M-zoned land is leased for parking
                       any significant natural areas, but the water itself is          or non-water-dependent municipal uses. Ferry
                       an important fish migration route.                              service for recreation and commuting to serve the
                                                                                       adjacent high-density residential communities
                       PUBLIC WATERFRONT                                               should be explored.
                       Nearly the entire waterfront is in public ownership,            4   Explore opportunities to expand or reestablish
                       creating opportunities to complete a continuous                     terry service. Potential sites include 34th, 60th,
                       waterfront esplanade along most of the reach.                       63rd, and 90th streets.
                       Gaps in the esplanade are from the Brooklyn
                       Bridge to East River Park, 18th to 23rd streets,                5   Where feasible, lease city-owned property for
                       34th to 36th streets, 38th to 41st streets, and 60th                water-dependent and water-enhancing uses.
                       to 62nd streets.

                       1   RFP's for development of city-owned parcels                 REDEVELOPING WATERFRONT
                           should require an esplanade component. As
                           leases expire, incorporate esplanade require-               Three vacant sites provide opportunities for rede-
                           ments into leases. Where alternative uses can               velopment for public uses.
                           be identified, phase out leases to non-water-
                           dependent uses that are incompatible with                   6   Develop a site between Catherine Street and
                           public access.                                                  Market Street for a barge restaurant.
                       2   Construct new or rehabilitated esplanade and                7   Redevelop the Washburn Wire Building, east of
                           access points   in conjunction with redevelop-                  the FDR Drive at 117th Street, for TV or film
                           ment of waterfront municipal facilities such as                 studios. Explore reuse of pier for public access.
                           the FDR Drive or the seawall.                               8   Reuse the 60th Street Marine Transfer Station
                       3   Consolidate maintenance of the entire espla-                    building. The two-story structure could accom-
                           nade under the jurisdiction of a single manage-                 modate an open-air pavilion on the upper level,
                           ment entity.                                                    and a restaurant or other publicly oriented use
                                                                                           on the lower level.










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                                                                                13                                                          Brooklyn
                                                                        A



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                                      ...........................


                        East Side                             Reach 1           Recommendations
                                                                                                                                                                                              The
                                                                                                                                                                                              Bronx


                                                                                                                                                                                                     ...........
                                                                                                                                                                                                     .............
                                      significant coastal habitat                          - - - -
                                                                                                        upland connection

                                      existing continuous or general access
                                                                                                        approved redevelopment project                                                               Queens
                                      proposed continuous or general access                      [3     proposed redevelopment area                                                  Brookly
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                                      new or improved point access or overpass                   20     recommendation key number in text
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                                                                                                                                                                                                     ...................-


                       Comprehensive Waterfront Plan                                                    NYC Department of City Planning                                              Reach Studies










                                                           REACH 2: LOWER MANHATTAN

                        Location: southern tip of Manhattan, from the Brooklyn Bridge on the East River to Chambers Street
                        on the Hudson, including Governors, Ellis, and Liberty Islands
                        Upland Neighborhoods: South Street Seaport, Financial District, Battery Park City
                        Shoreline: entirely bulkheaded, with numerous piers
                        ZoninglLand Use: mid- to high-density commercial and residential in Battery Park City; central
                        business district(C5-C6); South Street Seaport Special District
                        Waterfront Parkland: Battery Park, Battery Park City Esplanade


                                                         SUMMARY OF RECOMMENDATIONS

                        NATURAL WATERFRONT                                               WORKING WATERFRONT

                        The waterfront does not contain any significant                  Ferries from other boroughs, New Jersey, and
                        natural areas. The Hudson River is an important                  Governors, Ellis and Liberty islands are a
                        fish habitat.                                                    significant water-dependent use.

                        1  Support designation of the Lower Hudson                         8  Reconstruct the fire-damaged Staten Island
                           River Significant Coastal Fish and Wildlife                        Ferry Terminal with retail, restaurants, and
                           Habitat.                                                           improved pedestrian access.

                                                                                           9  Pursue additional ferry routes from the Battery
                        PUBLIC WATERFRONT                                                     Maritime Building, Staten Island Ferry Terminal,
                                                                                              South Street Seaport and the East River Docks.
                        Ellis and Liberty Islands, Battery Park, Battery Park
                        City, and the South Street Seaport are regional
                        recreational and tourist attractions. Opportunities              REDEVELOPING WATERFRONT
                        for improved access to and links between these
                        attractions will be pursued.                                     DCP is preparing a comprehensive plan for Lower
                                                                                         Manhattan which will present a land use and
                        2  Create public access rights-of-way to complete                development strategy for waterfront sites. The reach
                           a continuous esplanade by filling these gaps:                 also includes the northern portion of Battery Park
                           from Pier 13 to north of the Seaport, between                 City, which will provide residential, commercial, and
                           Battery Park City and Battery Park, and at the                institutional development.
                           Battery Maritime Building, S.I. Ferry Terminal,
                           and Coast Guard sites.                                        10   Pier A will be redeveloped for a restaurant and
                                                                                              visitors' center that should provide a link
                        3  Improve esplanade between Battery Maritime                         between Battery Park and Battery Park City.
                           Building and Pier 13, so it is consistent with
                           the design of the upgraded portions of the East               11   The Plan for Lower Manhattan will establish the
                           River Esplanade.                                                   framework for long term redevelopment within
                                                                                              the reach.
                        4  Create additional access to the waterfront
                           along West and South streets in accordance
                           with DCP's forthcoming Plan for Lower
                           Manhattan.

                        5  Provide interim public uses for piers 9 - 14 as
                           recommended in the East River Docks Study.

                        6  Upgrade existing access points with signage
                           and crosswalk treatment, and rationalize traffic
                           patterns.

                        7  Relocate or reconfigure parking under FDR
                           Drive to improve public access.









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                                                                                                                                                                                                                                                                                                                                                                                            Comprehensive Waterfront Plan / NYC Department of City Planning / Reach Studies










                                                REACH 3: MANHATTAN LOWER WEST SIDE

                       Location: Hudson River from Chambers Street to 59th Street

                       Upland Neighborhoods: Tribeca, SoHo, West Village, Chelsea, Clinton
                       Shoreline: bulkhead and piers
                       ZoninglLand Use: M 1 to M3 industrial zoning on the waterfront, except for some C6 and C 1- 7 areas
                       in the West Village. Upland residential and commercial districts are medium-density, R6 to R8. The
                       Lower Manhattan Mixed-Use District permits limited residential conversion and construction in
                       manufacturing and commercial zones.

                       Waterfront Parkland: none



                                                        SUMMARY OF RECOMMENDATIONS

                       NATURAL WATERFRONT                                               REDEVELOPING WATERFRONT

                       The Hudson River is an important fish habitat. The               4    New development opportunities have been
                       shorefront itself is not a natural resource.                          identified by the West Side Waterfront Panel at
                                                                                             Pier 40, the Chelsea Piers, Pier 76 opposite the
                       1   Support designation of the Lower            Hudson                Convention Center(Hudson River Center), and
                           River Significant Coastal Fish and          Wildlife              the piers at the foot of 42nd Street.
                           Habitat.
                                                                                        5    Explore     redevelopment       opportunities      in
                                                                                             conjunction with enhanced passenger ship
                       PUBLIC WATERFRONT                                                     operations at the Passenger Ship Terminal

                       2   The West Side Waterfront Panel (WSWP) has
                           proposed development of a 270-acre Hudson
                           River Waterfront Park extending the full length
                           of the reach. DCP is a member of the panel
                           and is participating in the planning for the park,
                           which would include a continuous waterfront
                           esplanade, protected open water areas, and
                           public piers.



                       WORKING WATERFRONT

                       The working waterfront consists of a number of
                       municipal uses such as waste transfer and Con
                       Edison facilities, excursion vessels, ferry piers and
                       the Passenger Ship Terminal, which accommodates
                       ocean liners. The Route 9A reconstruction by State
                       DOT will improve vehicular access on the West Side.

                       3   Explore feasibility of Staten Island-Midtown ferry
                           service.









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                                             Lower West Side                                                                                                              Reach 3 Recommendations
                                                                                                                                                                                                                                                                                                                                                                                      The
                                                                                                                                                                                                                                                                                                                                                                                      Bronx
                                                                                                                                                                                                                                                                                                                                                                                      ... .......

                                                                                                                                                                                                                                                                                                                                                                                      . ...............
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                                                                    significant coastal habitat                                                                                            significant maritime                         industrial area

                                             KaM                    existing continuous or general access                                                                                                                                                                                                                                                                             Oueens
                                                                                                                                                                                           approved redevelopment project

                                                                                                                                                                                                                                                                                                                                                                                      . ... ......
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                                                           I        proposed continuous or general access                                                                 (3               proposed redevelopment area                                                                                                                                                                rookivn
                                                                                                                                                                                                                                                                                                                                                                                      Brooki n


                                                                                                                                                                                                                                                                                                                                                                                      Slaten
                                                                    upland extent of park                                                                                                  other site specific recommendation
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                                               --C>-                new or improved point access or node                                                                  20               recommendation key number in text
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                                             Comprehensive Waterfront Plan                                                                                                             NYC Department of City Planning                                                                                                                                                                Reach Studies










                                                REACH 4: MANHATTAN UPPER WEST SIDE

                       Location: Hudson River from 59th Street to 125th Street

                       Upland Neighborhoods: Upper West Side, Momingside Heights
                       Shoreline: riorap and bulkhead
                       ZonlnglLand Use: North of 72nd Street, Riverside Park and the Henry Hudson Parkway on the
                       waterfront, and high-density (R8 - R 10) residential upland. South of 72nd Street the 76-acre Penn
                       Yards site is vacant, with a C3 zone along the waterfront and R8, R10, and C4-7 upland.

                       Waterfront Parkland: Riverside Park



                                                       SUMMARY OF RECOMMENDATIONS

                       NATURAL WATERFRONT                                             WORKING WATERFRONT

                       The shoreline does not contain any significant                 The only active maritime use in the reach is the 79th
                       natural resources. The waters of the Hudson River              Street Marina.
                       are a significant fish habitat.                                4    Support DPR plans for improvements to the
                       1  Support designation of the Lower Hudson                          79th Street Marina, including public access and
                          River Significant Coastal Fish and Wildlife                      transient docks.
                          Habitat.


                                                                                      REDEVELOPING WATERFRONT
                       PUBLIC WATERFRONT
                                                                                      The proposed Riverside South development on the
                       The development of the Penn Yards site (proposed               Penn Yards site would reactivate a vacant site for
                       Riverside South) presents an opportunity for a                 recreational, residential, and commercial use.
                       public waterfront park and a link between Riverside            Planning principles for the site, developed with active
                       Park to the North and the proposed Hudson River                public participation, include:
                       Waterfront Park to the south. Improvements to
                       Riverside Park would enhance its value as                      5    Creation of a new, 23-acre public waterfront
                       waterfront public space.                                            park which would connect with Riverside Park
                                                                                           and the Hudson River Park;
                       2  Developa linear connection from Riverside Park
                          to the proposed Hudson River Waterfront Park                6    A future inboard replacement of the Miller
                          through the 23-acre public park component of                     Highway, so that the new public park could be
                          the proposed Riverside South development.                        located directly on the water's edge.
                       3  Support DPR's master plan for Riverside Park                7    Development to be harmonious with the scale
                          which includes improving the walkways along                      and character of adjacent areas of the Upper
                          the shore, removing pedestrian -ve h icular con-                 West Side.
                          flicts and providing public access at the 79th
                          Street Marina.









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                                                                                                                                                                                                                                                                                                           ............                                                    ..............
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                                                                     ..........
                                                                     ..........


                                                                                                                X, X
                                                                     .............              ................              -
                                                                     ............



                                                                                                                                                                                                                                                                   .............
                                                                                             ..............
                                                                     ..........   .....................
                                                                                  ......................

                                                                                                                                                                                                                                                                                                           ..........
                                                                                                                                                                                                                                                                   ................
                                                                                                                                                                                                                                                                   ................ ....
                                                                                                                              I MILE
                                                                                                                                                                                                                                                                   .................  .................
                                                                                                                                                                                                                                                                   .................
                                                                                                                                                                                                                                                                   .................


                                            Upper West Side                                                                          Reach 4 Recommendations
                                                                                                                                                                                                                                                                                                                                                                           'rho



                                                                                                                                                                                                                                                                                                                                                                           ............ .
                                                                                                                                                                                                                                                                                                                                                                           ................
                                                                                                                                                                                      significant maritime                      industrial area
                                                                     significant coastal habitat
                                                                     existing continuous or general access                                                                            approved redevelopment project                                                                                                                                                       Gueens
                                                                                                                                                                                                                                                                                                           ... .......
                                                                     proposed continuous or general access                                                        [3                  proposed redevelopment area
                                                                                                                                                                                                                                                                                                                                                                           Brooklyn
                                                                     upland extent of park                                                                                            other site specific recommendation                                                                                   Staten
                                            .............                                                                                                                                                                                                                                                                                                                  . .....
                                            .............                                                                                                                                                                                                                                                  Island
                                                                                                                                                                                                                                                                                                                                                                           ............
                                                                                                                                                                                                                                                                                                                                                                           .....................
                                                                     new or improved point access or overpass                                                       20                recommendation key number in text                                                                                                                                                    ...... ...........
                                                                                                                                                                                                                                                                                                                                                                           . ..............................
                                                                                                                                                                                                                                                                                                           ......                                                          . .................... ...........
                                                                                                                                                                                                                                                                                                           ...........                                                     ........................... I .
                                                                                                                                                                                                                                                                                                           .................                                               -11 ..................................
                                                                                                                                                                                                                                                                                                                                                                           ...................
                                                                                                                                                                                                                                                                                                           ...... ..............                                           ..... ..........................-
                                                                                                                                                                                                                                                                                                                                                                           ........... ...
                                                                                                                                                                                                                                                                                                           . .............. ...........................................
                                                                                                                                                                                                                                                                                                           ....................                                            1-11-I.- ...............I.........
                                                                                                                                                                                                                                                                                                           .............................................................
                                                                                                                                                                                                                                                                                                           .........                                                       11 ..... .. ......................I......
                                                                                                                                                                                                                                                                                                           ....................                                            -1-11 .............................
                                                                                                                                                                                                                                                                                                           ........................ ...                                    1.1-1 .............. .... ...
                                                                                                                                                                                                                                                                                                           ............................ .. .........                       ......................
                                                                                                                                                                                                                                                                                                                                                                           ..................I.......................
                                                                                                                                                                                                                                                                                                                                                                           ............ ..................................
                                                                                                                                                                                                                                                                                                               . .........                                                 ... - I......................
                                                                                                                                                                                                                                                                                                           ..................                                              I.I.- . .. .........................


                                            Comprehensive Waterfront Plan                                                                                                       NYC Department of City Planning / Reach Studies










                                                         REACH 5: NORTHERN MANHATTAN

                        Location: Harlem and Hudson riverfronts north of 125th Street

                        Upland Neighborhoods: Manhattanville, Hamilton Heights, Washington Heights, Inwood, Harlem,
                        East Harlem

                        Shoreline: mostly riprap and bulkhead, some natural shoreline at northern end
                        ZoninglLand Use: most of the shoreline is parkland, separated from the upland by highways and
                        railroad lines. Industrial areas are located between 125th and 145th streets on the Hudson River,
                        the Sherman Creek area north of Academy Street on the Harlem River, and around the eastern
                        terminus of 125th Street. A small C3 area is mapped at Sherman Creek, and Columbia University's
                        Baker Field is zoned R7-2. Upland communities are high-density residential, R8 and R7-2.
                        Waterfront Parkland: Riverside Park, Riverbank State Park, Fort Washington Park, Inwood Hill
                        Park, Highbridge Park, Harlem River park strip between 125th Street and 145th Street


                                                          SUMMARY OF RECOMMENDATIONS

                        NATURAL WATERFRONT                                                   7  Develop landing sites for waterborne access
                        The reach contains a variety of valuable natural                        along the Hudson at 125th Street and Dyckman
                        resources, including wetlands, the last native forest                   Street.
                        in Manhattan, and significant fish and wildlife                     8   Rehabilitate existing access point across the
                        habitats.                                                               Henry Hudson Parkway at 151st Street
                        1   Support designation of the Lower Hudson River                   9   Develop the Dyckman Street Marina planned as
                            Significant Fish and Wildlife Habitat, which                        a concession in Fort Washington/Inwood Hill
                            includes Spuyten Duyvil Creek and the Inwood                        Parks.
                            Hill Park water's edge.
                        2   Support development of the Urban Ecology                       10   Develop street-end access, compatible with
                            Center on Crescent Island in Inwood Hill Park.                      industrial uses, in the Sherman Creek area of
                                                                                                the Harlem River waterfront.
                        3   City and State DOT and Triborough Bridge and                   11   Explore the potential for a rowing center at
                            Tunnel Authority should improve drainage from                       Sherman Creek, a use that is compatible with
                            Henry Hudson Parkway to protect forested                            wetlands and shallow water depths, but would
                            slopes from erosion,                                                require limited dredging.
                        4   Upgrade Sherman Creek wetlands through                         12   Extend the East River Esplanade north of 125th
                            interim cleanup. Require that a portion of the                      Street to 145th Street and develop the proposed
                            natural edge be restored and maintained as a                        Harlem Beach Park.
                            component of future development.


