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N 130316 ZRR: St. George Waterfront Development

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N 130316 ZRR: St. George Waterfront Development CITY PLANNING COMMISSION _________________________________________________________________________________ September 11, 2013/Calendar No. 26 N130316ZRR _________________________________________________________________________________ IN THE MATTER OF an application submitted by the New York City Economic Development Corporation, New York Wheel LLC and St. George Outlet Development LLC pursuant to Section 201 of the New York City Charter, for an amendment of the Zoning Resolution of the City of New York, modifying Article XII, Chapter 8, and related sections, concerning the expansion of the Special St. George District, Community District 1, Borough of Staten Island. _________________________________________________________________________________ This application (N130316ZRR) for an amendment of the Zoning Resolution relating to Article XII, Chapter 8 (Special St. George District) and Article VI, Chapter 2 (Special Regulations in the Waterfront Area) was filed by New York Wheel LLC, St. George Outlet Development LLC, and the New York City Economic Development Corporation on May 14, 2013. The zoning text amendment, along with the related actions, would facilitate the redevelopment of the two city-owned commuter parking lots at the St. George Ferry Terminal for a 625-ft. tall, 1,440-passenger observation wheel with an accessory terminal building including approximately 18,500 square feet (sq. ft.) of accessory retail; a 950-space, 170,000 sq ft. covered public parking facility; and a 340,000 sq. ft. a retail outlet mall with a 130,000sq. ft (approximately 200-room hotel); and 20,000 sq. ft. catering facility. A deck will be built over the existing railroad right of way that abuts Richmond Terrace to permit pedestrian and vehicular connections between Richmond Terrace and the site. The proposal is known as the St. George Waterfront Redevelopment Project. RELATED ACTIONS 1 C130316ZRR In addition to the application for amendments to the Zoning Resolution that is the subject of this report (N130316ZRR), implementation of the proposed development also requires action by the City Planning Commission on the following applications, which are being considered concurrently with this application: C130315ZMR Zoning Map Amendment to extend the boundaries of the existing Special St. George District to include all of the project area. C130319PPR Disposition of Parcel 1 (Block 2, part of Lot 20), a City-owned property (via application of the NYC Dept. of Small Business Services) C130320PPR Disposition of Parcel 2 (Block 2, parts of Lots 1, 5, 10 and 20), a City-owned property (via application of the NYC Dept. of Small Business Services) C130317ZSR Special permit pursuant to Section 128-61 to permit the development of an observation wheel and accessory terminal building; the development of a public parking garage for 950 cars and 12 buses; the decking over of a railroad right-of-way; and establishing in lieu of base plane an appropriate level or levels as the reference plane. C130318ZSR Special permit pursuant to Section 128-61 to permit the development of a retail outlet mall with approximately 100 stores, hotel, and catering facility; the development of a 1,250-space public parking garage; offsite interim public parking lots with more than 150 spaces; the decking over of a railroad right-of-way; and establishing in lieu of base plane an appropriate level or levels as the reference plane. BACKGROUND The New York City Economic Development Corporation, New York Wheel LLC, the New York City Department of Small Business Services and St. George Outlet Development LLC propose several land use actions to facilitate the development of the two waterfront surface public parking lots located adjacent to the ferry and bus terminals in St. George in Staten Island and the Richmond 2 C130316ZRR County Bank Ballpark. The St. George Waterfront Redevelopment Project proposes to transform the currently underutilized St. George Waterfront into a dynamic, mixed-use destination with the construction of the tallest observation wheel in the Western Hemisphere on Parcel 1 (Block 2, part of Lot 20) and a high-end outlet retail complex and hotel on Parcel 2 (Block 2, parts of Lots 1, 5, 10 and 20). The area subject to the zoning text amendment and related zoning map amendment occupies a 97- acre area of city-owned, waterfront land generally bounded by St. Peter’s Street, Richmond Terrace, the waterfront and the southern edge of the St. George Ferry Terminal at Borough Place, on the north shore of Staten Island. The North Shore Railroad Right-of-Way (RROW), a city-owned railroad easement leased to the MTA, extends along the entire western boundary of the project area, abutting Richmond Terrace. There is a severe grade change from Richmond Terrace to the site. Richmond Terrace is about 25 to 30 feet above the project area and is supported by a retaining wall that runs along the edge of the RROW. The project area contains the St. George