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Neighborhood Character

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Neighborhood Character Chapter 19: Neighborhood Character A. INTRODUCTION This chapter assesses the potential for the Proposed Project to result in a significant adverse impact to neighborhood character. As defined in the City Environmental Quality Review (CEQR) Tech- nical Manual, neighborhood character is an amalgam of various elements that give a neighborhood its distinct “personality.” The elements to consider in determining whether a neighborhood char- acter assessment is appropriate include a neighborhood’s land use, zoning, and public policy; so- cioeconomic conditions; open space; historic and cultural resources; urban design and visual re- sources; shadows; transportation; and/or noise. However, not all of these elements contribute to neighborhood character in every case; a neighborhood usually draws its distinctive character from a few defining elements. The temporary neighborhood character effects associated with construction of the Proposed Project are discussed in Chapter 20, “Construction.” An analysis of neighborhood character identifies the defining features of the neighborhood and then evaluates whether a proposed project has the potential to affect the defining features, either through the potential for a significant adverse impact or a combination of moderate effects in relevant technical analysis areas. To determine the effects of a proposed project on neighborhood character, the defining features of neighborhood character are considered together. According to the CEQR Technical Manual, neighborhood character impacts are rare, and it would be unusual that—in the absence of a significant adverse impact in any of the relevant technical areas—a combination of moderate effects to the neighborhood would result in an impact to neighborhood character. Moreover, a significant adverse impact identified in one of the technical areas that contributes to a neighborhood’s character does not necessarily constitute a significant impact on neighborhood character, but rather serves as an indication that neighborhood character should be examined. As described in Chapter 1, “Project Description,” the Proposed Project is a comprehensive rede- velopment initiative to create a revitalized, transit-oriented commercial district centered around Penn Station. The area of the Proposed Project is generally bounded by Sixth and Ninth Avenues to the east and west, and by West 30th and West 34th Streets to the south and north in Midtown Manhattan, Community Districts 4 and 5 (the Project Area). The Project Area includes all or portions of nine Manhattan tax blocks—Blocks 754, 755, 780, 781, 783, 806, 807, 808, and 809— that encompass Penn Station, Madison Square Garden (MSG), the Farley Office Building and Moynihan Train Hall, and surrounding blocks. The primary components of the Proposed Project include the creation of a transit-oriented commercial district, support for improvements to and expansion of Penn Station, and the introduction of public transportation and public realm improvements to the area. To facilitate the Proposed Project, the New York State Urban Development Corporation d/b/a Empire State Development (ESD) is proposing a General Project Plan (GPP) that would, among other things, authorize ESD to override provisions of the New York City Zoning Resolution and other local laws. The GPP would facilitate the construction of approximately 20 million gross square feet 19-1 Empire Station Complex Civic and Land Use Improvement Project (gsf) of new Class A commercial office space, retail, and hotel space on eight development sites within the Project Area. The new developments would provide new entrances and connections for both Penn Station and the subway system. The proposed commercial developments would generate financial support for the expansion of Penn Station and would be designed and constructed to accommodate an integrated below-grade expansion of tracks and platforms south of the existing Penn Station. As currently proposed, the expansion of Penn Station would encompass Block 780 immediately to the south (bounded by Seventh and Eighth Avenues and West 30th and West 31st Streets), the western portion of Block 806 on the east side of Seventh Avenue, and the eastern portion of Block 754 on the west side of Eighth Avenue. The Proposed Project would include public transportation improvements consisting of improve- ments to passenger rail facilities at Penn Station and transit facilities at area subway stations. ESD, through the GPP and in collaboration with Metropolitan Transportation Authority (MTA), would require the completion of certain public transportation improvements as part of certain new building construction in the Project Area. It is anticipated that transit improvements would be implemented at the 34th Street–Penn Station–Eighth Avenue (A, C, and E); 34th Street–Penn Station–Seventh Avenue (1, 2, and 3); and 34th Street–Herald Square–Sixth Avenue (B. D, F, M, N, Q, R, W, and Port Authority Trans-Hudson [PATH]) subway stations. Above-grade public realm improvements in the Project Area would be implemented in connection with the proposed developments. The above-grade public realm improvements include sidewalk widenings, new passive open space, enhancements to existing open space, the creation of shared streets, and the installation of protected bike lanes. PRINCIPAL CONCLUSIONS The Proposed Project would not result in a significant adverse impact on neighborhood character. As discussed in this chapter, the defining features of neighborhood character are a mixture of several high-density commercial buildings and lower-scale (and, in some cases, historic) commercial buildings and transportation infrastructure; high levels of pedestrian and vehicular activity and associated noise; and a varied neighborhood context with smaller buildings interspersed among taller buildings and iconic New York City landmarks. The assessment concludes that the Proposed Project is expected to enhance existing neighborhood character by reinforcing these defining features while improving pedestrian facilities and transit accessibility. As described in Chapter 1, “Project Description,” the Proposed Project would address substandard conditions in the Project Area by facilitating redevelopment to create a cohesive, transit-oriented commercial district, introducing much-needed public transportation and public realm improvements in the area, and supporting the reconstruction and expansion of Penn Station. The Proposed Project would not result in significant adverse impacts to land use, zoning, and public policy; socioeconomic conditions; or urban design. Although there would be significant adverse impacts with respect to open space, historic resources, shadows, visual resources, transportation, and noise, these impacts would not result in a significant adverse impact to the defining elements of neighborhood character, nor would a combination of effects result in a significant adverse impact to such a defining feature. Overall, the Proposed Project is expected to result in positive effects to neighborhood character by addressing substandard and insanitary conditions and transforming the area around Penn Station into a revitalized, modern transit- oriented commercial district. As discussed below, the new development and the public realm and public transportation improvements introduced with the Proposed Project would unify the area around Penn Station, making it a more attractive and inviting neighborhood. 19-2 Chapter 19: Neighborhood Character B. METHODOLOGY According to the CEQR Technical Manual, an assessment of neighborhood character is generally needed when a proposed action has the potential to result in significant adverse impacts in any of the following technical areas: land use, socioeconomic conditions, open space, historic and cultural resources, urban design and visual resources, shadows, transportation, or noise. The CEQR Technical Manual states that even if a proposed action does not have the potential to result in significant adverse impacts in any specific technical area(s), an assessment of neighborhood character may be required if the project would result in a combination of moderate effects to several elements that may cumulatively affect neighborhood character. A “moderate” effect is generally defined as an effect considered reasonably close to the significant adverse impact threshold for a particular technical analysis area. A preliminary assessment of neighborhood character determines whether changes expected in other technical analysis areas may affect a defining feature of neighborhood character. The preliminary assessment first identifies the defining features of the existing neighborhood character and then evaluates whether the proposed action has the potential to affect those defining features, either through the potential for a significant adverse impact or a combination of moderate effects in the relevant technical areas. If the project has the potential to affect defining features of a neighborhood, a detailed assessment of neighborhood character may be appropriate. Conversely, if the project has no potential to affect the defining features of neighborhood character, a detailed assessment is not warranted. The key elements that define neighborhood character, and their relationships to one another, form the basis of determining impact significance; in general, the more uniform and consistent the existing neighborhood context, the more sensitive it may be to change. A neighborhood that has a more varied context is typically able to
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