                        PUBLIC WATERFRONT                                                  REDEVELOPING WATERFRONT
                        Most of the reach's waterfront is parkland, but grade              The West 125th Street and Sherman Creek areas
                        changes, highways and rail lines limit access. The                 offer opportunities for a variety of new waterfront
                        Hudson River waterfront offers the potential for                   uses.
                        continuous    linear   access.     Links    to    upland           13   The development of the proposed Harlem on
                        communities can also be enhanced.                                       the Hudson project at 125th Street should
                        5   Develop a continuous pedestrian/bicycle path                        include a public pier and waterfront public
                            along the Hudson River by closing gaps                              access that provides a linear connection joining
                            between: 125th and 145th streets; 155th and                         the southern and northern sections of Riverside
                            158th streets; and 181st and 187th streets.                         Park.
                        6   Develop a fishing/recreation pier at the foot of               14   Rezone the area north of Sherman Creek and
                            West 125th Street.                                                  south of 207th Street to accommodate rec-
                                                                                                reational, residential and/or commercial uses.










                                                                                                                                                                  ..........
                                                                                                                                                             ................   ......
                                                                                                                                                                                .... ....     .............                                                                   2,3
                                                                                                                                                                   .. ....      .......
                                     MAP A.5                                                                                                                                                                                                                                  Inwood
                                                                                                                                      7,9
                                                                                                                                                                                                                                                                              Hill Park
                                                                                                                                Dyckma
                                                                                                                                                n
                                                                                                                                                                                ... ... ...... ... ......
                                                                                                                    3           St. Marina
                                                                                                                                                                                                                                                                              0
                                                                                                                                                                                              . .................  [email protected]
                                                                                                        Henry Hudson                                                . ...
                                                                                                             Parkway                                                                                                                                                          X


                                                                                                                                                                                                                        101. 4
                                                                                                                                     .......... . .
                                                                                                        5
                                                                                                                                                  ..........
                                                                                             Gap: 181-187 Sts.

                                                                                                                                                                      ... .......
                                                            New
                                                                                                                                                                                                                        .4
                                               Jersey
                                                                                                                           ............
                                                                                                                                                                       4Q@

                                                                                                                                                                                              ......                    Sherman
                                                                                                                                                                                                                        Creek
                                                                                                                      ...........
                                                                                                                                                                                rd
                                                                                                                                                                                                                        4,10,11,14
                                                                          5
                                                            Gap: 155-158 St
                                                                                             S.
                                                                                                                                             . .... X.:X
                                                                                                                      .......... .                                              ... ...
                                                                                                                                                       cv)
                                                                                                                                                                                              Ar
                                                                                                          ....... ...
                                                            Lower Hudson
                                                                                                      .... ...... .
                                                                                                                 ....... . . . . .  . . ....
                                                                                                     .... ........
                                                                                                         . ........... .......

                                                                                                                                           xx
                                                                                                                                                 151 St.
                                                                                                                                                      8                                                                                                                       The
                                                            Harlem on the
                                                                                             State@                                                                                                                                                                           Bronx
                                          Hudson            W. 1 25th St.                                                                         5
                                                                                                                                               Gap:
                                                            6,7,13
                                                                                             ...........
                                                                                             ..........
                                                                                                                                            125-145                             .......       er-
                                                                                    ................             ...                                                            .....
                                                                                                                     ...                        Sts.
                                                                                                                                    Nq@

                                                                               ..............


                                                                                     ........... ... ..... ...
                                                                                             .. ...... .......
                                                                                                                                                                                1W.81XIM
                                                                           ...............
                                                                         .............. ..        .......
                                                                          ................
                                                                          .................
                                                                         .......... ..       ...
                                                                      ...............
                                                                      ........... ............ .



                                                                   .............
                                                                                                                                                125 -145 Sts.
                                                                                                                                                                                                                                                                              ..................
                                                            . . ....... .                                                                                                                                                                                                     . . . . . . . .........
                                                            ... ....... ..........                                                                                                                                                                                            .......
                                                            ..........                                                                                                                                                                                                        ..................................
                                                                   0............ ..............                                                Harlem Beach
                                                            .......... . .. ... .....                                                                                                                                                                                         ......
                                                            .....                                                                                                                                                                                                             ........
                                                                   z
                                                                                                                                                                                                                                                                              .............. ............
                                                                                                                                                                                                                                                                              ...................................
                                                                                             ...                                                                                              ........
                                                                                                                                                                                                                                                                              .......... .......
                                                                                                                                                                                                                                                                              ......... ..... ......................
                                                                                                                                                                                                                                                                              ..........-.......-..........
                                                                                                                                                          12
                                                                                                                                                                                                                                                                              .................. ...................
                                                                                                                                                                                                                                                                              ..................................
                                                            ......... ...X                                                                                                                    ......                                                                          .......... .............. .... ......I........
                                                                                                                                                                                                                                                                              ..............................................
                                                                         4
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                                                                                                                                                                                ......        ............                                                                    ......
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                                                                                                                                                                                ..........    ............              ............                                          .................................... .........
                                                                                                                                                                                ... .....     ...........
                                                                              1 MILE
                                                                                                                                                                                                                                                                              .... .......
                                                                                                                                                                                                                                                                              ... ..........
                                                                                                                                                                                                                                                                              .................
                                                                                                                                                                                ....                       . ............... .                                                ......


                                 Northern Manhattan                                                         Reach 5 Recommendations



                                                                                                                                                                                                                                                                              ... .... ....
                                                            significant coastal habitat                              - - - -            upland connection

                                                            existing continuous or general access
                                                                                                                                        approved redevelopment project                                                                                                        Queens
                                                                                                                                                                                                                        ...                                                   .......
                                                                                                                                                                                                                        .... ..........
                                                                                                                                                                                                                        ... .........
                                                                                                                                                                                                                        ...                                                   ........
                                                                                                                                                                                                                        ... .. ......
                                                                                                                                                                                                                        ... ... ......
                                                                                                                                                                                                                        .......                                               .......
                                                                                                                                                                                                                        ...                                                   .......
                                                            proposed continuous or general access                        13             proposed redevelopment area                                                                                                           .... ......
                                                                                                                                                                                                                                                                              Brooklyn
                                                                                      ...........



                                                                                                  ......... . ..


































                                                            upland extent of park                                                                                                                                       Staten
                                                                                                                                        other site specific recommendation                                              Island
                                 .............

                                                            new or improved point access or overpass                      20            recommendation key number in text                                                                                                     ....................
                                                                                                                                                                                                                                                                              ...................
                                                                                                                                                                                                                                                                              ... ......... ... -.1-1.1 11
                                                                                                                                                                                                                                                                              .................................... .
                                                                                                                                                                                                                                                                              ....... ...... ............ 1.11 - -
                                                                                                                                                                                                                                                                              ...... .... ......... ...... .... -1 ..... 11
                                                                                                                                                                                                                                                                              .......... 111,11.1, .............. .....-
                                                                                                                                                                                                                                                                              ......... ..... ..........................
                                                                                                                                                                                                                                                                              . ..........
                                                                                                                                                                                                                        ............
                                                                                                                                                                                                                        ...................                                   ............
                                                                                                                                                                                                                        ........                                              I........ ................................
                                                                                                                                                                                                                        .......................
                                                                                                                                                                                                                                                                              . ...........


                                 Comprehensive Waterfront Plan                                                                      NYC Department of City Planning                                                                                                           Reach Studies










                                               REACH 6: BRONX HARLEM & HUDSON RIVERS

                        Location: Hudson and Harlem Rivers from Yonkers city line to Macombs Dam Bridge
                        Upland Neighborhoods: Riverdale, Spuyten Duyvil, Kingsbridge, Marble Hill, University Heights,
                        Morris Heights, Highbridge
                        Shoreline: riorap and bulkhead
                        ZoninglLand Use:parklandand low-density residential and institutional in Riverdale(R1 and R4, with
                        Special Natural Area District NA-2); medium-density (R5-R6) residential in Spuyten Duyvil and
                        Marble Hill, light manufacturing, parking, railyards on the Harlem River shoreline.
                        Rail lines andlor highways line most of the reach's waterfront.
                        Waterfront Parkland: Riverdale Park, Spuyten Duyvil Shorefront Park, Roberto Clemente State Park


                                                           SUMMARY OF RECOMMENDATIONS

                        NATURAL WATERFRONT                                                 WORKING WATERFRONT

                        The waters of the Hudson       River are an important              The working waterfront component of this reach,
                        fish habitat.                                                      located on the Harlem River, includes support
                                                                                           facilities for Columbia Presbyterian Hospital, service,
                        1   Support designation of the Lower Hudson River                  storage, commercial, and railroad uses, as well as
                            Significant Coastal Fish and Wildlife Habitat,                 some vacant parcels.
                            which includes the mouth of the Harlem River.
                                                                                            9 Explore the feasibility of a park-and-ride ferry
                        PUBLIC WATERFRONT                                                       operation at the Yankee Stadium parking site.
                        Access to the water is blocked by rail tracks                      REDEVELOPING WATERFRONT
                        throughout the reach, as well as by a highway along
                        the Harlem River. New links to waterfront parcels                  Vacant and underutilized sites along the reach
                        would provide increased opportunities for recrea-                  present opportunities for residential/public access
                        tional use.                                                        redevelopment.
                        2   Develop a Harlem River waterfront esplanade                    10   Develop site planning guidelines, including
                            from Highbridge to Broadway Bridge.                                 appropriate densities, for residential and open
                                                                                                space development of the six-acre city-owned
                        3   Create a trail from the proposed Harlem River                       Spuyten Duyvil Village site, currently zoned R6,
                            esplanade in Marble Hill to Spuyten Duyvil,
                            including point access to the water's edge.                    11   Develop the waterfront parcel used for Yankee
                                                                                                Stadium parking for multi-level mixed use,
                        4   Provide     additional    access     from      upland               including parking and recreational use.
                            communities and to proposed esplanade.
                                                                                           12   Develop residential use on platform over the
                        5   Provide route for the Hudson River Greenway                         Highbridge Rail Yards and Metro North line.
                            and Bronx Boroughwide Bicycle Route System.
                                                                                           13   Rezone city-owned and adjacent parcels north
                        6   Acquire the Penn Central Triangle at the mouth                      of University Heights Bridge from M3-1 and Ml-
                            of the Harlem River, and incorporate it into the                    1 to R7.
                            adjoining Spuyten Duyvil Shorefront Park.
                            Pedestrian access could be provided by                         14   Rezone parcels between Broadway and the
                            extending the Spuyten Duyvil Metro-North                            Columbia Presbyterian industrial site on 225th
                            Station's overpass.                                                 Street from M1-1 to R6.

                        7   Acquire privately-owned parcels south of 193rd
                            Street for development as a waterfront park.

                        8   Expand and develop the mapped park south of
                            River Park Towers.









                                                                                                                                 ...... .........


                                                                                                                                 ..........
                                                                                                                                 .............
                                     MAP A.6
                                                                                                                                                          ..........
                                                                                                                                                          ..........

                                                                                                                                                          ...........
                                                                                                                                                          ..........
                                                                                                                                                          ...........
                                                                                                                                                                                      _0                                                                        ...
                                                                                                                                                          ..........


                                                                                                       Lower
                                                                                                       Hudson
                                                                                                                                                                     A
                                                                                                                                                                                                                                                                X.
                                                                                                                                                                                      5
                                                                                                                                                 . ..... . ....
                                                                                                                                                 ......... ....             Bronx bike
                                                                                                                                                                        route &       Hudson
                                                                                                                                                                        River Greenway
                                                                                                                                                          *06
                                                                                                                                                                 4




                                                                                                              ... ..                              .. ...
                                                                                                       6
                                                                                               Penn                                                                             Spuyten Duyvil Village 10
                                                                                                       ..............
                                                                                               Trian
                                                                                                          .............                                        4
                                                                                                       ...................
                                                                                                       ..................
                                                                                                       ...............
                                                                                                       ....................
                                                                                                       .................
                                                                                                       .. ...............
                                                                                                                                                          X
                                                                                                       .......................                                                  ere 225th St. 14
                                                                                               .......................
                                                                                                                                                                  ... it
                                                                                                          ...........
                                                                                               ........................... ...........                             .......
                                                                                               ......................................                               .......

                                                                                                                                                                                (D
                                                                                                                                    Marble Hill -
                                                                                                            ......... . .                                         .......
                                                                                               ...............................                                    .......
                                                                                                                                 Spuyten         Du                                         193rd St. 7
                                                                                                                                                          YVI
                                                                                                                                                                                $r
                                                                                        ...............
                                                                                        ...................................
                                                                                        ... .................... ..... ....
                                                                                                                                          trai                               40                                                   ...

                                                                                                              ..........
                                                                                   ......      .............
                                                                                               .....................
                                                                                                                                            3
                                                                                                                                                          .......                                                                 ...
                                                                                   ......      . . ......                                                                             University Hts.
                                                                                                       ...................
                                                                               ..........
                                                                                                                                                                                      Bridge site 13
                                                                               ............                                                        ......
                                                                                                                                 Roberto
                                                                               .............                                                                                    Fordham
                                                                                                                                 Clemente                           4
                                                                               .................
                                                                               ................
                                                                                                                                                               4,               Landing
                                                                                                                                 State Park,::':""'.
                                                                               .................
                                                                               ....................... .......
                                                                               ...............................

                                                                                                                                                                                                                                                      The
                                                                               . ...... ...
                                                                                        4                                                                         park south of                                                                       Bronx
                                                                               ..........      .......

                                                                                        . . ........
                                                                               .....           .....
                                                              ... .. ......
                                                                                                                                                          4
                                                                                                                                                                  River Park Towers 8
                                                                                        .......                                                                                                                                   ...

                                                       .....................   ................
                                                           ................................                                      ... ..


                                                   ..............................................
                                                ................
                                                .............-   .............. .....                                            ...
                                                 ..........................    I...........
                                                ...........  .........................                                                                                                                                            ...
                                                                                                                                 :: @ *  `@@    4
                                                             ........................
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                                                 ..........    .......
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                                          .................                                                                      ......                                                                                           ...
                                          .........................  ... ........-                                               .......
                                                        ......... . .
                                                ...........
                                         .......................................                                                                                                                                                  ...
                                                                    ........                                                                                                                                                      ...
                                                             ..........                                                                           Highbridge Yards 12
                                      ...................... ................                                                    ....                                                                                 ...
                                      .......................  ...............                                                   ........                                                                             ...
                                      . ... .............           ......
                                         ...................
                                                                                                                                               4


                                                                                                                                                    Yankee Stadium
                                                    . .. .........                                                                                                                                              ....
                                  ...................  ............                                                                                                                                             ...
                                  .....................................
                                  ................. . ... ...
                                                                                                                                                    parking lot 9, 11
                                              ................
                                  .................................
                                                                                                                                    (D
                                  ...............................
                                   .......................

                                        ...................                                                                                                                                                                       ......
                                  ...............                                                                                .......                                                                                          .......
                                  ........................

                                  ..............I........
                                  .....................
                                  .....................
                                                                                                                                                                                                                                                      .............
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                                                                                                                                 ........                                                                                                             .................
                                                                               1 MILE
                                                                                                                                                                                                                                                      .................
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                                  ...                                                                                            ........                                                                                                             ..................
                                                                                                                                 ........                                                                                                             ..................
                                                                                                                                 ........                                                                                                             ............. ....
                                        .... ..                                                                                                                                                                                                       .................


                                  Bronx Harlem Hudson                                                         Reach 6 Recommendations
                                                                                                                                                                                                                                                      ...             ..... .. ..
                                                                                                                                                                                                                                                      :X. The
                                                                                                                                                                                                                                                      Bronx


                                                                                                                                                                                                                                                      . . ...................
                                                 significant coastal habitat                                        - - - -              upland connection or bikeway

                                  MMkW,          existing continuous or general access
                                                                                                                                         approved redevelopment project                                                                                         olueens

                                                                                                                                                                                                                      ... ... .......
                                                 proposed continuous or general access                                           [3      proposed redevelopment area                                                                                  Brooklyn
                                                                                               A
                                                                                               f


























                                                                                                                                                                                                                      S,..n
                                  .............  upland extent of park                                                                   other site specific recommendation
                                                                                                                                                                                                                      Island
                                                                                                                                                                                                                                  .......             ............. ..........
                                                                                                                                                                                                                                  ...........                   1. 1. 1....... ....
                                                                                                                                                                                                                                  ............                  ........... ... ..
                                                                                                                                                                                                                                                                .........  ............
                                                                                                                                                                                                                                  ...............
                                                 new or improved point access or overpass                                        20      recommendation key number in text                                                                            ... ...
                                                                                                                                                                                                                                                                .............
                                                                                                                                                                                                                                  ..................  ........  ............ .....
                                                                                                                                                                                                                                  . ............................I......... .. . ......
                                                                                                                                                                                                                                  ....... ... I. I    .................................. ...
                                                                                                                                                                                                                                  .........................           .........
                                                                                                                                                                                                                      ......................
                                                                                                                                                                                                                                                      ............I....... ..............
                                                                                                                                                                                                                    ............... ........          ............ -.1-1-111-1.1
                                                                                                                                                                                                                 ............................ ........-......   ......
                                                                                                                                                                                                             ...............................


