This Generation's Penn Station?

Peer Reviewed

Title: Dispatch -- Atlantic Yards: This Generation's Penn Station?

Journal Issue: Places, 20(1)

Author: Oder, Norman

Publication Date: 2008

Publication Info: Places

Permalink: http://escholarship.org/uc/item/8046k33j

Acknowledgements: This article was originally produced in Places Journal. To subscribe, visit www.places-journal.org. For reprint information, contact [email protected].

Keywords: places, placemaking, architecture, environment, landscape, urban design, public realm, planning, design, Norman Oder, Atlantic, Yards, generations, Penn Station, dispatch

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eScholarship provides open access, scholarly publishing services to the University of California and delivers a dynamic research platform to scholars worldwide. Dispatch Atlantic Yards: This Generation’s Penn Station?

Norman Oder

impasse over a line that referred to mainstream of the professions. The a seat when issues of sustainability are creating human settlements only with situation requires that standards be set being discussed, they should focus buildings with both “vertical and hori- so that those who insist on producing on being good tablemates, even if the zontal walkability” (that is, without the ersatz are marginalized.” Transect is not what is being served. mechanical lift systems—which would Over the years, the CNU has limit supported development to six proved reluctant to question its pur- Note stories or fewer). Supporters and ported adherents, even about views 1. The Green Council has met five times previously. opponents of the proposed wording that fall outside established, shared Other CNU councils include, for example, a Classical argued emotionally for their sides, principles. Thus, the 2007 Green Architecture Council. CNU members are invited with supporters of the language asso- Council brought together speakers to participate in councils that are relevant to their ciating tall buildings with the most and members who represented a wide work, and the results are reported back to the general nightmarish problems of state-subsi- range of viewpoints under the big tent membership on the organization’s website and at dized and -managed housing projects. of traditional neighborhood develop- its annual meeting. Specific recommendations from Many in attendance, however, argued ment. However, it also resulted in the a council can be taken to the board of directors for that for the movement to remain presentation of dissonant viewpoints consideration as official policy, including potential relevant, it couldn’t take a universal that seemed more successful at alien- revisions to the Charter of the New Urbanism. stand against more dense develop- ating potential new partners than 2. The full “Growing Cooler” report is now ment. Eventually, the entire proposal encouraging new initiatives. Clearly, a available from the Urban Land Institute bookstore was shuttled to a future committee speaker who paired images of a quaint (Washington, D.C.); www.uli.org. meeting for clarification. Nantucket storefront with a middle- Some level of committee referral is American waffle house to demonstrate to be expected as a response to a pro- that some buildings are “loveable” posal like this from the floor; clearly, while others aren’t was playing more wordsmithing becomes an absurd art to an in-crowd than trying to bring form in a room of one hundred and new followers into the fold. For such fifty people. But the debate about a rare, large gathering of powerful highrise buildings (as well as other minds, much time was devoted to dis- differences of opinion expressed at the cussion of real and perceived slights Green Council) arguably rises above towards the movement, instead of the level of word choice to indicate a constructive responses like supporting real identity debate. the work of existing envoys to per- To its credit, the CNU has never ceived outsider groups like academia, adopted a rigid decision-making environmentalism, or the smart To proponents, the $4 billion Atlan- cesses. Including nearly three be “this generation’s Penn Station” structure or membership criteria, pre- growth movement. tic Yards project in Brooklyn, New hundred apartments per acre, it would because of the “absurdity” of the public ferring a flexible and grassroots-based A real lesson for New Urbanism York, is a model of urban redevel- encroach on surrounding historic processes involved. Just as the demo- system. But early on, CNU leaders from the history of Esperanto is the opment.1 Designed by the architect lowrise neighborhoods, burden local lition of that landmark structure in also recognized the dangers of allow- list of enemies the international lan- Frank Gehry and consisting of sixteen infrastructure, and create a deaden- 1963 for an arena and office complex ing individual actors to employ the guage movement has engendered. towers and a basketball arena on 22 ing pattern of superblocks. Critics accelerated the preservation move- name “New Urbanism” to describe Esperantists have also defied the acres, it would extend and revitalize also claim its present form depends ment, the battle over Atlantic Yards work that at best accidentally misun- efforts of international bodies like the Brooklyn’s downtown, add residential on hundreds of millions of dollars has prompted new outrage in the city derstood the principles of the move- United Nations because those groups density near a transit hub, and include in public subsidies, tax breaks, and about single-source deals and inad- ment, and at worst, knowingly used have relied on more traditional means subsidized housing. It also would increased development rights, plus equate community consultation. the term to capture market demand of solving the problem of interna- return professional sports to the the use of eminent domain to benefit without reflecting the organization’s tional communication (adding more borough, which hasn’t been “major politically powerful special interests. underlying values. The original invi- languages, hiring more interpreters league” since the baseball Dodgers left Kent Barwick, president of New tation to the first organized meeting and translators, and ensuring that all for Los Angeles in 1958. York’s venerable Municipal Art Society Above: The architect Frank Gehry and the developer of the Congress in 1993 stated, “This employees are multilingual). New To detractors, however, Atlantic (MAS), sponsor of a recent exhibi- Bruce Ratner are tweaked in references to a legal battle is a crucial time of transition from Urbanists should avoid such rigid Yards represents “extreme density” tion on the work of Jane Jacobs, has and traffic woes. Photo by Tracy Collins/3c.com; practice by a few to acceptance by the positions. While it’s clear they deserve and the corruption of public pro- suggested that Atlantic Yards might artwork by Patti Hagan and Schellie Hagan.