Ferry Terminal, the Richmond County Bank Ballpark two surface public parking lots with a capacity of 1,606 cars serving the ferry terminal and ballpark, the Staten Island Postcards 9/11 Memorial and the North Shore Promenade, a landscaped waterfront public access area that runs along the shoreline from the baseball stadium to St. Peter’s Place. Access to the project is served by Bank Street, a 24-foot wide, unmapped street under EDC jurisdiction, and the prolongation of Wall Street, a DOT service ramp, providing access to the public facilities located 3 C130316ZRR along the waterfront from Jersey Street and Richmond Terrace respectively. Richmond Terrace, Victory Boulevard and Bay Street serve as the primary vehicular access routes to the project area from other locations on the Island, New Jersey and Brooklyn. The two development sites (Parcels 1 and 2) are located steps from the Staten Island Ferry in St. George, and are currently used as parking lots for the Richmond County Bank Ballpark and the St. George Ferry Terminal. An estimated 70,000 passengers ride the ferry on a typical weekday between St. George and the Whitehall Terminal in Lower Manhattan and an estimated 22 million passengers make the trip every year. The St. George Terminal is served by the Staten Island Railroad and 22 different MTA bus routes. The Ballpark, home to the Staten Island Yankees, hosts approximately 38 annual home games and has a capacity of 6,500 seats. Both development sites are located at the waterfront level of the project area, approximately 25 to 30 feet below the level of Richmond Terrace. The Richmond County Bank Ballpark lies between Parcels 1 and 2. Directly south of Parcel 1 is the New York City Department of Transportation (DOT) Staten Island Ferry Terminal and MTA Bus Terminal. Further south is the DOT Ferry Maintenance Facility, as well as a former U.S. Coast Guard site. West and Southwest of the development sites is the St. George Civic Center which includes Borough Hall, court facilities, the St. George branch of the New York City Public Library and other public offices as well as commercial, retail and institutional uses. Also to the West of the site is the upland residential neighborhood of St. George, characterized by its unique hillside 4 C130316ZRR topography and mix of high-density and detached homes. Parcel 1 is adjacent to the Special Hillsides Preservation District which guides development in steep slope areas of the Serpentine Ridge in order to reduce hillside erosion, stormwater runoff and landslides by preserving natural features of the unique topography, and also includes the St. Marks Historic District. The 120th Police Precinct Station House and the Staten Island Family Court, as well as a number of retail, service, and commercial uses, are located along Richmond Terrace, directly across from the development sites. Parcel 1, the northernmost parcel, is an 8-acre site that includes an 820-space surface public parking lot operated by EDC serving the ferry terminal and baseball stadium and a 50-foot wide railroad right-of-way used by the Staten Island Railroad (SIR) for service purposes. Parcel 2 is a 6-acre site currently occupied by a 786-space surface public parking lot operated by DOT and EDC, which serves the ferry terminal and baseball stadium. The railroad right-of-way also extends onto parcel 2, extending to the ferry terminal. The right-of-way contains tracks used by the SIR for maintenance purposes, as well as a 2-story service building containing an SIR control center and electric substation. The entirety of the project area is located within an M1-1 district, which allows 1.0 FAR and a mix of commercial and light industrial uses. It is within a waterfront area and therefore subject to special zoning regulations. It is also adjacent to the Special St. George District which was established in 2008 to encourage new residential and commercial development that would, among other goals, improve waterfront connections; establish a pedestrian-oriented civic center; bring people to existing 5 C130316ZRR waterfront amenities and provide new waterfront uses; and help to provide the civic hub of the St. George area and Staten Island with an enhanced sense of place. Past planning efforts, including the recent Vision 2020: New York City Comprehensive Waterfront Plan and the North Shore 2030 report, have called for improved use of and investment in the North Shore’s waterfront. The North Shore 2030 report identifies strategies to build upon the North Shore’s unique assets to help create jobs, increase waterfront access, improve mobility and strengthen neighborhoods. It was the result of a two-year effort involving City and State agencies, elected officials, local stakeholders and over two hundred residents and business owners to craft a 20-year vision for a diverse, thriving and connected waterfront community. The report recommended that the feasibility of developing these two parking lots should be explored to bolster economic growth and to facilitate connections to nearby attractions as part of an overall goal to reimagine St.
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