                                  Comprehensive Waterfront Plan                                                                     NYC Department of City Planning / Reach Studies









                                                              REACH 7: SOUTH BRONX

                       Location: Harlem River, Bronx Kill, East River, and Bronx River from the Bronx Terminal Market to
                       the Bruckner Boulevard Bridge
                       Upland Communities: Mott Haven, Port Morris, Hunts Point
                       Shore Conditions: bulkhead and riorap
                       ZoninglLand Use: M3, M2, and M1 zoned manufacturing areas, including warehousing and
                       distribution uses and private and municipal waste handling facilities. Hunts Point has a small upland
                       R6 residential area. North Brother Island is currently uninhabited.
                       Waterfront Parkland: no formal parks


                                                        SUMMARY OF RECOMMENDATIONS

                       NATURAL WATERFRONT                                              WORKING WATERFRONT

                       As an industrial area, this reach offers limited                Offering access to regional highways and freight
                       opportunities for improving       natural waterfront            railways, the South Bronx waterfront is devoted to
                       conditions. North Brother Island and South Brother              working uses, some of which are water-dependent.
                       Island are migratory bird habitats.                             Both private and publicly owned vacant sites are
                                                                                       available for development. Access improvements will
                       1  Support designation of North and South Brother               be needed. The Oak Point Rail Link providing access
                          islands as Significant Coastal Fish and Wildlife             to a proposed Trailer on Flat Car facility at the
                          Habitats, provided that future municipal reuse of            Harlem River Yard is expected to be completed by
                          North Brother Island is not precluded.                       1995. A sludge processing facility has been
                                                                                       proposed for this reach.
                       PUBLIC WATERFRONT                                               6    Designate the South Bronx as a Significant
                                                                                            Maritime and Industrial Area.
                       There are opportunities   for limited public access,
                       compatible with the industrial waterfront.                      7    Improve vehicular access to the Hunts Point
                                                                                            Market area by constructing the Sheridan/
                       2  Develop street end public access compatible                       Bruckner Expressway interchange.
                          with surrounding industrial uses at Lincoln
                          Avenue, Tiffany Street, and Lafayette Avenue.                8    Provide rail access between the Harlem River
                          The pier at Tiffany Street should be restored for                 Yard, Oak Point Yard, the Hunts Point Market
                          recreational use.                                                 and other waterfront sites.
                       3  If the Hunts Point Marine Transfer Station is                9    Pursue use of barge and rail transport for
                          vacated by the Dept of Sanitation, it should be                   municipal uses such as waste handling and
                          reused as a park serving Hunts Point's labor                      sludge disposal to improve air quality and traff ic
                          force and upland community in conjunction with                    circulation.
                          the existing Hunts Point Avenue street end
                          access point.

                       4  Provide pedestrian access to Randalls Island as
                          part of the Harlem River Yard redevelopment
                          plan.

                       5  Preserve and landscape publicly owned natural
                          edges along Bronx Kill and on the Hunts Point
                          Market site to improve vistas from parks on the
                          opposite shore.









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                                                                                                                                                                                                                                                                                                                                                                                                                                                                                          Comprehensive Waterfront Plan / NYC Department of City Planning / Reach Studies










                                                             REACH 8: BRONX RIVER

                      Location: Bronx River from Westchester County border to Bruckner Boulevard
                      Upland Neighborhoods: Woodlawn, Wakefield, Bronxdale, Williamsbridge, West Farms, Bronx
                      River, Crotona ParkEast, Hunts Point, Soundview

                      Shoreline: natural in the northern portion, bulkhead south of'Westchester Avenue
                      ZoninglLand Use: M1-1 industrial areas north of 236th Street and south of 172nd Street. mapped
                      parkland above 180th Street. The area between 172nd and 180th Streets is zoned R7-1, but is
                      mostly parkland and highways.
                      Waterfront Parkland: Bronx Park, including Zoological and Botanical Gardens, Luna Park, Bronx
                      River Parkway


                                                      SUMMARY OF RECOMMENDATIONS

                      NATURAL WATERFRONT                                            7 Develop point access and rehabilitate pier south
                      Extensive efforts to clean and restore the Bronx                  of Westchester Avenue in conjunction with con-
                      River date from the turn of the century, and since                struction of the Edgewater Road access to the
                      1974, have been led by the Bronx River Restoration                Sheridan- Bruckner Expressway interchange.
                      group and DPR.

                      1   Support continuing efforts to restore natural             WORKING WATERFRONT
                          conditions along the river north and south of
                          Bronx Park.                                               Industrial areas are located south of 180th Street.
                                                                                    They include a variety of manufacturing, service, and
                                                                                    distribution uses.


                      PUBLIC WATERFRONT

                      Bronx Park and the Bronx River Parkway offer ample            REDEVELOPING WATERFRONT
                      access to the river's edge. Access below Bronx Park
                      is constrained by industrial uses, but some                   The state-owned Coliseum building, currently used
                      expansion of public access is possible.                       as a TA bus depot, may be vacated and made
                                                                                    available for another use.
                      2   Restore the North Bronx Bikeway through Bronx
                          Park and designate a bikeway along the Bronx              8   Support the reuse of the Coliseum if the site is
                          River Parkway north of Bronx Park.                            no longer needed by the IVITA. Reuse could
                                                                                        include a borough-wide sports facility.
                      3   Develop pedestrian and bike trails on both sides
                          of the river between East Tremont Avenue and
                          East 172nd Street.

                      4   Support transfer of state-owned parcels for park
                          use south of East Tremont Avenue and East
                          177th Street.

                      5   Locate CSO holding tank adjacent to Coliseum
                          building, and treat surface for park use if no
                          longer needed by IVITA.

                      6   Develop access to waterfront paths and park at
                          172nd Street, East Tremont Avenue, 177th
                          Street, and with a ramp from 174th Street
                          Bridge.












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                                Bronx River                            Reach 8 Recommendations
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                                           significant coastal habitat                                                      significant maritime industrial area

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                                Comprehensive Waterfront Plan                                                               NYC Department of City Planning                                            Reach Studies










                                                                 REACH 9: EAST BRONX

                        Location: Bruckner Boulevard Bridge to Westchester County border along Bronx River, East River,
                        Pugsley Creek, Westchester Creek, Long Island Sound, Hammond Cove, Palmer Inlet, Eastchester
                        Bay, Hutchinson River and Pelham Bay Lagoon. The reach includes City and Hart islands.
                        Upland Communities: Soundview, Harding Park, Clason Point, Castle Point, Throgs Neck, Silver
                        Beach, Locust Point, Edgewater Park, Eastchester Bay, Country Club, Spencer Estates, Co-op City
                        and City Island
                        Shoreline: natural shoreline, riorap, and bulkhead
                        Land Use/Zoning: low to mid-density (R3 - R6) residential, parkland, M1, M2, and M3 industrial
                        along Bronx River and Westchester Creek, scattered C3 water related commercial and recreational
                        areas.

                        Waterfront Parkland: numerous parks including Pelham Bay, Soundview, Ferry Point, Pugsley
                        Creek Parks



                                                          SUMMARY OF RECOMMENDATIONS

                        NATURAL WATERFRONT                                                 9  Develop street end point access at Lafayette
                        To create and enhance natural resources, and                          Avenue within the Brush Avenue industrial area,
                        protect the reach's water quality:                                    to the TBTA park at Throgs Neck Bridge, at
                                                                                              Layton, Lafayette, Outlook, and Wafts avenues,
                        1  Support designation of Pelham Bay Park                             and some street ends at Hammond Cove.
                           Wetlands as a Significant Coastal Fish and                    10   Upgrade the boat launch at Clason Point Park,
                           Wildlife Habitat.                                                  and develop a new one at Ferry Point Park if
                        2  Designate Long     Island Sound/East River as a                    warranted by demand.
                           Special Natural Waterfront Area.                              11   Explore potential sites for fishing and boat
                        3  Restore wetlands in city-owned Soundview                           landing piers at City Island, Ferry Point Park,
                           Lagoons and incorporate into Soundview Park,                       and Soundview Park.
                        4  Demap streets which traverse Hammond Cove                     WORKING WATERFRONT
                           wetlands.
                                                                                         12   Locate a CSO holding tank on a publicly owned
                        5  Finalize and begin implementation of a contain-                    site in- the Co-op City area, and treat the site's
                           ment program for Pelham Bay Landfill.                              surface for park use if no longer needed by
                                                                                              DOT
                        PUBLIC WATERFRONT                                                13   The feasibility of private ferry service to
                        The East Bronx has one of the most extensive public                   Manhattan from a potential site at Ferry Point
                        waterfronts in the city. Opportunities exist to develop               Park is being explored by the City.
                        and enhance these spaces with walkways,
                        esplanades, point access, and boat launches.                     REDEVELOPING WATERFRONT
                        6  Develop waterfront esplanades in Soundview                    14   Examine suitability of residential rezoning for an
                           Park, Ferry Point Park, Pugsley Creek Park, the                    M-1 area located south of Zerega Industrial
                           Co-op City waterfront, and the Castle Hill                         Park.
                           residential development.
                                                                                         15   Demap Shore Drive in Throgs Neck and relo-
                        7  Map a Waterfront Access Plan from Castle Hill                      cate the bulkhead line to ensure appropriately
                           to the YMCA site.                                                  scaled upland development.
                        8  Landscape waterfront edges of the publicly
                           owned Zerega Industrial Park to improve vistas
                           from parks on the opposite shore.









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                                                                                                                                                                                                               Comprehensive Waterfront Plan / NYC Department of City Planning / Reach Studies

                                                                                                                                                                                                               I










                                                          REACH 10: QUEENS NORTH SHORE

                         Location: Flushing Bay to Nassau County border along Flushing Bay, East River, and Little Neck
                         Bay
                         Upland Neighborhoods: College Point, Malba, Whitestone, Beechhurst, Bay Terrace, Bayside,
                         Douglas Manor, and Douglaston
                         Shoreline: mostly riprap and natural edge; bulkhead in College Point and scattered elsewhere
                         ZoninglLand Use: primarily low-density residential (Rl-R5); Fort Totten Special Natural Area
                         District; M1 and M2 industrial in College Point and M1 in the north central portion of Whitestone
                         Waterfront Parkland: Hermon A. McNeil, Francis Lewis, Alley Pond, Udalls Cove and Little Bay
                         Parks



                                                            SUMMARY OF RECOMMENDATIONS

                         NATURAL WATERFRONT                                                 WORKING WATERFRONT

                         Ecologically significant wetland habitats along the                The College Point waterfront is part of a larger
                         eastern portion of the reach provide settings of                   concentration of industrial uses, including private and
                         scenic and recreational value.                                     municipal water dependent uses. Access is con-
                                                                                            strained by traffic congestion.
                         1   Support designation of Little Neck Bay, Alley
                             Pond Park, and Udalls Cove and Ravine as                          9 Support implementation of DOT plan to improve
                             Significant Coastal Fish and Wildlife Habitats.                     traff ic circulation in College Point through capital
                                                                                                 and systems management improvements.
                         2   Designate Long Island Sound/East River as a
                             Special Natural Waterfront Area.                               .10  Pursue feasibility of transporting Tallman Island
                         3   Acquire private land in Udalls Cove/Ravine and                      sludge by barge.
                             map as parkland, and undertake studies to                      11   The Army Corps of Engineers should continue
                             control erosion and establish a trail system.                       dredging Flushing Bay to facilitate marina and
                                                                                                 industrial activities.
                         4   Preserve wetlands in Powell's Cove by acquiring
                             private land for city environmental park.                      12   Explore alternatives for controlling impacts of
                                                                                                 Whitestone stone crushing facility on upland
                         PUBLIC WATERFRONT                                                       community, and whether city can obtain services
                                                                                                 from a less impacted location.
                         Extensive waterfront parkland with good access
                         offers a variety of waterfront views and recreational              REDEVELOPING WATERFRONT
                         activities throughout most of the reach. There are
                         several opportunities to expand public access.                     There are several redevelopment opportunities that
                                                                                            would be compatible with the natural environment
                         5   Provide street-end access compatible with in-                  and would provide additional open space.
                             dustrial uses at several points along the College
                             Point industrial waterfront.                                   13   Rezone a 2.5 acre vacant M1 site between 25th
                                                                                                 and 23rd avenues in College Point to C3 to
                         6   Examine the feasibility of park use at the historic                 permit a variety of uses including water de-
                             battery of Fort Totten. Access can be improved                      pendent and water-enhanced uses such as a
                             by expanding the existing bicycle path between                      marina and restaurant, or residential.
                             the fort's entrance and Northern Boulevard.
                                                                                            14   Rezone the waterfront portion of the 16-acre
                         7   Map a Waterfront Access Plan to link the                            Cresthaven site to C3 to allow water dependent
                             Riverview development with McNeil Park.                             and water-enhanced uses in conjunction with
                         8   Map Waterfront Access Plans to provide public                       lower-density residential development.
                             esplanades in conjunction with the redevel-
                             opment of vacant sites in College Point,
                             Whitestone, and Beechhurst in Point Little Bay.










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                                                                                                                                                                                                            Queens






                                                                                   I MILE



                                        Queens North Shore/ Reach 10 Recommendations



                                                                significant coastal habitat                                                                                                 significant maritime                     industrial area

                                                                existing continuous or general access
                                                                                                                                                                                                                                                                                                                                                          Queens
                                                                                                                                                                                            approved redevelopment project


                                                                                                                                                                                                                                                                                               .....                                .......
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                                                                new or improved point access                                                                          20                    recommendation key number in text
                                                                                                                                                                                                                                                                                                                ........... .. .    -....... .. .. ........
                                                                                                                                                                                                                                                                                                                ..............
                                                                                                                                                                                                                                                                                                                . ..........


                                        Comprehensive Waterfront Plan                                                                                                                NYC Department of City Planning                                                                                                                Reach Studies











                                                   REACH 11: QUEENS UPPER EAST RIVER

                         Location: North Shore of Queens from the Astoria Con Edison Plant to the Flushing River, including
                         Rikers Island

                         Upland Neighborhoods: Astoria, East Elmhurst, Corona, Flushing

                         Shoreline: natural wetlands in Flushing Bay, bulkhead and riprap elsewhere
                         Land Use/Zoning: M-zoned industrial areas, including several municipal uses: the Astoria Con Ed
                         Plant, Bowery Bay Water Pollution Control Plant, and LaGuardia Airport. Rikers Island is zoned C8-2.
                         Upland residential areas are mid-density R3 to R5.
                         Waterfront Parkland: Flushing Bay Promenade and Marina, which is part of Flushing Meadows-
                         Corona Park.



                                                          SUMMARY OF RECOMMENDATIONS

                         NATURAL WATERFRONT                                             WORKING WATERFRONT

                         The natural values of Flushing River and Bay have              Industrial areas accommodate major municipal
                         been degraded by sewage outfall.                               facilities and significant water-dependent uses.

                         1  Support construction of a CSO holding tank to                 8  Support Department of Correction's consider-
                            improve water quality in Flushing Bay.                           ation of the feasibility of waterborne trans-
                                                                                             portation to Rikers Island to reduce traffic
                         2  Support DEP's evaluation of potential for                        through Astoria.
                            wetlands restoration along Flushing River.
                                                                                          9  Explore feasibility of a 'park and ride' ferry
                         3  Support PANY/NJ's demolition of breakwater                       service from Flushing Bay Marina, using its
                            and other efforts to improve water circulation in                parking lots and the nearby Shea Stadium
                            Flushing Bay. PANY/NJ will create or restore                     parking lot.
                            wetlands in conjunction with construction of a
                            runway safety area.                                         10   Explore feasibility of a 'Fast Freight' ferry ser-
                                                                                             vice from LaGuardia to Manhattan.
                         4  Develop environmental controls and mitigation
                            strategies to improve water quality while per-
                            mitting necessary improvements at LaGuardia.                REDEVELOPING WATERFRONT

                                                                                        A 44-acre M3-1 area on the east side of the Flushing
                         PUBLIC WATERFRONT                                              River is vacant and underutilized, and presents an
                                                                                        opportunity for future development and expansion of
                         The 1.4-mile-long Flushing Bay Promenade and                   Downtown Flushing. These recommendations are
                         Marina are in poor condition.                                  part of DCP's Downtown Flushing Plan.
                         5  Support rehabilitation of the esplanade and                 11   In the long term, redevelopment of this area
                            marina, provision of a public boat launch, and                   should be for mode rate-density residential and
                            public access from Harper Street at the eastern                  commercial uses, with public access provided
                            end.                                                             through the mapping of a Waterfront Access
                                                                                             Plan. As an interim measure, rezone from M3 to
                         6  Provide sidewalks, signage, and lighting to                      M1 to prevent the location of new heavy
                            improve pedestrian access routes to the                          industrial uses which would be incompatible with
                            esplanade.                                                       the proposed new mixed-use area east of
                         7  The six acre PANY/NJ site at 19th Street and                     College Point Boulevard and proposed reuse of
                                                                                             the waterfront property.
                            Bowery Bay, now partially used for ballfields,
                            should be further developed for recreation and
                            public access.







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                                                                                                                            5,6,9

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                                                      1 MILE


                       Queens Upper East R.                                       Reach 11 Recommendations
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                                    significant coastal habitat                                        significant maritime/ industrial area

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                                                                                                       approved redevelopment project

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                                                                                             13        proposed redevelopment area                                                Brooklyn
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                                                                                                                                                                                                    ...... ......


                       Comprehensive Waterfront Plan                                               NYC Department of City Planning                                             Reach Studies










                                                                REACH 12: WEST QUEENS

                         Location: East River, from Newtown Creek to Astoria Con Edison Plant

                         Upland Neighborhoods: Hunters Point, Long island City, Ravenswood, Astoria
                         Shoreline: mostly bulkhead and riprap. Many bulkheads are in deteriorating condition.

                         Land UselZoning: north of the Queensborough Bridge the waterfront contains parkland, M1 to M3
                         industrial areas, the R6 zoned Astoria Houses and Queensbridge Houses, and an R5 district
                         occupied by nonconforming industrial uses. The upland is primarily medium-density residential (R4-
                         R7X). South of the bridge, waterfront areas are zoned M3, M1, and R9 and R7A, and are either
                         vacant or occupied by light industry and two private tennis clubs. The mixed-use upland area is
                         zoned with a special district that permits residential development governed by R5 infill provisions,
                         and industrial and commercial uses subject to M1-4 regulations. Other upland areas are zoned M3
                         and M 1.