78 Wendover / Green Architecture and Urbanism Council Places 20.1 79 Dispatch

Details in Dispute oper’s newfound concern for high-pro- (900 for low-income residents). The lines and a branch of the Long raised security qualms. And for Council. But Atlantic Yards was fast- Atlantic Yards was announced to file architectural design in Brooklyn’s gain, however, might be offset by dis- Island Railroad converge, it would construction staging, the developer tracked via the Empire State Develop- national fanfare in December 2003 by continuing revival. placement in nearby neighborhoods. also compound traffic at corners would capitalize on a dubious claim ment Corporation (ESDC), the alter the Brooklyn developer Forest City Early plans called for the arena to A substantial advertising campaign already plagued by gridlock. The of blight to snag a 100-foot wide ego of the state Urban Development Ratner Companies (FCRC), an arm of be open by 2006, but the project’s for the project has also consistently project would also include 1,100 rectangle, later to house a 272-foot Corporation. The agency, formed in the Cleveland-based company Forest construction has been delayed by the avoided the issue of scale, showing no arena parking spaces and more than building, at least five times as tall as 1968 in the wake of the assassination of City Enterprises. The firm had spotted environmental review process, protests, buildings taller than fifteen stories. 2,500 spaces for the housing, thanks its neighbors. Martin Luther King, Jr., was granted opportunities during Brooklyn’s lawsuits, the credit crunch, and a lack Over the last three years such con- to antiquated city policies that “amazing powers”—in the words of decline and subsequent rebound, build- of affordable housing bonds. The proj- troversy has turned public hearings require 0.4 spaces per household in The State Override the noted planner Alex Garvin—to ing architecturally undistinguished ect’s configuration has also changed on the project into street theater. outer-borough projects, no matter Other neighborhood complaints, override zoning and pursue eminent malls and an office complex. However, dramatically. Initially, the four mixed- In general, poorer, mostly minority the adjacency of transit. Critics also resonating citywide, have targeted the domain to assist the poor. this project, on a six-block site, 8.5 use towers wrapping the arena (two of Brooklynites—many from groups point out that the arena, Gehry’s way permits have been issued by state acres of which are occupied by yards them at least fifty stories high) would supported and funded by the develop- first, would not only be wrapped by and local agencies. Typically, such used by the Long Island Railroad, have included space for ten thousand er—and union construction workers highrise structures but also sit directly a project would have to go through Opposite: The Atlantic Yards site plan creates two would be more complex and far-reach- office jobs. Citing market changes, have touted the jobs and housing the across one street from row houses. New York City’s Uniform Land Use superblocks. Drawing from Atlantic Yards Final ing. Its initial narrative emphasized FCRC swapped offices for condos, project would create, while closer-in (The state must still override zoning Review Procedure (ULURP)—a post- Environmental Impact Statement. the prestige of a professional sports then restored some office space. residents have criticized its density that bans sports facilities within two Robert Moses reform which requires Above: Photosimulation by local photographer franchise for the borough—the New Housing remains the largest and traffic impacts. hundred feet of residences.) an advisory vote from affected local Jonathan Barkey, based on 2006 plan (since trimmed), Jersey Nets, which a group headed by component of the project. Of 6,430 Critics argue that, while the On two sides, the arena would community boards, mandated public shows perceptive from south side of Dean Street FCRC’s Bruce Ratner bought in 2004. approved units, 4,500 would be rent- project would border Brooklyn’s also present glass walls near major hearings, and approval by the City below project’s center. Image from www.pbase.com/ And Gehry’s role suggested the devel- als—with 2,250 of these subsidized largest transit hub, where ten subway avenues, an effort at openness that has Planning Commission and City AtlanticYards.

