Planning for a Resilient Rockaways: - Rockaway Waterfront Alliance

120 Pages·2013·19.08 MB·English

Planning for a Resilient Rockaways:
A Strategic Planning Framework for Arverne East
Waterfront Solutions (NYU):
Alda Chan, Sa Liu, Jon McGrath,
Rossana Tudo, Kathleen Walczak
Acknowledgements
This project was made possible thanks to the support of many individuals and organizations. Waterfront Solutions would like to thank
everyone at Rockaway Waterfront Alliance and NYU Wagner who contributed to this endeavor.
We are grateful to a number of experts and individuals who provided participated in meetings and shared information to support this
report. Thanks to Arjan Braamskamp and Robert Proos (Consulate General of the Netherlands in New York), David Bragdon (NYC
Department of Parks and Recreation), John Boule, (Parsons Brinkerhoff), John Young and Barry Dinerstein (NYC Department of City
Planning), Jonathan Gaska (Queens Community District 14); Gerry Romski (Arverne by the Sea), Michael Polo (NYC Department of
Housing Preservation and Development), Ron Schiffman (Pratt Institute); Ron Moelis and Rick Gropper (L+M Development), and
Steven Bluestone (The Bluestone Organization).
We would like to express our gratitude towards Robert Balder (Cornell Architecture, Art and Planning) and Walter Meyer (Local Office
Landscape) for their guidance and insight during the research process.
Our sincere thanks to faculty advisors Michael Keane and Claire Weisz for their feedback and support throughout this process.
Front and back cover photo credit: Joe Mabel
Table of Contents
Executive Summary.........................................................02 3. Best Practices for Integrated Coastal
Management (Case Studies)......................................45
1. Introduction: Research and Analysis
1.1 Project Goals and Vision...............................................07 4. Vision
1.2 Local History and Character..........................................09 4.1 Planning Framework and Recommendations...............54
1.3 The Effects of Superstorm Sandy and 4.1.a Environmental Resilience.....................................56
Lessons Learned..........................................................10 4.1.b Economic Resilience...........................................65
1.4 Population, Housing, and Socioeconomic Profile..........14 4.1.c Social Resilience..................................................76
1.5 Land Use and Zoning Analysis......................................20 4.2 Next Steps...................................................................90
1.6 Transportation and Circulation......................................31
1.7 Environment and Natural Resources.............................33 5. Notes and Sources......................................................94
1.8 Market Analysis............................................................35
6. Appendix
2. Key Stakeholders and Public Outreach 6.1 Arverne Urban Renewal Area Environmental
2.1 Key Stakeholders.........................................................40 Impact Statement.........................................................99
2.2 Public Outreach Methods and Results......................... 41 6.2 Employment Tables......................................................100
6.3 Migration Tables...........................................................103
6.4 Housing Characteristic Tables......................................106
EXECUTIVE SUMMARY
Arverne East, a waterfront community on 2012 storm, Superstorm Sandy, which dev- Study Recommendations
the Eastern end of the Far Rockaways, astated coastal communities like the Rocka-
Queens contains one of the last remaining ways and dramatically shifted conversations
Environmental Resilience
large expanses of vacant land in New York about the relationship between people,
Goal: Promoting development that antici-
City. Arverne East embodies a rich history of places and the environment. Part four ex-
pate and adapt to short and long-term
coastal seaside communities, the lingering plores a vision for a environmental, economic
environmental changes.
legacy of urban renewal, and the challenges and social resilience through recommenda-
and rewards of being situated on a barrier tions and actionable next steps. Objective I: Incorporating risk and vulnerability
island, with miles of picturesque waterfront. Arverne East presents an opportunity to build assessments into broad decision-making and
The Arverne East site also represents the in a thoughtful, contextual way, by planning mechanisms.
urhban challenges of spurring impactful eco-
leveraging local assets to foster a
nomic development and bringing necessary Recommendations:
community-oriented wellness and
public services to disadvantaged communi- • Guiding growth away from high-risk loca-
recreation hub that serves as model
ties. tions and locating critical facilities in less
for coastal environmental, econom-
vulnerable areas.
ic and social resilience.