                         Waterfront Parkland: Astoria, Ralph difidarco, Rainey, and Queensbridge parks, and the Socrates
                         Sculpture Park, a privately operated facility on city property which is not mapped parkland


                                                            SUMMARY OF RECOMMENDATIONS

                         NATURAL WATERFRONT                                                REDEVELOPING WATERFRONT
                         Due to the industrial nature of the reach, there are              Significant redevelopment proposals have been
                         no significant natural areas. The East River is an im-            approved for the Hunters Point waterfront. The
                         portant fish migration route.                                     Hunters Point Waterfront Development will include
                                                                                           6,385 residential units, 2 million square feet of off ice
                         PUBLIC WATERFRONT                                                 space, a 350-room hotel, 265,000 square feet of
                                                                                           retail and community facility space, in addition to 18
                         North of the Queensborough Bridge, a number of                    acres of public open space including a waterfront
                         parks and open spaces offer spectacular city views,               esplanade. The East River Tennis Club site has
                         but are separated by industrial uses. The southern                been rezoned to allow 960 residential units and
                         part of the reach has limited public access. Planned              11,000 square feet of retail space. Redevelopment
                         redevelopment projects would provide significant                  opportunities have also been identified in Pot Cove
                         waterfront open space.                                            and  Ravenswood.
                         1   Continue public open space use of the Socrates                5    The Northern Hunters Point waterfront should
                             Park site.                                                         be redeveloped for residential use in accor-
                         2   Enact a Waterfront Access Plan for residential                     dance with DCP's Long Island City Framework
                             development sites in the reach to provide a                        for Development, which expands on the recom-
                             continuous waterfront esplanade to link existing                   mendations of DCP's Northern Hunters Point
                             access points. Where industrial uses bar shore-                    Study.
                             front access, identify upland linkages.                       6    Rezone an isolated, underutilized industrial area
                         3   Explore potential for street end public access or                  in Pot Cove, surrounded by residential and
                             viewing areas adjacent to industrial uses, where                   industrial uses, to allow moderate-density resi-
                             appropriate.                                                       dential redevelopment. View corridors should be
                                                                                                provided on 26th and 27th avenues and on 2nd,
                                                                                                3rd, and 4th streets. A Waterfront Access Plan
                         WORKING WATERFRONT                                                     on this site would be part of a link from Astoria
                         Con Edison's Ravenswood facility and a city marine                     Park to Socrates Sculpture Park.
                         repair facility are water dependent uses. The upland              7    Residential redevelopment of the nonconforming
                         Long Island City industrial area is one of the most                    industrial sites at 33rd Road and 35th Avenue
                         active manufacturing districts in the city. Strategies                 would be appropriate. A Waterfront Access Plan
                         to protect Long Island City's industrial base will be                  should be mapped to link the area's waterfront
                         identified in DCP's Long Island City Framewotk for                     access points.
                         Development.

                         4   Explore feasibility of ferry service at the Hunters
                             Point Waterfront Project as the area develops.










                                                                                                                                 .......                 Randalls                                      . ......
                                                                                                                                                         Island
                          MAP A.12                                                                                       ................
                                                                                                                        . ........
                                                                                                                      .....      .......                              .. ... ........
                                                                                                                      ..... ........                                     .........
                                                                                                                      ... 11 .....
                                                                                                                       .............


                                                                                                                                       Wards
                                                                                                                                       Island








                                                                                                                   . . . . . .. . . . . .
                                                                                                                                              . . . . . . . . . .Astoria
                                                  41                                                                             1133
                                                                                      Astoria              . . ....                                           Park
                                                                                      Houses               .......               Pot
                                                                                                                       X,
                                                                                        Park                                     ve
                                                                                                                       j:j.      -10
                                                                                                                                 2, 6



                                                                            Rainev
                                                                              Pax                                                   Socrates Sculpture
                                                                                                                                 3
                                                                                                                                            Park I


                                                                                                                          33rd Rd.
                                                                             ...........     . .....                             2,7
                                                                                      lb                        35th Ave.
                                                                                                                     2,7
                                                                                     ........... '1711.1
                                                                                                       3


                                                                                            Queensbridge
                                                                                                   Park
                                                                                                                                                                Queens
                                                                      ..............
                                                                                           Northern Hunters
                                                                                                Point 2, 5
                                                                            1W

                                                                                   RAK East River
                                                                                    Tennis Club 2



                                                                          Hunters Point
                                                                                 2,4




                                                                              . .........
                                                              /%4L                      . .......
                                                                          13



                                                     ........                                                 ..
                                                                              Brooklyn

                                                                     I MILE
                                             .....................                                               ...
                      L

                      West Queens                                Reach 12 Recommendations
                                                                                                                                                                                            The   ILLOQ.
                                                                                                                                                                                            Brom


                                                                                                                                                                                           .. ................
                                                                                                                                                                                             ....... .. ....
                      17-7-71      significant coastal habitat                                        significant maritime       industrial area

                                                                                                                                                                                               Ousens
                      gal=         existing continuous or general access                              approved redevelopment project
                      11111        proposed continuous or general access                   [3         proposed redevelopment area                                                 Brooklyn

                                                                                                                                                                    Staten
                                   upland extent of park                                              other site specific recommendation                      q     Island

                                   new or improved point access                             20        recommendation key number in text


                      Comprehensive Waterfront Plan                                                 NYC Department of City Planning                                            Reach Studies










                                                           REACH 13: NEWTOWN CREEK

                       Location: Newtown Creek, between Brooklyn and Queens
                       Upland Communities: Greenpoint and East Williamsburg in Brooklyn, Hunters Point, Dutch Kills,
                       Maspeth in Queens
                       Land UselZoning: M3 heavy industry, including the Newtown Creek Water Pollution Control Plant,
                       petroleum storage, and a marine transfer station
                       Shoreline: bulkhead, deteriorated in parts

                       Shorefront Parks: none



                                                         SUMMARY OF RECOMMENDATIONS

                       NATURAL WATERFRONT                                              4    Reestablish the bulkhead in places where it has
                       Because of a history of industrial use and lax                       deteriorated, and pursue solutions to the
                       environmental standards, the creek and upland are                    problem of disposing of contaminated dredge
                       heavily polluted.                                                    spoils so the Creek can be dredged for
                                                                                            navigational needs.
                       1    DEP's Greenpoint-Williamsburg Environmental                5    Pursue opportunities for intermodal transporta-
                            Benefit Program should work with local indus-                   tion by reactivating sidings off the Bushwick
                            tries to clean up the area.                                     Branch of the Long Island Rail Road.


                       PUBLIC WATERFRONT

                       Because of the heavy industrial nature of the area,
                       public access is generally inappropriate.



                       WORKING WATERFRONT

                       Newtown Creek is an important industrial area, with
                       major municipal facilities. Infrastructure improve-
                       ments would enhance the area's ability to accom-
                       modate industry.

                       2    Designate Newtown Creek as a Significant
                            Maritime and Industrial Area.

                       3    State and City DOT should explore the feasibil-
                            ity of a bridge from Meeker Avenue to Laurel
                            Hill Boulevard as an alternative route during
                            reconstruction of the Kosciuszko Bridge and to
                            improve truck access to the Long Island
                            Expressway and remove trucks from local
                            streets.











                                                                             ..........
                                                                             .........     .......
                                                                             ..........    .......
                                                                             ..........   ........
                                                                             ..........  .........
                                                                             ..........  .........
                                                                             .......     .........
                                                                          ..........   ..........
                           MAP A.13                                       ..........   ..........
                                                                          ;i:W       :::-W
                                                                          . . . . ...........



                                                                          ... .......

                                                               ..........
                                                                          ..M
                                                               ..........
                                                               ..........    :::X
                                                               .........  ...........
                                                               .........  ...........
                                                                          ..........
                                                                ..... ... ..
                                                               ........   ........
                                                                 ...................
                                                               .... ........ .
                                                               .... ..............


                                                               ........... ......
                                                               .......                                                                                                      Queens
                                                               ...........................
                                                               ...........
                                                               ........... ...
                                                               ........... .
                                                               ...... .................
                                                               ...........................
                                                               ..........................
                                                               ........................
                                                               ..........................



                                                                                                                             4
                                                                                                                          Creek
                                                                                                                        bulkhead
                                                                                                                           and
                                        .......                           ....
                                                                                                                         dredging

                                        XX,

                                                                                                                                                                       Newtown Creek
                                                                                                                                                                           Significant
                                                                                                                                                                    Maritime / Industrial
                                                                                                                                                                               Area
                                                               .........................
                                                                                                                                                                                 2
                                                               ............
                                                               .............



                                                               ..............


                                                               ........                                                                    ...
                                                               ..........                Meeker Ave.
                                          .....                ...............
                                                               ................
                                                                                        Laurel Hill Blvd.
                                           ....                . .......
                                                               . ............. :-:-:
                                                                                           connection
                                                               ..............
                                                                                                  3
                                                               ..........
                                        . . . . .......
                                        .. ...                 ......
                                        ... ... ......
                                        ........ ... ......
                                        .........              *..........
                                        ........                                                                                     .....







                                        ...........



                                                                                                                    b         .0

                                                                                                                              LIRR
                                                                                                                    Bushwick Branch
                                                                                                                                5
                                                                                                                                                                                                     %4t,
                                        ............
                                        ............
                                        ...........
                                                                                                                                                                                                         %
                                                                                  Brooklyn                                                                                                                    %






                                                                          1 MILE


                        Newtown Creek                                     Reach 13 Recommendations                                                                                                         ......
                                                                                                                                                                                                        ............
                                                                                                                                                                                              The
                                                                                                                                                                                             Brom



                                     significant coastal habitat                                        significant maritime    industrial area

                       LIAM          existing continuous or general access                                                                                                                       Oueens
                                                                                                        rail
                       ggggg         proposed continuous or general access                  [3          proposed redevelopment area                                                Brooklyn
                                    k 0














































































                                                                                                                                                                     staten
                                     upland extent of park                                              other site specif ic recommendation
                                                                                                                                                                     Island

                                     new or improved point access or overpass                   2       recommendation key number in text



                       Comprehensive Waterfront Plan                                                NYC Department of City Planning                                             Reach Studies







                                                             REACH 14: BROOKLYN UPPER BAY

                          Location: Newtown Creek to Owls Head, along the East River, Buttermilk Channel, and Upper New
                          York Bay.
                          Upland Neighborhoods: Greenpoint, Williamsburg, Navy Yard, Fulton Ferry, Brooklyn Heights, Cobble
                          Hill, Red Hook, Gowanus, Sunset Park
                          Shoreline: bulkhead, with riorap at Grand Street Park and Fulton FerrylEmpire Stores State Park
                          Land UselZoning: M3 and M2 industrial areas on waterfront, buffered by M 1 light industrial area from
                          upland residential and mixed use areas that typically permit moderate-density (R4, R5, or R6)
                          development. Historic districts in Greenpoint, Fulton Ferry, Brooklyn Heights and Cobble Hill.
                          Waterfront Parks: Newtown Barge Terminal Playground, Grand Street Park, Fulton FerrylEmpire
                          Stores State Park


                                                               SUMMARY OF RECOMMENDATIONS
                          NATURAL WATERFRONT                                                     12   Recommend state construction of access ramps to
                          The reach contains no natural shores or significant                         the Gowanus Expressway in the vicinity of 39th
                          wildlife habitats.                                                          Street.
                           1 Support DEP plans to install a pump to improve                      13   implement proposed rail improvements in Sunset
                               the Gowanus Canal's flushing action.                                   Park to maximize intermodal connection to carfloat
                          PUBLIC WATERFRONT                                                           operation.
                           2   Develop WNYC transmitter site for         public open             14   Develop signage and street improvements for
                               space, linked to the Greenpoint community with                         alternative truck foutes through industrial areas.
                               signage and sidewalk improvements.                                15   Explore feasibility of ferry servicefromthe Brooklyn
                           3   Provide visual access to the water from Newtown                        Army Terminal, 39th Street, Coffey Street, and
                               Barge Terminal Playground, by removing stored                          Fulton Landing.
                               lumber from waterfront strip leased to Lumber                     REDEVELOPING WATERFRONT
                               Exchange.                                                         16   Although the Greenpoint Lumber Exchange is
                           4   Rehabilitate the Noble Street Pier for public access                   an. active, water-dependent industrial use,
                               after it is Vacated by DOS.                                            residential redevelopment would be appropriate
                           5   Support rehabilitation of Grand Street Park.                           should it cease operation.
                                                                                                 17   Rezone the Greenpoint Terminal Market from M3
                           6   Support Stale Parks plan for cultural, recreational,                   to medium-density residential with Ml buff er zones
                               and commercial uses at Empire Stores Park, and                         to the north and south. Required waterfront open
                               EDC plans for complementary commercial uses on                         space should be linked to a new park on the
                               nearby city-owned parcels.                                             WNYC transmitter site.
                           7   Where compatible with industrial uses, provide                    18   Rezone the Eastern District Terminal site in
                               continuous public access in Red Hook from Van                          Williamsburg from M3 to medium-density residen-
                               Brunt to Wolcott Streets to link new development,                      tial between N. 8th and N. 6th Streets, with M1
                               street ends, Pier 41, and new Coffey Street Recre-                     buffer zones to the north and south.
                               ational Pier.                                                     19   Redevelopment of Piers 1-5 (Brooklyn Harbor)
                           8   Provide public access on piers 4-7 in Sunset Park                      should consider housing and commercial uses
                               in conjunction with plan for their future use.                         complying with the mapped view plane from
                                                                                                      Brooklyn Heights, recreational uses and substantial
                           9   Provide public access in conjunction with the                          open space linked to the state park and upland
                               proposed sludge facility at 51 st Street.                              residential and commercial areas.
                          WORKING WATERFRONT                                                     20   In Red Hook:
                          Brooklyn's industrial waterfront has experienced                            - Rezone Van Brunt Street between Commerce
                          economic decline for several decades, despite major                              and Beard streets from R5/Cl -3 and M1 and
                          industrial concentrations at the Red Hook Container-                             M2 to R5 or R6 with a commercial overlay to
                          porl, South Brooklyn Marine Terminal, and Navy                                   promote residential and retail development
                          Yard. While certain sites are recommended for                                    and extend the landlocked neighborhood to
                          redevelopment, manufacturing zoning would be                                     the waterfront.
                          retained on most of the waterfront where improved                             Rezone the area between Wolcott and Van Brunt
                          conditions could better support industrial uses.                                 streets and the waterfront from manufacturing
                          10 Designate Navy Yard, Red Hook, and Sunset Park                                to medium-density residential.
                               as Significant Maritime and Industrial Areas.                            Pursue opportunities to develop new housing in
                          11 As an interim use, develop the Noble Street Pier                              the area bounded by Conover, Van Dyke,
                               for a DOS barge staging operation.                                          Coffey, Richards, and Sullivan streets.
                                                                                                        Study the feasibility of commercial reuse of the
                                                                                                           Van Brunt Street warehouses.










                                                                             ...........................                                                ...............I .......
                                                                                                                                                            .... ..........
                                                                      ........................
                                                                      .....................................................
                                                                      ..................                                                                           NowloW6@:Sarge
                                                                      ...............
                                                                      . . . ............
                                                                      . . . ............
                                                                                                                                                                          "nal.P1 d 3
                                                                      .............
                             MAP A.1 4
                                                                                     ...........
                                                                                             ....                                   Gree
                                                           .....................................
                                                                      ................................
                                                           ............. ..          .............
                                                                                                                                                              6
                                                                                                                                                        . . ........
                                                                                     .............
                                                           ............              ......                                    Greeppoint Tdrininz
                                                                                                                                                                                               ..........
                                                                                                                                                                                                ..........
                                                           ..............                                                               marke             :1                                     ......
                                                                                                                                                  t Sit
                                                                                                                                                        .....                                   ......-
                                                                                                                                                        ..................                      ..............
                                                                                                                                                        .............-
                                                                                                                                                        ................
                                                                                                                                                        ............. .
                                                                                                                                                        ............ .
                                                                                                                                                        ...............-                             .............
                                                                                                            Manhattan                                   ..........      WNYC transmitter '2::-.*..@..@'..",......
                                                                                                                                                        ...............
                                                                                                                                                  ..........................


                                   ...                     ........
                                                           .............
                                   ........                .... .. ..
                                                           .... .. ..                                                                                                   Noble St. Pier          4,11


                                                                                                                                                  ..........
                                                                                                                        6
                                                                                                                                                        ..........
                                                                                                                                                                           Eastern District
                                                                                                              Fulton Landing
                                                                      ....................                                                     .........
                                                                                                                                               .........                 Terminal Site          18           ....
                                                                                                                                           ................
                                                                                                                                               ..............
                                                                                                                                           ..................
                                                                             ...                               Empire Stores                                                                               ......
                                                                                                                                               .............                                              .....
                                     ............ .....    ...... ..... .................                                               .....................
                                                           .. ....... ...............
                                                           . .. ...........                                                                       .......                                                .......
                                                           .............. ...                                    ::S        'a
                                                           ..........                                              taw P rk                             Grand St. Park                                    .......
                                   ................        . ...... . ...                                        ....       .........
                                   .................
                                                           ..............
                                   ..................
                             ...............................                                                  ... .........                                       5
                                                                                                                                                  . . . . ......                                       .......
                                                           .......... ............................
                             .............. .              . ..                                         ........
                                                                         .... ........                                  ........ ....
                             ............. .               .......           .....
                                                                         ............
                                                                                                                        ..............     ...                                                           ....
                                                                                                                       ................................. ........                                        ...
                             ............  .........       . ... .. .....................
                                                           ...............................
                             ........ I . . .....
                             ....... .. . . ..... ...      ...................
                             ..... . . ........ .          ......................            .....
                             ....     ..... ....           ... ..                            .......
                             .. ..   . . .... .                                              .......                               ........
                                                                                                                           ..........
                                                                                                                                     ...............
                                                                             ............... ......                        ......
                                   ................
                                                           ......................
                             ........ ...                             ................
                                                                                                                                   idL
                             .............................
                                                                      ...........
                        X:



                                                                                             ..........