80 Oder / Atlantic Yards Places 20.1 81 Dispatch

more than the public. Among other for three buildings were released. 4. The Regional Plan Association, while announcing things, they pointed out that city and (Missing was the promised green roof support for the project’s first phase, has nonetheless state officials had backed the Atlan- on the arena.) Still, there’s ample criticized the lack of government planning and public tic Yards proposal eighteen months reason to question the timetable, and input during the early stages, as well as an absence of before the railyard was even put up thus the delivery of promised public consistent public oversight over the long term. 6 for bid. However, both the trial and benefits, such as eight acres of open 5. About 35 of 334 residents remain, as well as a 10 appeals courts have ruled that judges space and subsidized housing. An handful of 33 businesses, along with a homeless must defer to the public benefits ESDC document shows that, after shelter; many of the developer’s buyouts have been (housing, sports facility, improved approving a project, “anticipated” accompanied by gag orders. transit facilities, blight removal, etc.) to last a decade, the agency has now 6. They drew significantly on Supreme Court Justice found by the ESDC, and that non- given the developer up to six years Anthony Kennedy’s nonbinding concurrence joining blighted properties may be added to a after the close of litigation and the the controversial 2005 Kelo v. New London eminent project outline. A long-shot Supreme exercise of eminent domain to build domain decision, which set out criteria for legitimacy Court appeal has been filed. the arena, up to twelve years to build such as an open bid process and commitment of public The other suit, in state court, the first five towers, and an unspeci- funds before most private beneficiaries were known. charged inadequacies in environmen- fied amount of time for the rest of 7. The complete project probably will not be successful tal review. It, too, was defeated in the the project. The developer has begun in any case without the enactment of larger policy trial court. marketing 130 luxury suites, averaging changes to reduce traffic impacts, like proposed 11 While Forest City Ratner sought a $300,000 a year. This would offset a congestion pricing. speedy schedule to resolve the inevi- good chunk of the cost of building the 8. However, the limited pool of affordable housing table appeal, hoping to open the arena arena—assuming it ever gets built. financing preceded the credit crunch. by 2010, a state appellate court sched- 9. Http://www.nytimes.com/2008/03/21/arts/ uled oral arguments for September of Notes design/21atla.html. 2008, making it unlikely the developer 1. As approved in December 2006, the project would 10. Ratner stated, “We anticipate finishing all of will be able to meet this timetable. cost $4 billion. Rising construction costs have already Atlantic Yards by 2018.” However, his cousin, Chuck Even though the developer has begun boosted the expected arena tab from $637.2 million to Ratner, CEO of the parent company Forest City demolishing buildings it owns and $950 million, by far the country’s most expensive arena Enterprises, in 2007 told investment analysts (in Today, the ESDC typically shep- recently renovated into luxury condos revisions—in particular, criticizing constructing a temporary railyard, it ever. That suggests a significant increase in the overall response to questions about three other projects), “As herds megaprojects like the Times after spot rezonings, and residences indefinite “interim surface parking” can’t start arena construction until the price tag. you know, in our business, these things take a very long 7 Square redevelopment and Ground just outside the project boundary have and open space (designed by Laurie lawsuits are cleared. 