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Coastal Zone Information Center TECHNICAL MEMORANDUM: TASKr 4.2 INTERGOVERNMENTAL PROCESS FOR THE FIRST YEAR--OUTER CONTINENTAL SHELF STUDY INFORMATirOi ;ENT' Property of CSC L:ibrary Prepared by the Department of City Planning--The City of New York The preparation of this document was financially aided through a Federal Grant from the Office of Coastal Zone Management, National Oceanic and Atmospheric Administration, under the Coastal Zone Management Act of 1972. This document was prepared under the Coastal Zone Management Act of 1972 for the Division of State Planning, Department of State. DU.S. DEPARTMENT OF COMMERCE NOAA COASTAl SERVICES CENTER Grant Number: 04-5-158-50002 2234 SOUTH HOBSON AVENUE CHARLESTON, SC 29405-2413 , HC 107 .N7 1 977 =�Ici;M, r, _~ IV. ACTIVITY NO. 4 - INTERGOVERNMENTAL PROCESS (TASK 4.2) Analysis of Local Plans The Department of City Planning did a literature search for pertinent planning documents in the New York City waterfront zone. Planning reports produced by DCP and other City agencies were sur- veyed and four reports were selected. These reports were selected as relevant to the OCS Program, they are: -~~~~~~~~~~~~ - The Economic Recovery Program Report - The Land Use and the Westside Highway Recommendations2; - The Sunset Park Report3; - New York City Response to Natural Disaster/ Major Oil Spillage within New York Harbor and Adjacent Waterways4 Economic Recovery Program The objectives of this 5-year plan to which the City has committ- ed itself are stabilizing business, encouraging economic growth and expansion, and attracting new industry. To meet these goals the spec- ific objectives delineated were: Holding the line on business taxes in general, and reducing taxes particularly burdensome to firms in New York City; Creating an effective and responsive organizational struc- ture within City government to implement the program and provide appropriate services to businesses; Enlisting the assistance of the private sector in the program to revitalize the economy; Expanding tax abatement and other financial assistance pro- grams to stimulate industrial and commercial expansion and new construction; 1. A Technical Advisory Group from the City and Private Sector, December 1976, New York City 2. New York City Planning Commission and the New York City Trans- portation Administration, 1974, New York City 3. New York Department of City Planning, January 1977, New York City 4. Office of the Mayor's Emergency Control Board, January 1975, New York City - Stabilizing energy costs; - Cutting red tape for businesses; - Launching a professional campaign to market the City as a place to do business; - Developing land use policies that encourage job creation; - Increasing City aid to small businesses; - obtaining a fair share of State and Federal aid for economic development programs; - Encouraging the revitalization of commercial districts in both neighborhoods and borough centers. A plan of action in the form of decisive strategies, resulted from these objectives. Strategies with possible OCS implications briefly discussed in this technical memorandum. In attempting to stabilize energy costs, the city is seeking lower-cost alternative sources of electric power by considering the feasibility of lower- cost electric power to tenants in City-owned industrial and commer- cial parks. The alternative is advantageous because the Power Auth- ority of the State of New York (PASNY) will provide lower-cost Canad- ian hydro-electric power to the City in the near future. The site of the proposed power facility is in Travis, on the west shore of Staten Island. This power plant is projected to meet the energy demands of mass transportation and industrial development. This facility may be able to serve future OCS Service Bases in New York City. The 750-acre Staten Island Industrial Park is a possible OCS site and is now being evaluated by DCP. It is in the immediate vicinity of the proposed PASNY power facility. Lower cost energy supplies for future OCS tenants in City-owned industrial parks. it would benefit the City by making City-owned property more attractive for future industrial development. Long Range Development of Alternative Fuels Within the framework of the recovery plan, official City policy related to Offshore Development encourages oil and gas exploration with protective environmental safeguards. With this stated City policy, the intent is to reduce City dependence on imported oil and natural gas shortages by discovering oil and gas deposits in U.S. OCS waters. Such a discovery in New York or nearby would reduce transportation costs for oil and natural gas. Land Use and the Westside Highway Recommendations The Federal Government has guaranteed federal funding for improving and upgrading the Westside Highway. Planning and development of this project has begun. The Westside Highway is a major link between the northern and western sub- urbs and the Central Business District CCBD]-. Over the years the highway has become antiquated, overused and run down. The correlation of this project to the OCS development effort is access to the Hudson River waterfront and its facilities. It is located strategical- ly near surface railway systems, major arterials and CBD distribution centers. Along the Hudson River waterfront area of the 42 pier structures still standing only four are in maritime use. Three are north of 42nd Street. Current City plans for City-owned piers call for their demolition and removal except for Pier 76 near the 30th Street Yards which have developmental poten- tial as OCS Service Bases. The complex is part of the old Penn Central Rail- way System.