                                                           .............                     ......
                                                                                       .............
                                                           ........                                                                               Navy Yard
                                                                      ........ ..........
                                                                      I..........
                                                           ............ ......
                                                           Y
                                                                      ..............
                                                           ..................
                                                           . ... ....                                     @ed Hook                                Significant
                                                           .. . . . ... .....                                                              Maritime       Industrial
                                                           ..............
                                                                                     ..............
                                     ............          X.
                                                                      .....          ....... ........ Significant Maritime
                                                                                     . .... .... ..
                                                           . ... ....... .
                                                                         .......                     Industrial Area 9                                  Area
                                                           ............................. .......                                                        10
                             ........................
                                                           ...........
                                   ..........................                        ...........

                                                           R....
                                                           run.



                                                                                                          . . . . . . . . . . . .

                        ................
                                         VWV
                             .........................
                                                                      .... ........
                                                                      .....  ........
                                   ...................                .... .....
                                                                      .... ........



                                                                      .................
                                                                                              Gowanus Canal
                                                                                                    Pump 1                                                                    Brooklyn

                                                                      ............
                                                                      ............
                                                                                     Gowanus
                                   ............... . .
                                                                                                                        Sunset Park
                             ...... ....... .                                          Exp.    12
                                                                                                                 Significant Maritime
                             .................             X. X
                             ................ ....................
                                                                                                                      Industrial Area

                                                           ...........................
                                                                                                                               10




                                                                                               Sunset Park
                                                                                             Rail Improvements
                                   ................
                                   ...............
                                                                                                      13

                                                                      1 MILE


                        Brooklyn Upper Bay                                           Reach 14 Recommendations
                                                                                                                                                                                             Bronx


                                                                                                                                                                                    . . .. ......

                                     significant coastal habitat                                        significant maritime I industrial area
                        NO=          existing continuous or general access                              approved redevelopment project                                                          Queens

                                     proposed continuous or general access
                                                                                             13         proposed redevelopment area                                               Brooklyn

                                     upland extent of park
                                                                                                                                                                    Sttaten
                                                                                                        other she specific recommendation
                                                                                                                                                                    Island
                                                                                                                                                                                                     ...........
                                                                                                                                                                                              ...................
                                                                                                                                                                           ...........          ... ...........
                                                                                                                                                                                        . .......................
                                                                                                                                                                             ...... ... . . ..............
                                     new or improved point access or overpass                20         recommendation key number in text
                                                                                                                                                                       . ...... . . .....            ..............
                                                                                                                                                                                                     ...........
                                                                                                                                                                           . ...........
                                                                                                                                                                            .......... .                    .....
                                                                                                                                                                                              .. ...............
                                                                                                                                                                                           .... ............
                                                                                                                                                                                 ...                    . ... ......


                        Comprehensive Waterfront Plan                                               NYC Department of City Planning                                             Reach Studies










                                                        REACH 15: BROOKLYN LOWER BAY

                         Location: Owls Head to Sea Gate, including both shores of Coney Island Creek
                         Upland Neighborhoods: Bay Ridge, Bensonhurst, Bath Beach, Gravesend, Coney Island
                         Shoreline: bulkhead in north; southern section contains riprap, natural shoreline, and some bulkhead
                         ZoninglLand Use: water's edge park with upland low- to mid-density residential (R2-R7) north of
                         Bay Parkway; Sanitation garage, large shopping center(M3), recreational uses(C3), undeveloped
                         parkland, low- density residential(R4) in southern part of reach
                         Waterfront Parkland: Owls Head, Shore Road, Dyker Beach, Bensonhurst, and Dreier-Offerman
                         parks


                                                          SUMMARY OF RECOMMENDATIONS

                         NATURAL WATERFRONT                                              develop pedestrian and bicycle linkages connecting
                         The area in and around      Coney Island Creek is               the park to the Shore Road Bicycle Path and private
                         environmentally degraded, hampering its value as a              developments to the north and south.
                         natural habitat and public recreation resource.
                                                                                         WORKING WATERFRONT
                         1  Undertake dredging to improve natural flushing               The industrial areas south of Bay Parkway contain
                            action, increase enforcement against illegal                 retail, water dependent, and municipal facilities. Ferry
                            dumping, and clean up of contaminated mater-                 service to midtown operates at 69th Street.
                            ials in Coney Island Creek.
                                                                                         6    Implement irrfprovements to the 69th Street Pier,
                         PUBLIC WATERFRONT                                                    as recommended by EDC, including sheltered
                         The northern section of the reach is among the city's                seating, improved lighting and signage, and
                         most accessible public waterfronts, while the unde-                  better coordination of ferry service with bus
                         veloped Dreier-Off erman Park offers an opportunity                  service. The pier is under the jurisdiction of the
                         to increase public access in the southern section.                   Department of Business Services.
                         2  Link Owls Head Park to the 69th Street                       7    Improve traffic circulation in the waterfront area
                            Pier/Shore Road Esplanade by improving the                        south of Bay Parkway through a program of
                            existing strip of land along the parkway entrance                 signal rationalization, lane markings, new roads
                            at 69th Street with signage, paving and                           or turning lanes, and parking enforcement.
                            landscaping.                                                 8    The Nellie Bligh Amusement Park, which par-
                         3  Denyse Wharf, beneath the Verrazano Bridge,                       tially occupies leased parkland, poses circulation
                            should be relinquished by the Department of                       problems for the adjacent sanitation facility.
                            Defense and developed as an educational/                          Explore the feasibility of relocating the amuse-
                            recreational node along the esplanade.                            ment park to Dreier-Offerman Park, where it
                                                                                              could operate as a concession.
                         4  Extend the Shore Road Bicycle Path from its
                            current terminus at Bay Parkway along the Belt               REDEVELOPING WATERFRONT
                            Parkway service road to Stillwell Avenue,                    In addition to commercial opportunities in the man-
                            eventually connecting with the eastern portion of            ufacturing districts, there is an opportunity to re-
                            the bike path along Jamaica Bay.                             develop vacant R4-zoned land on the north shore of
                         5  Include the following elements in the planning               Coney Island Creek.
                            for the largely undeveloped Dreier-Offerman                  9    Support development in the White Sands area.
                            Park: pedestrian/bicycle access near the water's                  The privately owned parcel has been proposed
                            edge; signage; parking and improved mass                          for residential use with retail, an accessory
                            transit access; water-oriented recreation such as                 marina, and access to Dreier-Offerman Park.
                            fishing and hand boat launches, in addition to
                            the existing ball fields; and









                                                                                    .............................
                                             .... ......                            ............................
                           . ... .......     ...........                            . . .............................
                                                                  .......................... ... . ...   ...

                              ..................

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                                                                  .. ........
                                                                  @5 ....................
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                                                                  ..............
                                ........ ..  ......

                                             ............
                                                                  ..............
                                    X.                            .... ................. ...
                                                                  .......................
                                                                  ..................


                                                                  ............
                                                                  .....................
                                                                                                              Owl's Head Park 2
                                                                  ..........................
                           ............
                                ......                            ......................... . .
                                                                                          69th St. Pier
                           .............                          .............................
                           .............                          .............................
                           .............                          ......... .       .. .......
                           .............                          ..........        ...........
                           ....  .........                        ..........................
                           .............                                                                 2,6
                                                                  . .. ............

                                                                  ..............

                                                                  .........................
                                                                  ........................
                                                                  .. ....... ......................
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                                                                  ..........................
                                                                  ..........................

                                                                  ................
                                                                  ........................

                                                                  . ................
                                                                  ..................
                                                                  . .....................
                                                                  ......................
                                                                  .......................
                                                                                                                                                                                         Brooklyn
                                                                  ......................
                                                                  ...........................


                                             . .............
                                ............
                                                                                    CC,
                           .. ... .. . ...


                                                                  .....................

                                                                                                                                       Dyker
                           ... ............ .
                                             ........                                                                                 Beach
                                             ................                                                                           Park
                                             .......................
                                             ....................
                                                                  .............
                                                                  ....... .............   Denyse                       . . ..........
                                             . ........                                                                    .......
                                                                                           W
                                                                                                h
                                                                                                art
                                             ...............
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                                             ... ....                                                                                xxi?*
                                                                                                                   .................
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                                             .......... ..        . . .........     ..........
                                                                                    .............
                                                                  XX.:X
                                                                                    :x.:@;.:
                                             ...... ......
                                                                  ........          ...

                                                                  ...............

                                                                  ..............
                                                                                                                                                  Bensonhurst
                                                                  ..............

                                                                                                                       . . . ..............
                                                                                                                                                         Park
                                                                                                                        -.,- ....................
                                                                  .......                ......
                                                                                                         ..............
                                                                                                                           ....................
                                                                                                                       .. ............
                                                                  ........                                                                                               Bay Parkway 7
                                             ............         ....................
                                                                                    .......... . ......
                                             ...                                    ..... ...              ......... ...................
                                                                                                         .. ... .....  ...............
                                                                  . ................
                                                                                                . .. .......
                           ................
                                                                                                                  .............                ..........
                           ...............................
                                                                                                                                               ...................
                                                                  . ............... .....
                                                                                                         ....................*...............
                                             . ... ... .                                                 . . . .....       .......                                          Nellie Bly 8
                                                                                                                                               ...............
                                                                  .................. .
                                                                  ................
                                             ..................                                                                 ......                                            Rose Cove
                                                                  ............................
                                                                                                ........       ...
                                                                                    ... .........
                                             ............ .... ..
                                                                                                                                               ....................
                                                                                    .... ..... .. .. .....                                                                                   S
                           .......           . .....                                . .....
                                                                                                                                                                                              hore Parkway 4
                                             ...... ....
                                                                  ...................................
                                                                  .............                                        .......
                                                                                                                                                                               'IV @,D'
                                                                                                                                                             ...                          reier - Offerman Park 5
                           .............                                                                                        ......
                                                                                                                     ...............................
                           ............

                                                                  ............ .....
                                                                  ............
                                                                                                                                                                                                     White Sands 9
                                                                                                                                     ................
                                .... .....                        .........
                                                                                                ... . .................
                                                                                                         ,:*:,:**:***:* - -:-   , - ,                                 -;* .............
                                                                                    N
                                             .................                      . ......
                                                                  .............



                                                                                                         ......                                                   .........
                                ...............                   .... .
                                                                                    ....                                                                    .......
                                                                                    ..........
                                             ..........
                                                                                                           ..... .. ...
                                                                                                         ............
                                                                  .. . ........................ ..
                                                                                                                                                               ... ......                       Coney Island
                                                                                                .......................                                                                            Creek 1
                                                                  .....             . ....                       ............
                                                                                      ....................... .........................
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                                                                                                                                                                                                                                   ..........
                           Brooklyn Lower Bay                                            Reach 15 Recommendations
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                                                                                                                                                                                                                     'Me
                                                                                                                                                                                                                    Bronx



                                             significant coastal habitat                                 - - - -    upland bicycle route

                                             existing continuous or general access
                                                                                                                    approved redevelopment project                                                                       Oueens

                                             proposed continuous or general access                                                                                                                       Brooklyn
                                                                                                         [3        proposedredevelopment area

                                                                                                                                                                                         Staten
                                             upland extent of park                                                 other site specific recommendation                                     Island

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                                             new or improved point access                                6          recommendation key number in text
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                           Comprehensive Waterfront Plan                                                        NYC Department of City Planning / Reach Studies







                                             REACH 16: CONEY ISLAND/SHEEPSHEAD BAY

                       Location: South shore of Brooklyn, from Sea Gate to Plumb Beach, including Sheepshead Bay,
                       Shell Bank Creek, and Plumb Beach Channel
                       Upland Neighborhoods: Coney Island, Brighton Beach, Manhattan Beach, Sheepshead Bay
                       Shorefront: bulkhead in Sheepshead Bay, seawall and beach in Manhattan Beach; beaches and
                       natural shores elsewhere.
                       Land UselZoning: mapped park along beach front, except for a stretch between Brighton Beach and
                       Manhattan Beach Park; C7 amusement district on beachfront blocks in Coney Island, and local
                       commercial strips on Mermaid Avenue, Brighton Beach Avenue, and Emmons Avenue (within the
                       Sheepshead Bay Special District); the inland areas are primarily medium-density residential, zoned
                       R3 to R7.
                       Shorefront Parkland: Coney Island Beach, Manhattan Beach Park, Plumb Beach section of
                       Gateway National Recreation Area


                                                        SUMMARY OF RECOMMENDATIONS

                       NATURAL WATERFRONT                                             REDEVELOPING WATERFRONT
                       The oceanfront is a barrier beach that is a major              Steeplechase Park would be a major investment in
                       regional recreational resource. Environmental issues           Coney Island's traditional amusement industry and
                       include beach erosion and water quality.                       would provide a needed anchor at the western end
                                                                                      of the recreational area. Sheepshead Bay contains
                       1   ACOE beach nourishment programs at Plumb                   opportunities for commercial and other development
                           Beach, Coney Island, and Sea Gate are needed               on three major sites as well as smaller sites.
                           and should be continued.
                                                                                      10  Development of Steeplechase Park and/or a
                       PUBLIC WATERFRONT                                                  proposed sports facility would provide a basis
                       Improved links and visual access can'enhance the                   for a development/urban design strategy
                       major public waterfront features which characterize                including:
                       the area.                                                          Redevelopment of the beachfront block of
                       2   Develop the esplanade along the seawall                             Stillwell Avenue as a pedestrian mail;
                           between Brighton Beach and Manhattan Beach                     Reconstruction of Surf Avenue as a landscaped
                           Park.                                                               boulevard;
                                                                                          Additional public parking on the north side of
                       3   Establish a marked way along Oriental Blvd                          Surf Avenue;
                           between Manhattan Beach Park and the
                           Kingsborough Community College gatehouse                       Rehabilitation   of   waterfront 'streets      and
                           that leads to the College's public esplanade.                       boardwalk entrances and enhancement of
                                                                                               pedestrian circulation;
                       4   Link the Kingsbarough esplanade to the Shore                   Rehabilitation of the Stillwell Avenue subway
                           Boulevard esplanade by opening a section next                       station.
                           to the northern Kingsborough gate.
                                                                                      11  Develop a strategy to provide mid-density
                       5   Amend the Special Sheepshead Bay District text                 housing in vacant areas between Beach 32nd
                           to allow pairing of side yards to increase views               and Beach 37th Streets in Coney Island.
                           to the water.
                                                                                      12  Redevelopment of the Brighton Beach Baths
                       6   Integrate the proposed Knapp Street ferry site                 site should be for medium-density residential
                           with existing parkland to provide visual and                   with recreation facilities and public access.
                           physical access to the water.                              13  Resolve outstanding design issues in the DOT
                       7   Improve street-end visual access to Shell Bank                 proposals for reconstruction of Emmons
                           Creek.                                                         Avenue.
                       8   Develop a parking area in the Venice Marina                14  Redevelopment of the Dooley Street/East 22nd
                           area to serve users of the Plumb Beach trail.                  Street site in Sheepshead Bay should be for
                                                                                          mixed uses, including restaurant, retail, and
                       WORKING WATERFRONT                                                 parking.
                       The fishing fleet at Sheepshead Bay is a significant           15  Explore means of establishing voluntary design
                       maritime use and recreational attraction. The                      controls in Sheepshead Bay, possibly through a
                       reconstruction of the Sheepshead Bay fishing piers                 Merchants Association.
                       is an important element in the area's revitalization.
                       9   Support the proposed park and ride ferry                   16  In its study of development opportunities in
                           landing at Knapp Street.                                       Sheepshead Bay, EDC must address the need
                                                                                          for off-street parking.