The Rockaway Waterfront Alliance (RWA),
• Incentivizing the (re)introduction and pro-
a community-based organization dedicated
This vision for an enriching environment that tection of natural systems and buffers.
to fostering understanding and engagement
provides community services, recreation,
between local community members and the • Retrofitting existing buildings and facilities
employment opportunities and environmen-
waterfront, commissioned this study in the that cannot be relocated.
tal protections emerged from a process of
fall of 2012 to re-initiate conversations around
stakeholder interviews, public outreach, site • Monitoring and updating programs and
the needs and possibilities within Arverne
visits and research which strove to pinpoint plans on regular basis
East. The following document provides a
appropriate responses to current commu- • Participating in New York City’s Local
strategic planning framework based on quali-
nity needs and assets. An intentional focus Waterfront Revitalization Program (LWRP)
tative and quantitative analysis, data gather-
on environmental, environmental and social planning processes and updates to the
ing and public outreach. Part one provides a
resilience can offer protections to current New York City Comprehensive Waterfront
profile of the history, land use, zoning, local
and future community members and visitors, Plan: Vision 2020.
and regional demographics, market trends,
while remaining flexible to accommodate
housing, transportation, socioeconomic • Enforcing the Coastal Zone Management
future trends and changes.
conditions and natural ecology of Arverne Act, which manages coastal resources
East and the Rockaways. Part two explores and balances economic development ob-
key local stakeholders and results from public jectives with environmental conservation.
outreach efforts. Part three addresses key
coastal risks and hazards, particularly in light
of climate change impacts and the October
2 Planning Framework for Arverne East | Executive Summary
Objective II : Integrate complementary soft print by reducing energy demand and en- infrastructure for storm resilience
and hard infrastructure interventions to fortify couraging local renewable energy networks
• Amend/modify current zoning to promote
existing and future structures and functions. to lessen susceptibility to grid disruptions
mixed-uses.
Recommendations: Recommendations:
Objective II: Introduce innovative hotel and
• Replenish the coastline with a vegetated • Green building retrofits in existing struc-
accommodations establishments to fill market
double dune system to protect against tures and energy efficient building de-
gap, provide employment and capitalize upon
storm surges. sign for any new development can help
local tourism and airport proximity.
increase energy efficiency and reduce
• Elevate site above Advisory Base Flood
energy demand.
Elevation (ABFE) levels Recommendations:
• Improve/Adjust building codes to increase • Create a destination that can host day-
• Exploring off-shore mechanisms tha
the sustainability of the buildings. trippers and weekend visitors.
leverage natural forces to provide protec-
tion against the storms and erosion. • Provide energy efficiency information and • Establish a partnership with international
financing. airlines operating at JFK through guest
• Consider multifunctional flood defense
room and meeting/conference space
and stormwater management and reten-
Economic Resilience agreements.
tion mechanisms.
Goal: Bolstering the economic vitality of
• Provide event and conference space, as
• Study feasible resilient building forms and
the area by creating opportunities and
well as catering hall facilities to provide
locations, including mid-rise buildings
establishments that empower and serve
additional amenities to residents and visi-
with flood proof ground-floor uses and/or
the needs and aspirations of current and
tors
environmental buffers.
future residents.
• Incorporate green infrastructure in exist- • Incentivize community ownership/opera-
ing and future developments. Objective I: Developing mixed-use residential tion of facilities
and retail that responds to existing and pro- • Serve as a model for urban ecotourism
• Retrofit and build new infrastructure to be
jected needs and markets. and utilize nearby recreation and environ-
storm-proof.
mentally sensitive regions in and around
• Modernize energy transmission and distri- Recommendations: the peninsula
bution systems. • Introduce medium density mixed-use
housing, office and commercial retail, with
Objective III: Reduce the local carbon foot- elevation and ground-level adaptive green
Planning Framework for Arverne East | Vision 3
Objective III: Invest in new and existing com- • Establish a community garden site as • Active recreational spaces respond to
munity anchors as a way of creating local an experiential and learning center for community needs for spaces and activi-
jobs and strengthening the local economy local residents, integrating its efforts with ties that can serve as a “third place” for all
nutritional, obesity-reduction, and healthy members during times of leisure.
Recommendations: medicine programs.
• Build elevated recreational piers and
• Work closely with St. John’s Episcopal
• Develop additional health-related facilities walkovers (Beach 54th, 44th, 36th
Hospital throughout the Arverne East
and programming to increase opportuni- Streets) that provide north-south connec-
development process to create program-
ties for local residents to stay active and tions to the beach and destination view-
matic and economic linkages.
be healthy. ing areas.