* Though it is underutilized, it still provides some service to the CBD and nearby industries. This area is the only mid-town site where rail, truck, and river nodes meet. The Westway land use plan recommends expanded freight distribution and industrial activity for the yards. Containerport operations have been suggest- ed. Site criteria and infrastructure coincide with OCS operational require- ments. OCS and containerport freight transfer operations can co-exist in the same waterfront area after modifications. Transfer operations would ben- efit the rail yard by increasing activity. Conversely, the rail yard would be used more effectively and efficiently as a marine-cargo handling facility. Because the Manhattan CBD, with deep water access and transportation complex is complemented by proximity to the financial center, business and service markets and governmental agencies, future land use considerations should include offshore drilling activiites. Sunset Park Report The Northeast Marine Terminal and surrounding area is being developed for containerport operations. The project is now half complete. It has three stages of development (See attachment 2). Though the City fiscal crisis has left the completion date open ended, federal funds are expected to be used to continue work on it. * A DCP summary and map of the frieght Rail System is attached. a. General Sunset Park Waterfront Area - This waterfront area has almost 500 acres of land in underutilized maritime activity. rt is estimated that the activities operating now will increase in the future - employment will grow by 70%, cargo volume by 1.5 million tons. City investment will increase from $50 million to $175 million. Current zoning will be continued. (See Waterfront Breakdown Chart, attachment 3). DCP recommendation for OCS facilities appears in Task 8.6 of this work program. New York City Response to Natural Disaster/Major Oil Spillage in New York an--Adjacent Waterways Summary - The City plan for handling oil spills in the New York Harbor is designed to be coordinated with and integrated with Federal, State and Municipal plans. The objective is to provide coordinated action to augment federal contingency plans. The plan provides: - Specific assignments and duties to City agencies; - Surveillance monitoring system; Emergency Control Center to coordinate and direct operations; -Methods to assess, identify, contain, disperse and remove pollutant discharges; - Schedules for identifying dispersant and other chemicals to be used in cooperation with Federal and State agencies; Reimbursement to agencies for costs incurred removing pollutant dis- charges. The plan discusses Federal responsibility, policy, activities, coordi- nation and municipal responsibility. Coniclusion - The New York City Plan is aimed at assisting federal and state authorities in inland coastal water spillages with focus on spills originating from offshore development areas in.the future. The current City emergency plan which consists of outdated procedures, information and data, should be revised and updated to include OCS related oil spills. The United States Third Coast Guard District just recently completed a revision of the 'Nulti-Agency Oil and Hazardous Materials Pollution Contingen- cy Plan"Tfor the New York region. The City should interface its plan with the regional contingency plan. Finally, the City should establish an effective contingency plan for oil spills. It is an opportunity for the City to devise conservation measures for saving vital energy resources, such as oil. Cost effectiveness can be realized through better utilization of public services. N.Y.C. RAIL SYSTEM HISTORICAL PROFILE Railroad and the New York Central system. The new Corporation assumed operation of, Until the 1960's there were two very and responsibility for the New York, New active railroad competitors operating Haven and Hartford Railroad. The Long in New York City. (1) The New York Island Railroad became a part of the Central system provided access to New Metropolitan Transportation Authorrity. In England as well as service to the West this fashion the two major competitors in via upstate New York. (2) The Penn- New York City disappeared and became one sylvania Railroad (which included the system. In addition, mergers of the subsidiary Long Island Railroad) provided smaller lines occurred. The Erie Railroad service to the West and the South and, and the Delaware Lackawanna and Western through connections with the New York, Railroad merged to form the Erie New Haven and Hartford