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                                                                                                                                                                                                                 Comprehensive Waterfront Plan / NYC Department of City Planning / Reach Studies







                                                            REACH 17: JAMAICA BAY/ROCKAWAY

                   Location: southern shore of Brooklyn from Marine Park to Spring Creek, Queens from Spring Creek to the Nassau
                   County border, the Rockaway Peninsula, and the islands and waters of the bay.
                   Upland Neighborhoods: Flatlands, Mill Basin, Bergen Beach, Canarsie, Ozone Park, Howard Beach, Broad Channel,
                   Far Rockaway, Edgemere, Arveme, Rockaway Beach, Rockaway Park, Belle Harbor, Neponsit, Roxbuiy, Breezy Point
                   Shoreline: mostly natural, many of the inlets are bulkheaded.
                   ZoninglLand Use: most of the shoreline and islands are parkland. Upland residential areas are low- to medium-density
                   R2 to R6. Small industrial areas are zoned on some inlets and scattered on the north shore of the Rockaways. JFK Airport
                   is zoned M1.
                   Waterfront Parkland. The Jamaica Bay unit of Gateway National Recreation Area (GNRA) and a number of city parks,
                   including Marine Park and Rockaway Beach.
                                                                SUMMARY OF RECOMMENDATIONS
                   NATURAL WATERFRONT                                                               17 Coast Guard and/or New York Harbor Police should
                   Despite extensive human intrusion, including filling, dumping,                         consider appropriate boating speed limits to protect wildlife
                   and sewage discharge, Jamaica Bay remains a remarkable                                 and shoreline vegetation.
                   natural resource and wildlife habitat with an estimated 4,000                    18    Explore the feasibility of limited public access in natural
                   acres of tidal wetlands. The Bay is listed in the International                        edges.
                   Shorebird Reserve System.                                                        WORKING WATERFRONT
                   1    Support designation of Jamaica Bay and Breezy Point as                      JFK Airport is a vital component of the New York regional
                        Significant Coastal Fish and Wildlife Habitats.                             economy.
                   2    Designate Jamaica Bay as a Special Natural Waterfront                       19    Accommodate expansion needs of JFK Airport, consistent
                        Area.                                                                             with protection of the Bay's natural resources.
                   3    An interagency task force (DCP, DEP, EDC, National Parks                    20    Explore means to improve truck access to JFK, inclulding
                        Service) should work with the Port Authority to minimize                          widening the Van Wyck Expressway.
                        and reverse water-quality impacts of JFK operations, con-
                        sistent with the airport's operational requirements.                        21    Explore feasibility of a Manhattan-JFK ferry, which could
                                                                                                          include additional commuter stops in Brooklyn and
                   4    Maintain natural areas along Four Sparrow Marsh, Fresh                            Rockaway (at Vernam/Barbadoes Peninsula if Arverne is
                        Creek, Spring Creek, Sommerville Basin, Vernam and                                developed).
                        Barbadoes Basins.
                                                                                                    22    Explore feasibilty of 'fast freight' ferry service to Manhattan
                   5    Map the area of Spring Creek containing the Old Mill Creek                        and/or New Jersey.
                        and associated tidal wetlands, including isolated privately-
                        owned parcels, as park. Demap unbuilt streets within the                    23    Maintain the mapped but unbuilt Seaview Avenue Extension
                        proposed park boundary.                                                           over Spring Creek for future circulation improvements in the
                   6    Develop site planning guidelines for any city owned property                      Spring Creek Urban Renewal Area.
                                         evelopment to ensure appropriate density,                  24    In accommodating some of the city's infrastructure needs
                        proposed for
                        configuration, buffer and runoff planning.                                        at Spring Creek, design industrial development to minimize
                                                                                                          impacts on surrounding residential uses and natural re-
                   7    DEP and DOS should develop and initiate containment                               sources.
                        plans for landfills.                                                        25    Limit industrial development of the city-owned Vernam/
                   8    Limit dredging to the maintenance of established navigation                       Barbadoes Peninsula to previously disturbed areas, to
                        channels.                                                                         preserve wetlands and coastal dune vegetabon.
                   9    DOS should increase enforcement of bans on illegal                          REDEVELOPING WATERFRONT
                        dumping. Clean and fence wetland areas that are subject
                        to illegal dumping.                                                         This reach offers several opportunities for new residential
                   10   Continue funding of federal programs to ensure an uninter-                  development compatible with natural areas.
                        rupted cycle of beach nourishment and erosion control in                    26    Develop the 12-acre upland site fronting on Flatbush
                        the Rockaways.                                                                    Avenue for housing with public access to the adjacent
                                                                                                          marshland. Transfer the 65 acres of Four Sparrow Marsh
                   11   Transfer the wetlands at "Public Place" in Hook Creek to                          to DPR for management as a natural area.
                        DPR.                                                                        27    Rezone a manufacturing area of Mill Basin for low-density
                   12   Transfer all city-owned parcels adjacent to Fresh Creek to                        residential and waterfront commercial uses. Provide public
                        DPR to protect tidal wetlands with sufficient upland buffer.                      access via a new street system.
                   13   Transfer city-owned wetlands in Mott Point to DPR, and                      28    Identify appropriate mixed residential and open space uses
                        acquire a private parcel between the city park and                                for the developable portion of Paerdegat Basin, with design
                        Bayswater State Park for city or state park use. Demap                            guidelines that protect natural areas. Continuous public
                        paper streets through these wetlands.                                             access on both sides of the basin should be provided,
                   14   Transfer certain city-owned lots containing weflands on                           linked to existing city parks. Transfer wetlands adjacent to
                        Sommerville Basin to DPR. Acquire a privately owned parcel                        McGuire Park to DPR.
                        at Conch Drive and B. 51 st Street and transfer to DP R.                    29    Develop the Edgemere Urban Renewal Area in accordance
                   PUBLIC WATERFRONT                                                                      with DCP's Edgemere Neighborhood Land Disposition
                   Jamaica Bay is a major recreational boating resource.                                  Plan.
                   Rockaway Beach offers miles of public beachfront.                                30    Develop the Arverne Urban Renewal Area in accordance
                   15   Map new public parks as recommended in DCP's                                      with the 1990 Urban Renewal Plan.
                        Edgemere Neighborhood Land Disposition Plan.
                   16   In cooperation with DRP and National Parks Service,
                        identity possible sites tor boat launches in GNRA.







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                                                                                                                                                                                                                  .







                                                REACH 18: STATEN ISLAND NORTH SHORE

                 Location: North Shore of Staten Island from Bard Avenue to Fort Wadsworth along the Kill Van Kull and Upper
                 New York Bay
                 Upland Neighborhoods: New Brighton, St. George, Tompkinsville, Stapleton, Clifton, Rosebank, Fort Wadsworth,
                 Shore Acres
                 Shoreline: mostly bulkhead north of Alice Austen Park, interspersed natural and bulkhead from Alice Austen Park
                 to Fort Wadsworth
                 Land UselZoning: The waterfront is zoned for manufacturing uses (MI-M3) from Snug Harbor to Alice Austen
                 Park, except for a small C3 area at Bay Street Landing, The waterfront in southern section is parkland, R 1 and R4
                 low-density residential, a coast guard facility, and the unimproved Battery Weed section of Gateway National
                 Recreation Area (GNRA). Shore Acres and Von Briesen Park are partially within the Special Natural Area (NA-3)
                 District. Upland is mostly R3 to R6 residential, except for the C4-2 zoned civic center area of St. George. Much
                 of the upland is within the Special Hillsides District.
                 Shorefront Parkland: Sailor's Snug Harbor Cultural Center, Alice Austen Park, Von Briesen Park

                                                        SUMMARY OF RECOMMENDATIONS
                 NATURAL WATERFRONT                                                    13 Encourage National Parks Service to develop and
                 Numerous oil spills have plagued the Kill Van Kull,                        provide access to Battery Weed section of Gateway.
                 harming water quality, while deteriorating piers have                 14   Realign fencing at Nautilus Avenue pumping station to
                 contributed to harbor drift. Shoreline erosion is an issue                 provide pedestrian access to shoreline.
                 along the bluffs in parks and at street ends from Alice
                 Austen Park to Battery Weed, and at Snug Harbor.                      WORKING WATERFRONT
                 1   Establish indigenous vegetation on city-owned bluffs to           The working waterfront includes the ferry terminal and
                     control erosion.                                                  the  Homeport, as well as large vacant, inactive sites.
                 2   Remove derelict piers and wharf structures using Army             15   Acquire North Shore Rail Line and pursue its reactiva-
                     Corps Harbor Drift Program, and reestablish bulkhead                   tion for passenger and freight service.
                     where it has deteriorated.                                        16   Pursue marine-related commercial uses for Pier 7 after
                 PUBLIC WATERFRONT                                                          the ferry maintenance facility moves to the Coast Guard
                 The reach off ers spectacular views of the Upper Bay and                   Base,
                 Narrows. Opportunities exist to improve physical and                  17   Explore feasibility of ferry service to Midtown Manhattan.
                 visual access. The viewing platform at the ferry terminal
                 is badly deteriorated.                                                REDEVELOPING WATERFRONT
                 3   Implement recommendations of the North Shore                      The vacant Chessie property offers opportunities for
                     Esplanade Plan for improved access and enhanced                   redevelopment that would expand the St. George civic
                     activities.                                                       center and business district. Future improvements to the
                 4   Pursue interim trail use along the North Shore Rail Line          ferry terminal would enhance the island's gateway.
                     right-of-way. Explore a permanent trail as a component            18   Redevelop the Chessle site for moderate-density, mixed
                     of a reactivated North Shore Rail Line.                                residential and commercial uses, with a network of
                 5   Link Snug Harbor and Alice Austen Park with the city-                  public open spaces and preservation of view corridors.
                     wide Harbor Park system.                                          19   Future reconstruction projects at the ferry terminal
                                                                                            should improve the terminal's pedestrian accessibility
                 6   Install descriptive signage and other educational                      and links to St. George, and provide visual connection
                     features at Snug Harbor waterfront to increase public                  to the harbor from the terminal interior.
                     awareness of tidal wetlands resources.                            20   implement recommendations of the Coast Guard Base
                 7   Develop the mapped parkland at Snug Harbor Water-                      Task Force:
                     front and provide access to the shoreline.                                Optimize public access to open areas of the site and
                 8   incorporate an open space component in the redevel-                       the waterfront
                     opment of the Chessie site, including view corridors                      Develop uses to strengthen the economic base of St.
                     from upland streets, and connection from St. Peter's                      George
                     Park to the Ferry Terminal.                                               Redevelopment should respect the site's topography
                 9   Support DPR efforts to improve waterfront open space                      and historic structures
                     at Alice Austen Park and restore the McFarland-Bredt                      Attract water-dependent uses compatible with working
                     House as a community center.                                              waterfront.
                 10  Implement DPR's Von Briesen Park Design Plan to                   21   Explore redevelopment opportunities for the U.S.
                     improve views from the rehabilitated park.                             Gypsum Plant site.
                 11  Explore uses for city-owned parcels adjacent to the               22   Rezone the Wrigley Building and Alice Austen Place
                     Homeport site that would support the esplanade.                        sites to permit lower density development with retail and
                 12  Implement Federal Highway Administration's Homeport                    accessory marina use.
                     Access Improvement Plan.









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                                        significant coastal habitat                                      significant maritime                industrial area

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                       Comprehensive Waterfront Plan                                                 NYC Department of City Planning / Reach Studies






                                                REACH 19: STATEN ISLAND SOUTH SHORE

                      Location: Lower New York Bay and Raritan Bay from Verrazano-Narrows Bridge to Conference House
                      Park
                      Upland Neighborhoods: Midland Beach, South Beach, New Dorp Beach, Oakwood Beach, Great Kills
                      Harbor, Eltingville Beach, Southeast Annadale, Prince's Bay, Tottenville
                      Shorelim. natural
                      Land UselZoning: Waterfront beaches and parkland including large tractsof vacant land and wetlands,
                      some waterfront residential development in southern part of reach; upland low density residential (Rl-
                      R3). C-3 districts in Great Kills and Wolfe's Pond Parks permit marine-related commercial uses. The
                      reach is entirely within the Special South Richmond Development District.
                      Waterfront Parkland: South Beach, Midland Beach, Miller Field, Great Kills Park, Wolfe's Pond Park,
                      Lemon Creek Park, Tottenville Beach, Conference House Park


                                                        SUMMARY OF RECOMMENDATIONS
                      NATURAL WATERFRONT                                              10   Develop a public access program for Confer-
                      Protection of sensitive ecosystems, dunes, beaches                   ence House Park, including roadway signage
                      and wetlands must be balanced against the need for              11   Improve pedestrian connections from upland
                      greater public access. Lemon Creek has been                          communities by zoning changes to encourage
                      designated a Significant Coastal Fish and Wildlife                   commercial uses along principal streets leading
                      Habitat.                                                             to public beaches at Midland Beach. Consider
                      1   Explore feasibility of a system of Transfer of                   additional traffic signals to increase safety.
                          Development Rights (TDR) to protect privately               12   Improve street end access by developing streets
                          owned sensitive areas.                                           to their f ull mapped width. Improvements should
                      2   Develop local program to increase public                         include landscaping, parking areas and
                          awareness of Coastal Erosion Hazard Areas                        promenades.
                          and the regulations and dangers involved.                   13   Create a new public beach area parallel to
                      3   Develop a dune and bluff planting program for                    proposed Father Capodanno Blvd. extension
                          city owned shores.                                               and Cedar Grove Avenue.
                      4   Install bollards at street ends to prevent illegal          14   DPR should develop a master plan for area
                          dumping in public shorefront areas.                              beaches including concessions, increased
                                                                                           recreation opportunities, beach observation
                      5   Transfer city-owned land south of Duval Street                   points, and a study of feasibility of a bike
                          and North of Page Avenue to DPR, and acquire                     pathway system.
                          private land at Butler Manor/Long Pond, for
                          preservation as natural waterfront habitat.                 WORKING WATERFRONT
                      6   DEP should study the Oakwood Beach area                     15 Explore feasibility of ferry service from Great
                          drainage basin and review storm sewer capital                    Kills to Manhattan.
                          program to aid in flooding mitigation; an analysis
                          of existing septic conditions and a complete
                          examination of the water table should also be               REDEVELOPING WATERFRONT
                          completed.                                                  Much of the south shore lacks basic infrastructure
                      7   Transfer Designated Open Space parcels at                   such as storm and sanitary sewers, and a fully built
                          Hylan Blvd between Preston and Retford streets              roadway system. These limitations are constraints on
                          and at Nelson Avenue and Tennyson Drive to                  future development.
                          DPR jurisdiction.                                           16 Implement DCP recommendations for the
                                                                                           extension of Father Capodanno Boulevard.
                      PUBLIC WATERFRONT                                               17 Study the appropriate use of city-owned
                      While the South Shore has ample public waterfront,                   property adjacent to Lemon Creek as part of the
                      access, linkages and privatization of street ends are                Neighborhood Land Disposition study.
                      issues.
                      8   Increase accessibility to and awareness of
                          Lemon Creek's natural ecosystem through a trail
                          system and wildlife identification program.
                      9   Study shorefront Designated Open Space
                          network to identify a reconfiguration scheme to
                          allow public access at key points. Reevaluate
                          Designated Open Space boundaries at Mt.
                          Loretto, Tottenville, and Butler Manor/Long Pond.








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                                                       REACH 20: ARTHUR KILL SOUTH

                      Location: Arthur Kill from southern end of Fresh Kills Landfill to northern boundary of Conference
                      House Park

                      Upland Neighborhoods: Rossville, Charleston, Tottenville
                      Shoreline: mostly natural, including significant freshwater and tidal wetlands
                      Land UselZoning: M3 industrial areas intermixed with wetlands in northern sections. Uses include
                      petroleum storage, correctional facilities, sand and gravel yard, and storageldistribution. Kreischerville
                      is a residential community in M1- 1 and M2-1 zones. Tottenville is a low density residential community
                      zoned R3-2 and R3-1, with C3 and M1 waterfront areas used by marinas and the SIRT The reach
                      is entirely within the Special South Richmond Development District.

                      Shorefront Pat*Jand. none



                                                       SUMMARY OF RECOMMENDATIONS

                      NATURAL WATERFRONT                                             REDEVELOPING WATERFRONT

                      Valuable freshwater and tidal wetlands support                 Harborview, a planned banquet hall, restaurant, and
                      important bird colonies. Their proximity to industrial         small hotel, with public access, has been approved
                      uses requires sensitive management                             for the Outerbridge Crossing area. The residential
                                                                                     community of Kreischerville is currently zoned for
                      1   Explore with State DEC a clean-up and                      manufacturing, and should be protected from
                          management program for mapped freshwater                   intrusive industrial uses.
                          wetlands and adjacent areas at Mill Weir Creek.
                                                                                     6    Develop a zoning policy for Rossville and the
                                                                                          Kreischerville area of Charleston, currently
                      PUBLIC WATERFRONT                                                   zoned M1 and M2, to resolve conflicts between
                                                                                          residential and manufacturing uses.
                      There is no mapped parkland on the waterfront in
                      this reach. There are several opportunities to provide         7    Study waterfront area south of the planned
                      new access.                                                         Harborview     development     for    low-density
                                                                                          residential and waterfront commercial uses.
                      2   Improve the Bentley Avenue street end pier to
                          enhance public access.

                      3   Support State Parks acquisition of parcels on
                          Ellis Street for a public boat launch as
                          recommended in their 1988 feasibility study.



                      WORKING WATERFRONT

                      The reach's working waterfront includes water-
                      dependent, industrial and municipal uses.

                      4   Widen Arthur Kill Road and eliminate sharp
                          curves to improve safety and circulation and
                          facilitate truck traffic.

                      5   Consider potential of the Bentley Avenue Pier
                          as a ferry landing site.








                                                                                                                              ...........
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                       Arthur Kill South                            Reach 20 Recommendations
                                                                                                                                                                                         Br"X



                                  significant coastal habitat                                 major upland truck route

                                  existing continuous or general access
                                                                                                                                                                                         Queens
                                                                                              approved redevelopment project
                                                                                                                                                            ... .........
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                                                                                     13       potential redevelopment area                                            Bro,"n

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                                  upland extent of park                                       other site specific recommendation                            Island
                       ...............                                                                                                                                                   ... ...
                       .............                                                                                                                                                     . .... .
                                                                                                                                                                      ................... ... ..................
                                  new or improved point access or overpass                4   recommendation key number in text
                                                                                                                                                                                         .......... ........
                                                                                                                                                            ....                         ......
                                                                                                                                                                                         .. ...........
                                                                                                                                                 ... .......          ......................................
                                                                                                                                                                                         ..........