• Create a network of anchors connecting
• Connect to broader parks network,
the Beach 59th Street Rockaway Institute Objective II: Promote social resilience through
including Jamaica Bay and the Gateway
for Sustainable Environment with a new a connectivity and open space interventions
National Recreation Area.
library located between P.S. 106 and the that foster connectivity, exchange, and col-
commercial corridor, encouraging resi- laboration.
Objective III: Promote connectivity and en-
dents to use spaces for social, cultural,
hanced multi-modal transportation network
recreational, and educational activities. Recommendations:
that enables people to access community
• Create a versatile public square as the
• Target a credit union to locate a new spaces, assets, resources and each other.
centerpiece for a larger network of year-
branch in Arverne East.
round recreational destinations for resi-
Recommendations:
dents and visitors.
Goal: Create spaces and uses that pro- • Extend lateral beach road along south
mote positive, healthy interaction and • Develop active recreation nodes near side of site to promote porousness and
exchange, and help build social capital school areas (Beach 32nd and Beach accessibility, and delineate between
and community identity 54th) to encourage outdoor street life beach and development areas.
throughout the day.
• Design complete streets to promote ac-
Objective I : Foster a health and wellness
• Foster short-term uses such as public art cessibility and circulation for people of
district that promotes active, healthy living en-
installations by local and visiting artists or different ages, backgrounds, physical and
vironments through accessibility, connectivity
camping on vacant sites to foster local economic capability.
and health-oriented recreation and commer-
arts, discussion and visitors.
cial uses. • Improve cycling environment and facilities
• Designate a nature preserve along the through demarcated bike lane under the
Recommendations: western portion of the site (Beach 44 Rockaway Freeway train track, as well as
• Establish a community health center to - Beach 55) with walking paths and a bike rack facilities.
provide multiple, non-urgent primary nature education center promoting envi- • Reinstitute ferry service between the
health care services for all residents, in ronmental education and ecotourism. Rockaways and Lower Manhattan.
particular the low income, uninsured and • Create dual-purpose water retention and
• Re-align the road network near the
underinsured members of the community. active area (Beach 44 –Beach 40, behind
intersections of Rockaway Freeway and
• Initiate various activity programs to retail/mixed use) containing active recre- Beach Channel Drive, between Beach
encourage healthy lifestyles to the com- ation through playgrounds for adults and 34th and Beach 35th Street.
munity children.
4 Planning Framework for Arverne East | Executive Summary
• Expanded bus route and stops at the ticularly Sandy relief funds, and expansion
MTA Bus Depot from Howard Beach. of current empowerment zones and other
city-level financing and zoning incentive
Next Steps programs to include the Rockaways.
• Innovative storm surge and flooding
• Appropriate building design and place-
protection measures from both the ocean
ment that works with the site and has
and bay sides that mimic or work with
minimal adverse impact to the site’s natu-
natural processes and also do not ex-
ral resources.
acerbate flooding in other parts of the
• A rezoning study.
peninsula.
• Programs that encourage community • Evacuation plans that incorporate the li-
involvement in the entire process, from brary, hotel, and convention center space
pre-development conceptualization to as staging zones or evacuation centers
operations and to be included in the during storms and transportation routes
transformation and growth of the region. that efficiently move people to safer hous-
ing during storms. Additionally, an out-
• A thorough review of recent traffic and
reach plan in order to inform residents of
congestion around the site, potential im-
staging zones and plans is a vital compo-
pacts of these recommendations directly
nent of an effective evacuation plan.
around the site, potential reconfiguration
• A plan to address the housing issue
of the intersection of the Rockaway Free-
way, Edgemere Avenue, Beach Channel • An in-depth market analysis to examine
Drive, Beach 35th Street, Beach 34th the true spending leakages, appropriate
Street, and Seagirt Boulevard. retailers as well as innovative incentives
• Review of feasible near-term and long- to attract these retailers to Arverne East,
term public transportation options and and the appropriate amount of square
improvements, including bus rapid transit footage that could be supported in the
service throughout the peninsula as region.
well as into Manhattan, additional ferry • Evaluation of redevelopment/repositioning
service, and bike-share programs with strategies of complementary zones within
dedicated bike lanes. the peninsula that could be redeveloped/
• A thorough cost / benefit analysis of each repositioned in conjunction with Arverne
recommendation option that includes the East, such as downtown Far Rockaway.
costs and benefits to the environment • Marketing strategies that can change
and to the community, as well as the ben- the perception issues in the Rockaways
efits and costs of the linkages between and re-position the region to increase the
each recommendation. tourism industry.