Railroad, access Lackawanna. The Baltimore and Ohio joined to New England. The Pennsylvania system the Chesapeake and Ohio Railway Company had no direct rail freight connection in later known as the Chessie System. The New York City. It operated car floats Lehigh Valley and the Jersey Central be- from the west bank of the Hudson River to came less important as the other lines float bridges in Manhattan and on Long became larger through the mergers. Island. ~~~~~~~~Two distinct changes in the rail freight A second stratum of competition coexisted service in New York City resulted from with these two larger systems. The Lehigh these rail mergers. First, basic compet- Valley Railroad, the Erie Railroad, the itive arrangements between the New York Delaware, Lackawanna and Western Railroad, Central system and the Pennsylvania Rail- and the Central Railroad of New Jersey all road and its subsidiaries disappeared. served the west bank of the Hudson River, Penn Cente'al dominated freight traffic in operating car floats into New York Harbor. the area. Second, floating became unnec- These lines were of less importance than essary for Penn Central. The New York the New York Central and the Pennsylvania Central line had direct access to New York Railroad systems because they served City by rail through its yard near smaller regions and/or lacked important Selkirk, New York (near Albany). Freight connections to the West and to the South. from the South continued to be transported The Baltimore and Ohio Railroad Company over the old Pennsylvania Railroad route. operated on Staten Island through a sub- sidiary, the Staten Island Rapid Transit FREIGHT TRAFFIC TODAY Company. This line was not competitive with the larger systems either, since it Today almost all freight traffic on the lacked dire~ct access to most of New York ConRail System coming from the South or City. from the West moves through Selkirk, New York and then on to New York City via After World War II the fundamental charac- either the Hudson Division or the New ter of rail freight transportation in New Haven Division (i.e, the old New York, York City -changed through railroad mergers. New Haven and Hartford Railroad). Penn Central Transportation Company was formed by a merger between the Pennsylvania Smaller freight operations in the area 25 N.Y.C. RAIL SYSTEM I: of * 60th Street Yards I /< X 1 33rd Street - 37th Street Yards 2 Mott Haven Yards 3 Harlem Yards 4 Oak Point Yards ...� .. .5 Sunnyside Yards 6 Bay Ridge Yards 7 SIRT B&O Yards :' % ~'""" ~'~;~ FIGURE 4.1 maintain float services to connect to New PASSENGER AND FREIGHT ACCESS York City destinations. New York Dock TO NEW YORK CITY TODAY Railroad and Brooklyn Eastern District Terminal Railroad pick up float traffic at Three lines of the ConRai.l System provide ConRail's Greenville Yards in New Jersey all overland rail access to New York City .and transport the cars via water to lo- (Figure 4.1). cations in New York City. New York Dock also serves float bridges owned by the (1) The New Haven Line, formerly the New Staten Island Railroad Corporation at York, New Haven and Hartford Rail- Saint George, Staten Island, and provides road, enters New York City from the carfloat-in-lieu-of-lighterage services Connecticut shore. The New Haven and lighterage services both to shipside Division operates passenger lines and land locations in New York City. throughout Connecticut and into These two railroads are waterbound car- Boston. It connects with the old riers serving Brooklyn and Queens and are lines of the New York Central System totally dependent, at the present time, to service the West. The New Haven's upon floating operations to service their freight business diminished following accounts. World War II because a) imported oil began to replace coal for electric power generation; b) textile and light manufacturing industries in New 26 England moved out; and c) farm commod- of the country. Penn Central, the main ities switched over to motor carriers railroad serving NewYork City, was in- with the creation of the Interstate cluded. The Act provided for a planning Highway system and the resulting truck process, and created the United States efficiencies. By the middle fifties Railway Association (USRA) as the chief the only way to save the service was rail freight planning organization. to require that the newly formed Penn USRA's mandate was to plan for the cre- Central take it over. Subsequently ation of a for-profit rail freight network Penn Central sold the shore line of in the Northeast. The Regional Rail Re- the New Haven to the Metropolitan organization Act also provided for State Transportation Authority and the and local reconmmendations through a Rail Connecticut Transportation Authority. Services Planning Office, under the Inter- These two agencies sponsor commtuter state Commerce Commission. The USRA services on this line. Amtrak oper- issued its "Final System Plan" for the ates through passenger service in the ,rail reorganization which was accepted by Northeast corridor over these same Congress. The Plan called for the estab- lines. In