                       Comprehensive Waterfront Plan                                          NYC Department of City Planning                                   Reach Studies










                                                           REACH 21: ARTHUR KILL NORTH

                         Location: Arthur Kill from the New Jersey Rail spur to the southern boundary of Fresh Kills Landfill,
                         including Prall's Island and Isle of Meadows. The reach includes Old Place Creek, Fresh Kills, Neck
                         Creek, Sawmill Creek, and Main Creek, and extensive tidal and freshwater wetlands

                         Upland Neighborhoods: Bloomfield, Travis, Fresh Kills
                         Shoreline: natural, with some bulkhead and piers
                         Land Use/Zoning: M3-1 waterfront with manufacturing uses, including oil storage and the 3,000 acre
                         Fresh Kills Landfill, interspersed among wetlands. Inland M2 and M 1 industrial areas include the Staten
                         Island Industrial Park. The small residential enclave of Travis is zoned R3-2.

                         Shorefront Parkland: Prafls Island, which has restricted public access, and William T Davis Wildlife
                         Refuge on Main Creek, part of the Staten Island Greenbelt


                                                            SUMMARY OF RECOMMENDATIONS

                         NATURAL WATERFRONT                                                 7 Explore possibility of a passive viewing area
                         Management and preservation of natural resources,                        along Saw Mill Creek in Chelsea Marsh.
                         including tidal and freshwater wetlands and valuable
                         habitat, is a major issue in the reach.
                                                                                            WORKING WATERFRONT
                         1   Support designation of Fresh Kills, Prall's Island,
                             and Chelsea Marsh as Significant Coastal Fish                  Manufacturing districts accommodate industrial and
                             and Wildlife Habitats, and transfer Sawmill                    municipal uses. Land in Staten Island Industrial Park
                             Creek Marsh from EDC to DPR.                                   is available for new industrial uses.
                         2   Designate the northwestern section of Staten                   8     EDC disposition policies in the Staten Island
                             Island as the Staten Island Special Natural                          Industrial Park should be sensitive to the
                             Waterfront Area.                                                     environmental significance of the area.
                         3   Seek state and federal funding to establish a                  9     Support expanding the capacity of the Goethal's
                             management and research program for the                              Bridge to improve local and regional truck
                             Upper Arthur Kill to manage and study valuable                       access. Design should minimize disturbance of
                             natural resources in an urban industrial                             wetlands.
                             environment.                                                   10    Acquire the unused Travis Rail Line and pursue
                                                                                                  its reactivization for commuter and freight use,
                                                                                                  possibly including doubling the existing single
                         PUBLIC WATERFRONT                                                        track.

                         Due to the industrial and natural character of the
                         waterfront,  there     is   limited   public     access.
                         Opportunities exist to provide new access points. As
                         portions of the Fresh Kills Landfill are closed, they
                         are being treated for park development.

                         4   Consider public access to Main Creek, as well
                             as environmental trails, for the Mohlenhoff
                             Nursery Property which has been acquired by
                             DPR.

                         5   Examine the feasibility of a public trail com-
                             ponent of a reactivated Travis Rail Line.

                         6   Preserve Victory Blvd. street end as public open
                             space, and identify local constituencies, such as
                             schools, to care for and maintain the space.









                                                                                                                                                                                                                                                                                                             10
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                                          MAP A.21

                                                                                                           9
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                                                                                                           Goethal's
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                                                                                                           Bridge
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                                                                                                                                                                                                                       Staten Island
                                                                                                                               ................
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                                                                                                                               ............. I....
                                                                                                                               .................
                                                                                                                               ......... ..
                                                                                                                                                                       I                                               Industrial Park 8
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                                                                                                                                                                       IL
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                                                                                                                               ..............
                                                                                                                               ..............                          L
                                                                                                                                             ..........
                                                                                                                                                                                                Chelsea Marsh
                                                                                                                               ......... .
                                                                                                                               .............
                                                                                                                               ...... :::: -4.                                                  (Sawmill Creek) 1, 7
                                                                                                                               ......        ........
                                                                                                           1                   Prall!s .......
                                                                                                                               Islan
                                                                                                           .......             .................
                                                                                                           .............       .............
                                                          3 Upper
                                                                                                                               ............
                                                                                                                                             .............
                                                          Arthur                                                                                                                                          .....
                                                             KIll
                                                                                                           ........                          ....
                                                                                  ....                     ..........                                                                             ...........
                                                                                                           ,.......                          ....
                                                                                                           ........                                          4 Mohlenoff
                                                                                                                                                                                               ..........
                                                                                                           ........                          ...................                               ........
                                                                                                                                             ....................
                                                                                                                                                                                                                           William B. Davis
                                                                                                                                                                       Nursery
                                                                                                                                                                                                                            Wildlife Refuge
                                                                                                                               ................

                                                                                                                               ...............
                                                                                                                               ..............
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                                                                                                                                                  Victory
                                                                                                                                                                                 . ........ .                                                                                             .. ... ..        .....
                                                                                                                                                                                 . ....... ..
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                                                                                                                                                  Blvd.        6                                                                                                                ........
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                                                                                                                                                        . ............ .. ........
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                                                                                                                                                                                                                                                      - Rx.


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                                                                                                                                             Kills
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                                      ......................................      ......*                  ..... .
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                                      .............................          ... ...    **** *             ...
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                                                                     .....  :,:,:...................       X........
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                                                                                                           1 MILE


                                      Arthur Kill North                                                                        Reach 21 Recommendations                                                                                                                                                             .......
                                                                                                                                                                                                                                                                                                he
                                                                                                                                                                                                                                                                                              Bronx YN
                                                                                                                                                                                                                                                                                                          ....... ...


                                                                                                                                                                                                                                                                                                  ...............
                                                                                                                                                                                                                                                                                              ........ .........

                                                          significant coastal habitat                                                        . . . .         upland trail and rail

                                                          existing continuous or general access                                                                                                                                                                                                   Ousens
                                                                                                                                                             approved redevelopment project
                                                          Iproposed continuous or general access                                             [3              proposed redevelopment area                                                                                        Irooklyn
                                                                                                                                                                                                                                                                                Brooklyn

                                                                                                                                                                                                                                                              Staten
                                                                                                                                                                                                                                                              Island
                                                          upland extent of park                                                                              other site specific recomm4
                                                                                                                                                                                                            ?ndation                                                                                       ....... ..
                                                                                                                                                                                                                                                              Isla

                                                                                                                                                                                                                                                                    .....       . ....   ......
                                                                                                                                                                                                                                                                    ... . .. ... ...
                                                                                                                                                                                                                                                                    ... . . . ... .......        ....................
                                                                                                                                                                                                                                                                                     .. ........
                                                                                                                                                                                                                                                                ..... . ... .....          ...............
                                                          new or improved point access                                                       20              recommendation key number in text                                                                                      : :
                                                                                                                                                                                                                                                                                                      ..... ..............
                                                                                                                                                                                                                                                                                                              .............
                                                                                                                                                                                                                                                                                              .............        .........

                                                                                                                                                                                                                                                              ................
                                                                                                                                                                                                                                                              ...................                             . ....
                                                                                                                                                                                                                                                                    ...........


                                      Comprehensive Waterfront Plan                                                                                     NYC Department of City Planning / Reach Studies









                                                                   REACH 22: KILL VAN KULL

                         Location: Kill Van Kull, from Old Place Creek to Bard Avenue, including Shooter's Island
                         Upland Neighborhoods: Arlington, Old Place, Graniteville, Mariners' Harbor, Port Richmond,
                         Livingston Manor, West New Brighton
                         Shoreline: mostly bulkhead, with natural shoreline in the Port IvorylHowland Hook area
                         Land Us&Zoning: M 1, M2, and M3 zoned industrial waterfront includes maritime uses and significant
                         vacant sites. R3 to R5 zoned residential communities south of Richmond Terrace.

                         Shorefront Parkland: Faber Park



                                                             SUMMARY OF RECOMMENDATIONS

                         NATURAL WATERFRONT                                                    WORKING WATERFRONT

                         The western end of the reach contains significant                     The Kill Van Kull is on the main route to Port
                         tidal and freshwater wetlands. These areas are the                    Elizabeth/Port Newark and is an important center of
                         core of the "Harbor Herons" wetlands and wildlife                     water-dependent maritime support activities. The
                         complex.                                                              continued viability of existing industrial uses, and the
                                                                                               reactivization of vacant facilities depends, in part, on
                         1   Support designation of Goethal's Bridge Pond                      improving the area's accessibility. The vacant
                             and Shooter's Island as Significant Coastal Fish                  Howland Hook Containerport is the city's largest
                             and Wildlife Habitats.                                            maritime facility.
                         2   Transfer city owned parcels in Mariner's Marsh                      8  Designate the Kill Van Kull as a Significant
                             to DPR jurisdiction.                                                   Maritime and Industrial Area.
                         3   Designate the northwestern section of Staten                        9  Acquire the North Shore Rail Line and pursue
                             Island as the Staten Island Special Natural                            its reactivization for passenger and freight
                             Waterfront Area.                                                       movement.

                         4   Continue efforts to acquire private land in areas                 10   Reestablish the bulkhead where shoreline deter-
                             recommended in the Harbor Herons report and                            ioration has occurred.
                             place under DPR or private land trust
                             jurisdiction.                                                     11   Improve Richmond Terrace, repair sidewalk and
                                                                                                    curbs, and open the mapped but unbuilt portion
                                                                                                    between Bement Avenue and Pelton Avenue to
                         PUBLIC WATERFRONT                                                          eliminate sharp curve.
                         Because of the reach's industrial character, public                   12   The proposed Newark Bay sludge processing
                         access to the waterfront is limited.                                       facility in the western portion of the reach should
                                                                                                    explore the feasibility of waterborne or rail
                         5   Explore possibility of an interim trail use of the                     transportation.
                             North Shore Rail Line, pending its reactivization.
                             Plans for reactivization should investigate feasi-
                             bility of shared rail/trail use.                                  REDEVELOPING WATERFRONT
                         6   Create street-end public access at the end of                     13 New waterfront development should be limited
                             Port Richmond Avenue, and link it to the Port                          to uses allowed by the area's industrial zoning.
                             Richmond commercial center using design
                             treatment.

                         7   Create street-end public access at Ferry Street,
                             Bard Avenue, Harbor Road, and Nichols
                             Avenue.










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                                               MAP A.22                                                                                                                              ............................ ..                     .............
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                                                                        New                                                                                                          w                                                                                                 New
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                                                                        Jersey                                                                                                                                                                                                      Jersey

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                                                                                                                                 .......                                             ........... ... ..........                                                                            ......
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                                                                                                                                                                                                                                                                                              Fleach Is
                                                                                                                                                                                                           . ...........

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                                                                        ................
                                                                                                                                                      .. ..........         ...........
                                                                                                   N     wark Bay
                                                                                                                                                                                                                                                     WAS
                                                              ...... ...                    sludge facility 12


                                                                                                                                                                                                                                                                                                        lp
                                                                                          North                                                                                                                                                                   Richmond
                                                                                                                                                                            shore
                                                                                                                       ............                                                                                                                              Terrace 11
                                                                                                    x*                           ...

                                                                                                                                           Goethal's                        -S-                                                 -10
                                                              X                      Mariner's
                                                                                                                                                                                                                                0
                                                                                     Marsh               2                                 Bridge
                                                                                                                                                                                                                                0
                                                                                                                                           Pond 1
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                                               ................         ....

                                                              .......   ....
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                                                                                                         MILE


                                      Kill Van Kull                                              Reach 22 Recommendations
                                                                                                                                                                                                                                                                                               The
                                                                                                                                                                                                                                                                                              Bronx



                                                              significant coastal habitat                                                                     significant maritime                 industrial area

                                                                                                                                                                                                                                                                                                   Oueens
                                                              existing continuous or general access                                                           approved redevelopment project
                                                                                                                                                                                                                                                          ... . ......
                                                                                                                                                                                                                                                          ...          .......
                                                              proposed continuous or general access                                          13               proposed redevelopment area                                                                                        Brooklyn

                                     - - - -                  upland rail /trail
                                                                                                                                                                                                                                                                                                             ...........
                                                                                                                                                              other she specific recommendation
                                                                                                                                                                                                                                                      Staten
                                                                                                                                                                                                                                                                                 ........ ....
                                                                                                                                                                                                                                                      Island
                                                                                                                                                                                                                                                                  ...............
                                                              new or improved point access                                                     20             recommendation key number in text                                                                                      ia:
                                                                                                                                                                                                                                                                                 ............... ..... ....... .........................
                                                                                                                                                                                                                                                                                 .........................  ...............
                                                                                                                                                                                                                                                                        ..................................................
                                                                                                                                                                                                                                                         ......................  1-1-1   ............. I ..................
                                                                                                                                                                                                                                                         .....I..........................................................
                                                                                                                                                                                                                                                       ....................      ..... ....  ................................

                                                                                                                                                                                                                                                                                                 . . ... . ....    ........


                                     Comprehensive Waterfront Plan                                                                                       NYC Department of City Planning                                                                                         Reach Studies









                    APPENDIX B
                    WATERFRONT REVITALIZATION PROGRAM POLICIES


                    POLICY I                                                    POLICY 7
                    Restore, revitalize, and redevelop deteriorated             Significant coastal fish and wildlife habitats will
                    and underutilized waterfront areas for com-                 be protected and preserved so as to maintain
                    mercial, industrial, cultural, recreational and             their viability as habitats.
                    other compatible uses.
                    NEW YORK CITY POLICY A                                      POLICY 8
                                                                                Protect fish and wildlife resources in the coast-
                    Improve urban shorelines by maintaining, re-                al area from the introduction of hazardous
                    moving or recycling waterfront structures                   waste and other pollutants which bioaccumu-
                    (piers, docks, wharves, etc.) in accordance with            late in the foodchain or which cause significant
                    waterfront development policies and plans.                  sublethal or lethal effect on those resources.
                    Identify alternative uses for underutilized
                    waterfront structures.                                      POLICY 9
                    POLICY 2                                                    Expand recreational use of fish and wildlife
                    Facilitate the siting of water dependent uses               resources in coastal areas by increasing access
                    and facilities on or adjacent to coastal waters.            to existing resources, supplementing existing
                                                                                stocks and developing new resources.
                    NEW YORK CITY POLICY B
                    Improve channels as necessary to maintain and               POLICY 10
                    stimulate economic development.                             Further develop commercial finfish, shellfish
                                                                                and crustacean resources in the coastal areas
                    POLICY 3                                                    by encouraging the construction or improve-
                    Promote the development and           use of the
                    state,s ma .or ports as centers of commerce and             ment of existing on-shore commercial fishing
                    industry,  )emphasizing the siting, within port             facilities, increasing marketing of the state's
                    areas, of land use and development which is                 seafood products, maintaining adequate stocks
                    necessary to, or in support of, the waterborne              and expanding agricultural facilities.
                    transportation of cargo and people. The state's             POLICY 11
                    major ports are the ports of Albany, Buffalo,               Buildings and other structures will be sited on
                    New York, Ogdensburg, and Oswego.                           the coastal area so as to minimize damage to
                    POLICY 4                                                    property and the endangering of human lives
                    Strengthen the economic base of smaller harbor              by flooding and erosion.
                    areas by encouraging the development and                    NEW YORK CITY POLICY C
                    enhancement of those activities which have                  Provide shorefront protection against coastal
                    provided such areas with a unique identity.                 erosion hazards where there is public benefit
                    POLICY 5                                                    and public use along non-public shores.
                    Encourage the location of development             in
                    areas where public services and facilities essen-           NEW YORK CITY POLICY D
                    tial to such development are adequate.                      Provide technical assistance for the identifica-
                                                                                tion and evaluation of erosion problems, as
                    POLICY 6                                                    well as the development of erosion control
                    Expedite existing permit procedures in order                plans along privately-owned eroding shores.
                    to facilitate the siting of development activities
                    at suitable locations.










                    NEW YORK CITY POLICY E                                       or reconstruction of erosion control structures,
                    Implement public and private structural flood                only where the public benefits clearly outweigh
                    and erosion control projects only when:                      their long term monetary and other costs
                                                                                 including their potential for increasing erosion
                    ï¿½   Public economic and environmental bene-                  and their adverse effects on natural protective
                        fits exceed public economic and environ-                 features.
                        mental costs.
                    ï¿½   non-structural solutions are proven to be                POLICY 17
                        ineffective or cost prohibitive;                         Non-structural measures to minimize damage
                                                                                 to natural resources and property from flooding
                    ï¿½   projects are compatible with other coastal               and erosion shall be used whenever possible.
                        management goals and objectives, including
                        aesthetics, access and recreation;                       POLICY 18
                    ï¿½   adverse environmental impacts are mini-                  To safeguard the vital interest of the State of
                        mized-,                                                  New York and of its citizens in the waters and
                                                                                 other valuable resources of the State's coastal
                    ï¿½   natural protective features are not im-                  area, all practicable steps shall be taken to
                        paired; and,                                             ensure that such interests are accorded full
                    ï¿½   adjacent (downdrift) shorelines are not ad-              consideration in the deliberations, decisions
                        versely affected.                                        and actions of state and federal bodies with
                                                                                 authority over those waters and resources.
                    POLICY 12
                    Activities or development in the coastal area                POLICY 19
                    will be undertaken so as to minimize their                   Protect, maintain and increase the level and
                    adverse effects upon natural features which                  types of access to public water-related recre-
                    protect against flooding and erosion.                        ation resources.