2. Former Deputy Mayor for Economic Development time, most often, frankly, longer than we anticipate.” Zero reconstruction. Thus, while the sold for seven figures in Brooklyn’s Olin) that appears private, as well Indeed, the developer acknowl- Dan Doctoroff has claimed that the city has learned 11. The developer also has a $400 million arena ESDC conducted three public meet- booming real estate market. as calling for a new administrative edged in March 2008 to the New York from Robert Moses and managed to achieve naming rights deal with Barclays Capital and several ings to collect testimony during the Nevertheless, the ESDC claimed structure to oversee the project’s Times that all but the arena was on development without alienating communities, other “partnerships” in the wings. 4 Atlantic Yards environmental review, that only the Atlantic Yards project construction. indefinite hold, blaming lawsuits and characterizing the city’s efforts as “making omelets 8 the process produced few changes— could remove the persistent blight However, the grassroots coalition the credit crunch. The newspaper without breaking eggs.” However, in a December For more on the Atlantic Yards project, visit the and a lawsuit-proof record of more stemming from the railyard—even Develop Don’t Destroy Brooklyn has also reported that the developer was 2007 interview after he announced his departure from following websites: FCRC.com—Forest City Ratner 2 than 22,000 pages. though no attempt had been made organized two lawsuits with support taking the unusual step of essen- city government, Doctoroff acknowledged to the New Companies; AtlanticYards.com—official Atlantic Perhaps the most contentious claim to market the property before Forest from residents in adjacent gentri- tially cold-calling office tenants for York Observer that criticism of Atlantic Yards had had Yards site; AtlanticYardsReport.com—author’s site; made to justify the redevelopment is City Ratner announced its plan, nor fied neighborhoods and several civic the flagship tower. Faced with the an impact: “If it happened again, and the state were DDDB.net—Develop Don’t Destroy Brooklyn; that the site—an irregular area chosen the adjacent blocks rezoned—both groups, and watchdog blogs like “No looming possibility of a standalone to ask if I would encourage them to take Atlantic NoLandGrab.org—No Land Grab; www.empire. 3 by the developer, not by public pro- alternative paths to development. Land Grab” and my own “Atlantic arena sans towers, Times architecture Yards through the ULURP process, I would say yes.” state.ny.us/AtlanticYards/—ESDC’s Atlantic Yards cess—is blighted. Among other blight Yards Report” have maintained per- critic Nicolai Ouroussoff, who called (However, the ULURP process has its own problems, site. AtlanticLots.com—Municipal Art Society site. criteria, the ESDC has cited build- Years of Contention sistent online analysis and criticism of Gehry’s design for the arena block “a and is no panacea.) Mayor Michael Bloomberg’s ings that do not fulfill more than 60 Atlantic Yards has generated the project. tour de force,” urged the architect to vaunted PlaNYC 2030 sustainability effort now posits 9 percent of their development rights. great contentiousness, and its future Of the two lawsuits, one was walk away from the project. much more community consultation for development Certainly, some buildings within remains murky. a federal challenge to the use of On May 4, Bruce Ratner asserted over railyards or highway cuts. Opposite: A May 2008 revision of the arena block 5 the project footprint are moribund Barwick’s MAS and some neigh- eminent domain. The plaintiffs in a New York Daily News op-ed piece 3. While numerous states have reformed eminent domain shows a newly rectilinear office tower and an arena and decrepit. But industrial build- borhood groups have accepted the argued that the project was a sweet- that the project would be completed laws in the wake of the United States Supreme Court’s with less glass and a new metal skin. Model/rendering ings in the footprint and nearby were project’s inevitability and lobbied for heart deal, benefiting the developer by 2018; the next day new designs 2005 Kelo v. New London decision, New York has yet to act. by Gehry Partners.

82 Oder / Atlantic Yards Places 20.1 83 Dispatch

82 Oder / Atlantic Yards Places 20.1 83