• Financing incentive programs that the
Rockaways can take advantage of, par-
Planning Framework for Arverne East | Executive Summary 5
INTRODUCTION:
RESEARCH AND ANALYSIS
1.1 PROJECT GOALS AND VISION
Figure 1. Site Boundary Map
Arverne East, a waterfront community on
the Eastern end of the Far Rockaways,
Queens contains one of the last remaining
large expanses of vacant land in New York
City. The Arverne East site embodies a rich
history of coastal seaside communities, the
lingering legacy of urban renewal, and the
challenges and rewards of being situated on
a barrier island, with miles of picturesque wa-
terfront. The Arverne East site also represents
the urban challenges of spurring impactful
economic development and bringing neces-
sary public services to disadvantaged com-
munities.

The Rockaway Waterfront Alliance (RWA), a
community-based organization dedicated to
fostering understanding, engagement and
respect between local community members
and the waterfront, commissioned this study
in the fall of 2012 to re-initiate conversations
around the needs and possibilities within
Arverne East. RWA cited the need to ad-
In October of 2012, near the beginning of storm shifted conversations about the re-
dress historical natural hazard risks, outdated
this study, Superstorm Sandy struck the lationship between people, places and the
stormwater infrastructure and economic dis-
northeastern United States, bringing devas- natural environment.
parities as a key driver for initiating this study.
tating tidal surges and waves that crippled
The initial goal of the study was to identify
infrastructure and service delivery in the A key opportunity to build a more envi-
opportunities and recommendations to
Rockaways. The storm offered a glimpse ronmentally and economically resilient
strengthen economic development and envi-
into the volatile weather events waterfront Rockaways lies in planning for one of the
ronmental sustainability, whereby the conser-
communities must adapt to in the face of last expanses of vacant, waterfront land in
vation and restoration of natural habitats, the
climate change and further highlighted the New York City. The Arverne East area of the
sustainable growth of the local economy, and
need for studies and strategic planning Rockaway Peninsula, specifically Beach 32nd
the needs and aspirations of the Peninsula’s
frameworks engaging community stake- Street to Beach 54th Street, south of Rocka-
residents were prioritized.
holders, local leaders, decision makers way Beach Boulevard, has been largely
and issue experts. On a broader level, the vacant for decades. In 2003, an Environ-
Planning Framework for Arverne East | Introduction: Research and Analysis 7
mental Impact Statement (EIS) was issued habitats, the sustainable growth of the local This includes commercial activity aiming
for the Arverne Urban Renewal Area (AURA), economy, and the needs and aspirations of to improve diversity of retail choice, reflect
which encompasses Arverne East and the Peninsula’s current residents are taken unique local character, and capture local
some the surrounding land. The EIS outlined into account. Input from stakeholder meet- retail spending.
potential adverse impacts resulting from ings and a public community workshop
• Developing a diverse housing community
development on the site as well as mitigation heavily shaped the guiding vision and recom-
and complementary facilities to serve and
measures against these impacts. The recom- mendations. Major goals include:
attract a broad range of residents within
mendations in this study incorporate certain
the surrounding community and the
recommendations and requirements from the • Transforming Arverne East into a health
broader peninsula. This includes mixed-
EIS that may represent best possible options and wellness hub
income housing stock, along with hospi-
for the site. However, this report does not ad-
• Promoting near-term storm recovery, as tality facilities, entertainment and recre-
dress each mitigation measure within the EIS,
well as long-term resilience. This includes ation, as well as quality public spaces.
in an effort to avoid redundancy and explore
equipping the site with the infrastructure
additional innovative solutions in a post-San- • Promoting access to, from, and within
necessary to protect the community from
dy environment. the area by a multitude of transportation
future extreme natural events.
modes, including walking and cycling, to
Waterfront Solutions and the Rockaway • Creating an economic anchor for the best accommodate the needs of a broad
Waterfront Alliance (RWA) are committed to Eastern Rockaway peninsula through range of community members and visi-
creating a vision for Arverne East by means much needed business development, tors—including children, students, fami-
of a comprehensive approach, whereby commercial and retail access, as well as lies, the elderly, and tourists.
the conservation and restoration of natural quality local employment opportunities.