                    POLICY 13                                                    POLICY 20
                    The construction or reconstruction of erosion                Access to the publicly owned foreshore or
                    protection structures shall be undertaken only if            water's edge, and to the publicly owned lands
                    they have a reasonable probability of controlling            immediately adjacent to these areas shall be
                    erosion for at least thirty years as demonstrated            provided, and it shall be provided in a manner
                    in design and construction standards and/or                  compatible with the adjoining uses. To ensure
                    assured maintenance or replacement programs.                 that such lands remain available for public use,
                    POLICY 14                                                    they will be retained in public ownership.
                    The activities and development including the                 POLICY 21
                    construction or reconstruction of erosion pro-               Water dependent and water enhanced recre-
                    tection structures, shall be undertaken so that              ation will be encouraged and facilitated, and
                    there will be no measurable increase in erosion              will be given priority over non-water-related
                    nor flooding at the site of such activities nor              uses along the coast.
                    development at other locations.
                    POLICY 15                                                    NEW YORK CITY POLICY F
                    Mining, excavation, or dredging in coastal                   Priority shall be given to the development of
                    waters shall not significantly interfere with the            mapped parklands and appropriate open space
                    natural coastal processes which supply beach                 where the opportunity exists to meet the
                    materials to land adjacent to such waters and                recreational needs of.
                    shall be undertaken in a manner which will
                    not cause an increase in erosion of such lands.              0 immobile user groups; and
                    POLICY 16                                                    0 communities without adequate waterfront
                    Public funds shall be expended for activities                    park space and/or facilities.
                    and development, including the construction









                     NEW YORK CITY POLICY G                                       increase shoreline erosion or flooding or inter-
                     Maintain and protect New York City beaches                   fere with the production of hydroelectric
                     to the fullest extent possible.                              power.

                     POLICY 22                                                    POLICY 29
                     Development when located          adjacent to the            Encourage the development of energy resourc-
                     shore will provide for water-related recreation-             es on the outer continental shelf (OCS) and in
                     al activities whenever such recreational use is              other water bodies and ensure the environ-
                     appropriate in light of reasonably anticipated               mental safety of such activities.
                     demand for such activities, and the primary                  POLICY 30
                     purpose of the development.                                  Municipal,      industrial     and      commercial
                     POLICY 23                                                    discharge of pollutants, including but not
                     Protect, enhance and restore structures, dis-                limited to, toxic and hazardous substances,
                     tricts, areas or sites that are of significance in           into coastal waters will conform to state water
                     the history, architecture, archeology or culture             quality standards.
                     of the state, its communities, or the nation.                POLICY 31
                     NEW YORK CITY POLICY H                                       State coastal area policies and management
                     Insure ongoing maintenance of all waterfront                 objectives of approved local waterfront revital-
                     parks and beaches to promote full use of                     ization programs will be considered while
                     secure, clean areas with fully operable facilities.          reviewing coastal water classifications and
                                                                                  while modifying water quality standards;
                     POLICY 24                                                    however, those waters already over-burdened
                     Prevent impairment of scenic resources of                    with contaminants will be recognized as being
                     statewide significance.                                      a development constraint.
                     POLICY 25                                                    POLICY 32
                     Protect, restore and enhance the natural and                 Encourage the use of alternative or innovative
                     man-made resources which are not identified                  sanitary waste systems in smaller communities
                     as being of statewide significance but which                 where the cost of conventional facilities are
                     contribute to the overall scenic quality of                  unreasonably high, given the size of the exist-
                     coastal area.                                                ing tax base of these communities.
                     POLICY 26                                                    POLICY 33
                     Conserve and protect agricultural lands in the               Best management practices will be used to
                     state's coastal area.                                        ensure the control of stormwater runoff and
                     POLICY 27                                                    combined sewer overflows draining into coast-
                     Decisions on    the siting and construction of               al waters.
                     major energy facilities in the coastal area will             POLICY 34
                     be based on public energy needs, compatibility               Discharge of waste material into coastal waters
                     of such facilities with the environment and the              from vessels under the state's jurisdiction will
                     facility's need for a shorefront location.                   be limited so as to protect significant fish and
                     NEW YORK CITY POLICY I                                       wildlife habitats, recreational areas and water
                     Siting of liquified and substitute natural gas               supply areas.
                     facilities, including those associated with the              POLICY 35
                     tankering of such gas, shall take into consider-             Dredging and dredge spoil disposal in coastal
                     ation state and national energy needs, public                waters will be undertaken in a manner that
                     safety concerns and the necessity for a shore-               meets existing state dredging permit require-
                     front location.                                              ments and protects significant fish and wildlife
                     POLICY 28                                                    habitats, aesthetic resources, natural protective
                     Ice management practices shall not damage                    features, important agricultural lands and
                     significant fish and wildlife and their habitats,            wetlands.










                   POLICY 36                                                  POLICY 40
                   Activities related to the shipment and storage             Effluent discharged from major steam electric
                   of petroleum and other hazardous materials                 generating and industrial facilities into coastal
                   will be conducted in a manner that will pre-               waters will not be unduly injurious to fish and
                   vent or at least minimize spills into coastal              wildlife and will conform to state water quality
                   waters: all practicable efforts will be undertak-          standards.
                   en to expedite the cleanup of such discharges;
                   and restitution for damages will be required               POLICY 41
                   when these spills occur.                                   Land use or development in the coastal area
                                                                              will not cause national or state air quality
                   POLICY 37                                                  standards to be violated.
                   Best management practices will be utilized to
                   minimize the non-point discharge of excess                 POLICY 42
                   nutrients, organics and eroded soils into coast-           Coastal management policies will be consid-
                   al waters.                                                 ered if the state reclassifies land areas pursuant
                                                                              to the prevention of significant deterioration
                   POLICY      38                                             regulations of the federal clean air act.
                   The quality and quantity of surface water and
                   groundwater supplies will be conserved and                 POLICY 43
                   protected particularly where such waters con-              Land use or development in the coastal area
                   stitute the primary or sole source of water                must not cause the generation of significant
                   supply.                                                    amounts of the acid rain precursors: nitrates
                                                                              and sulfates.
                   POLICY 39
                   The transport, storage, treatment and disposal             POLICY 44
                   of solid wastes, particularly hazardous wastes,            Preserve and protect tidal and freshwater
                   within coastal areas will be conducted in such             wetlands and preserve the benefits derived
                   a manner so as to protect groundwater and                  from these areas.
                   surface waters supplies, significant fish and
                   wildlife habitats, recreational areas, important
                   agricultural lands and scenic resources.

                   NEW YORK CITY POLICY J
                   Adopt end-use plans for landfill areas which
                   specify the following:
                   ï¿½   final capacity

                   ï¿½   final contours

                   ï¿½   leachate, erosion and gas control systems
                   ï¿½   re-vegetation strategies

                   ï¿½   interim review schedules

                   NEW YORK CITY POLICY K
                   Curtail illegal dumping throughout the coastal
                   zone and restore areas scarred by this practice.

                   NEW YORK CITY POLICY L
                   Encourage energy development from waste and
                   waste landfills.








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                              Guidelines and Criteria for Water-Dependent Uses and Floating Structures (draft). September 1991.









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                                Recreation and Open Space in New York City: Community Districts with Lowest Parkland/Popula
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                                Waterborne Freight Transportation Stud       New York: Department of City Planning, May 1990.

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                          The North Shore Esplanade, Staten Island, New York. New York: Department of City Planning, 1988.

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                                Urban Waterfronts: Accent on Access. Washington, D.C.: Waterfront Press, 1989.

                                Fishing Piers: What Cities Can Do. Washington, D.C.: Waterfront Press, 1986.

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                          of Planning, 1990.









                  ACKNOWLEDGEMENTS


                  The Comprehensive Waterfront Plan could not have been produced without the support and advice
                  of scores of government officials and public-spirited citizens. The Department was indeed fortunate
                  to be able to rely on the knowledge and experience of a citywide advisory committee representing
                  diverse interests with a stake in the ftiture of the waterfront. At meetings throughout the year,
                  committee discussions sparked ideas that helped shape the plan, and individual members provided
                  or verified information needed to formulate its strategies. This is not to say that every member
                  endorses all the plan's recommendations. The Department of City Planning is solely responsible for
                  these planning and zoning proposals, and for any omissions or misstatements in this report.

                  Comprehensive Waterfront Plan Advisory Committee participants include:
                  American Institute of Architects                           Gateway National Recreation Area
                  Frances Halsband, President, New York Chapter              Kevin Buckley, Superintendent
                                                                             Don Riepe
                  American Planning Association
                  Sigurd Grava, President, New York Metropolitan             Manhattan Borough President
                  Chapter                                                    Honorable Ruth W. Messinger
                                                                             Marla Simpson, Director of Land Use Planning
                  Bronx Borough President                                    Richard Bass, Pepi Ertag
                  Honorable Fernando Ferrer
                  Bernd Zimmermann, Director of Planning                     Municipal Art Society
                  Kevin Nunn, Rick Pantaleoni                                Kent Barwick, President


                  Brooklyn Borough President                                 Natural Resources Defense Council
                  Honorable Howard Golden                                    John Adams, Executive Director
                  Jon Benguiat, Director of Planning                         Renee Skelton

                  Citizens Housing and Planning Council                      Neighborhood Open Space Coalition
                  Joseph B. Rose, Executive Director                         Tom Fox, Executive Director

                  The City Club of New York                                  New York Building Congress, Inc.
                  Peter Samton, President                                    Louis J. Coletti, President

                  City Council of New York                                   New York City Department of Business Services
                  Honorable Jerry L. Crispino                                Wallace Ford 11, Commissioner
                  Honorable Stephen DiBrienza                                Richard Ashton
                  Honorable Jerome O'Donovan
                  Gail Benjamin, Eric Friedman, Andrew Lynn                  New York City Department of Environmental
                                                                             Protection
                  Coalition for the Bight                                    Albert F. Appleton, Commissioner
                  Eugenia M. Flatow, Coordinator                             Betsy Adamson, Robert Alpern, Carolyn Summers

                  Economic Development Corporation                           New York City Department of General Services
                  Carl Weisbrod, President                                   Kenneth J. Knuckles, Commissioner
                  Ann Buttenwieser, David Henley, Jametta Johnson            Margo Moehring










                       New York City Department of Housing                               Queens Borough President
                       Preservation & Development                                        Honorable Claire Shulman
                       Felice Michetti, Commissioner                                     Peter Magnani, Deputy Borough President
                       Mary Bolton                                                       Douglas Hardy

                       New York City Department of Parks and                             Real Estate Board of New York, Inc.
                       Recreation                                                        Steven Spinola, President
                       Betsy Gotbaurn, Commissioner                                      Eric Deutsch, Michael Slattery
                       Jane Cleaver, Mark Matsil, Jane Parshall,
                       Barbara Walz, Stephen Whitehouse                                  Regional Plan Association
                       New York City Department of Transportation                        Richard Anderson, Former President
                       Lucius J. Riccio, Commissioner                                    Staten Island Borough President
                       Alan Olmsted                                                      Honorable Guy V. Molinari
                       New York City Partnership                                         Paul Bonfilio, Director of Land Use Planning
                       Ronald K. Shelp, President                                        U.S. Army Corps of Engineers
                                                                                         Colonel R. Danielson, AUS, N.Y. District, Corps
                       New York Maritime Association                                     of Engineers
                       Nicholas Cretan, Executive Director                               Joseph Seebode

                       New York State AFL-CIO
                       Edward Panarello, Assistant to the President                      The Department is also grateful to the many
                                                                                         members of community boards, local public offi-
                       New York State Department of State                                cials and neighborhood organizations for their
                       Honorable Gail Shaffer, Secretary of State                        interest and helpful suggestions during the develop-
                       George Stafford, Director, Division of Coastal                    ment of the plan and individual reach studies. We
                       Resources and Waterfront Revitalization                           expect that dialogue to continue as the plan is
                       Programs                                                          reviewed and the reach studies are readied for
                       Sally Ball                                                        publication.
                       New York State Department of Environmental                        Sylvia Deutsch and Con Howe, former Director
                       Conservation                                                      and Executive Director of the Department, and
                       Thomas C. Jorling, Commissioner                                   Barry Seymour, former Acting Director of the
                                                                                         Waterfront and Open Space Division, were instru-
                       Carol Ash, Regional Director                                      mental in laying the groundwork for the plan. We
                                                                                         are pleased that their early efforts have borne fruit.
                       New York State Office of Parks, Recreation &
                       Historic Preservation                                             The plan was made possible by the financial sup-
                       Orin Lehman, Commissioner                                         port of the United Nations Development Corpora-
                       Elizabeth Goldstein, Regional Director                            tion and the New York State Department of State.
                       Hector Aponte, John Bagley                                        We deeply appreciate their generosity and encour-
                                                                                         agement.

                       The Parks Council
                       Linda Davidoff, Executive Director                                A final word of thanks to countless others, too
                       Marcia Reiss                                                      numerous to name, who helped produce the city's
                                                                                         first comprehensive waterfront plan.

                       Port Authority of New York and New Jersey
                       Stanley Brezenoff, Executive Director
                       Dan Maynard, Rita Schwartz









                   DEPARTMENT OF CITY PLANNING


                   Richard L. Schaffer, Director                                  Zoning and Urban Design
                   Rosina K. Abramson, Executive Director                         Marilyn Mammano, Director
                                                                                  Tony Levy, Deputy Director
                   William Bernstein, Deputy Executive Director                   Anthony Patrissi, Chief Engineer
                   Carol Clark, Deputy Executive Director,                        Lauren Otis, Chief Urban Designer
                                 Intergovernmental Relations                      Jeffery Sugarman
                   Andrea Katz, Special Assistant to the Chairman                 Thomas Wargo
                                                                                  Interns:
                   William Valletta, Counsel                                      Amy Bodek, Cleri Machlouzarides, Brent Ryan
                   Barbara Rosen
                                                                                  Housing, Economic and Infrastructure Planning
                   Office of Strategic Planning                                   Eric Kober, Director
                   Sandy Hornick, Deputy Executive Director
                   Richard Barth, Deputy Director                                 Transportation
                   James Heineman                                                 Floyd Lapp, Director
                   Philip Schneider
                                                                                  Environmental Assesment and Review Division
                   Planning Coordination and Support                              Annette Barbaccia, Director
                   Barbara Weisberg, Assistant Executive Director
                   Elizabeth Bogen                                                Bronx Office
                                                                                  John Phillips, Director
                   Waterfront and Open Space                                      Balaram Rao, Associate Director
                   Wilbur L. Woods, Director                                      Raymond Curran
                   Douglas Wehrle, Deputy Director
                   Karen Votava, Director, Open Space Planning                    Brooklyn Office
                   Patricia Barrera                                               Douglas Brooks, Director
                   Xiomara Chang                                                  Karen Burkhardt, Former Director
                   Catherine Faughnan                                             Thomas Angotti
                   Adam Gelfand                                                   Joseph Hayman
                   Eva Hanhardt                                                   Jeremy Walsh
                   Kirsti Jutila
                   James McConnell                                                Manhattan Office
                   Sheila Metcalf                                                 Robert Flahive, Director
                   Kieran Pape                                                    Jacquelyn Harris-Strobert, Deputy Director
                   Interns:                                                       Peter Pfeffer
                   Gabriel Arevalo, Steve Hayes, Andrew Ingram,
                   Helene Kopal, Sharen Kowalowsky, Karen Macho,
                   Jane Mark, Irene Shum










                     Queens Office                                               The following Department of City Planning staff,
                     Dennis Ferris, Director                                     past and present, also contributed to the prepara-
                     Victor LePlattenier, Deputy Director                        tion of the Comprehensive Waterfront Plan and to
                                                                                 the production of this report.
                     Syed Ahmed
                     Penny Lee                                                   Robert Amsterdam, Vivian Awner, Barbara Bartlett,
                     Fred Lee                                                    Neil Baumler, Deborah Carney, Frank Cartalano,
                     Betty Mackintosh                                            Sharnpa Chanda, Michael Chin, Nestor Danyluk,
                                                                                 Barry Dinerstein, Robert Dobruskin, Dana Driskell,
                                                                                 Elizabeth Errico, Holly Haff Rosalie Hoffman,
                     Staten Island Office                                        Shirin Karanfiloglu, Ismail Khan, Manuel Lagares,
                     Pablo Vengoechea, Director                                  Josh Lecar, Carol Levine, Robert Mazzucco, Darlene
                     Mitchell Korbey, Deputy Director                            McCloud, Michael Miller, Joshua Moreinis, Barbara
                                                                                 Murray, Regina Myer, Bruce Niss, Marilyn Pfeifer,
                     Ronald Meyer                                                Anne Pizzicara, Sergio Rivera, Alejandandro
                     Patricia Weichmann                                          Rodriguez, Bruce Rosen, Rosalind Silver, Susan
                                                                                 Silverman, Nicolae Stossel, Carlos Tejada, jean
                     REPORT PRODUCTION                                           Timberlake, Scott Warner, Bernadette Wawa-
                                                                                 Gittings, Michael Weil, Scott Wise, George Wong,
                     Photography                                                 Douglas Woodward
                     Patricia Barrera, Richard Barth, Raymond Curran,
                     Catherine Faughnan, Kirsti Jutila, Sheila Metcalf,
                     Eustace Pilgrim, Barry Seymour, Wilbur Woods
                     Cover Photo: Patricia Barrera
                     Chapter 3 Photo: Carolyn Summers


                     Maps
                     James McConnell


                     Figures
                     Jeffery Sugarman, Brent Ryan


                     Graphics
                     Stan Shabronsky, Director
                     Carol Lubowski, Text Design and Layout
                     Eustace Pilgrim, Cover Design
                     Walter Boll

                     Michael Greene


                     Word Processing
                     Maria Barbosa, Lucy Baxter, Theresa Buckner,
                     Wendy Niles


                     Reproduction
                     Antonio Mendez, Deputy Director, Operations
                     Steve Roldan



















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