addition ConRail operates lishment of a ConRail Corporation in the some freight service out of Selkirk Northeast as a successor to the bankrupt to Devon, Connecticut and then on to railroads. The West Side Freight Line is the New Haven lines of ConRail down included in the ConRail System as are most into New York City. of the other Penn Central freight lines and properties in New York City. (2) The Hudson Division of the ConRail System provides a good freight line ConRail began operations April 1, 1976. along the grade of the Hudson River from Albany. This line consists of three and four tracks, some of which are signalled for running in both directions. Direct land access to Manhattan, the Bronx, Queens and Brooklyn is provided. There is com- muter service on the Hudson Division as well. (3) The Harlem Division of the ConRail Sys- tem provides commiuter service from the north into New Yorlk City but is not used for through freight train service into New York City. REGIONAL RAIL REORGANIZATION ACT OF 1973 In 1973 Congress passed the Regional Rail Reorganization Act to deal with seven bankrupt railroads in the northeast part 27 E- rr I ��Th IIF--7 iL 1 F__ Moore McM Cormick 11_ I E ~ ~ ~ ~ LE ~I-Northeas� * :____ Contai nerporti F-Phaseas I&II Supreme Equipment Cor p. w I w 'I__i _ __ _ __ _rbnl Area- _Meat Market American Machine________ and Foundry Building ___ 'll I I H ellenic Line Pi e r i I-1 ____ T e r m i n a l __ r::ay i de YI -- - II I m m mii ai zzILI ~ cp uprme quimeN appr ii <I I __ U I~~~~ ~ -ppa __nwl ra ira I I l I I BI ~~~Yard1I I I7I _ _ m l___ [71 18,~-- -r ____I 1 _--- ___ _I -I -1 I BROOKLYN COOPERATIVE MEAT DISTRIBUTION CENTER The new Brooklyn Meat Market is located on an 18-acre site between 54th and 57th Streets, on First Avenue. It was developed under a lease between the City and the Brooklyn Cooperative Meat Distribution Center. The City's capital investment, when totally expended in 1977, will total over $24 million. Under the net lease, the Cooperative will return to the City $2.2 million annually. The new market re- places the outmoded Fort Greene Meat Market, located in the Atlantic Terminal Urban Renewal Area. It will contain units for 72 whole- salers within 214,000 square feet. The Department of Ports and Terminals anticipates jobs for 900 workers at the new market. Be- tween 70,000 and 100,000 trips are expected at the facility annually. Plans are being studied to determine whether a rail spur should be built into the meat market complex with funds from the New York rail bond issue. AMERICAN MACHINE AND FOUNDRY BUILDING The Lutheran Medical Center is renovating the former American Machine and Foundry plant at 55th Street and First Avenue, at a cost of $65 million. The building will be the new home of a medical center, which will generate 600 jobs in addition to the employment presently generated by other health facilities in the area. HELLENIC LINE PIER This privately-owned pier at 57th Street is an active breakbulk terminal. Hellenic plans to invest about $1-.4 million to improve the pier. The company also leases a pier at the adjacent Brooklyn Army Terminal. BROOKLYN ARMY TERMINAL The Brooklyn Army Terminal is located on a 100 acre site between 58th and 65th Streets. The Department of Ports and Terminals has submitted a letter of intent to lease, and eventually purchase, the entire site from the Federal government. *Recommendation: The City should acquire the Terminal and plan for redeveloping it in line with the current zoning and overall development plans for the waterfront. BAY RIDGE YARDS The Penn Central Yards on the Bay Ridge waterfront is at the southern- most portion of the industrialized waterfront in Brooklyn. eRecommendation: The City should study possible acquisition of the yards to develop them as an efficient and modern rail classification facility. This is necessary for the successful operation of the Overl-and Rail Route. If developed, the 25-acre site could also accommodate waterborne car-floats. 23 COASTAL ZONE 1i'QRA4AIO; r.,ENTER SUMMARY _ORaTO R The Sunset Park waterfront comprises almost 500 acres of land currently used by or under development for maritime commerce. Over the next five years, the activity generated by existing or proposed facilities will increase employment by 70 percent and cargo volume by 1.5 million tons, or 70 percent. Truck traffic will increase signifi- cantly. The City's investment will grow from $50 million prior to 1975 to a total of $175 million. The continued development of the Sunset Park waterfront for industry, consistent with the current zoning, is recommended. DATE DUE ACRES EST LAND I UNDER WATERFRONT PROJECTS (i LAND WATER TOTAL Brooklyn Meat Market 18 12 30 54-57th St. and 1st Ave. Bush Rail Yards 11.4 11.4 43-54th Street GAYLORD No. 2333 PRINTED IN USA Moore McCormick Piers $10.8 $ 10.8 11 11 22 NE Marine Terminal $ 94.1 213 57 270 Phase I 33-39th St $28.5 $ 28.5 15 10 25 Phase II 28-33rd St. $ 23.5 88 27 115 Phase III 40-50th St. $ 42.1 8.5 110 20 130 Bay Ridge Yards $ 3.1 25 8 33 58-65th St. Brooklyn Army Terminal $25 71 29 100 3 6668 14107 9618L 3 6668 14107 9618 24