davidsstudy for the city ofisland new rochelle city of new rochelle/kpf/arup/sbi october 11, 20111 davids island 2 3 letter from mayor noam bramson For almost two generations, Davids Island has both enchanted and bedeviled New Rochelle. It is easy to understand why. There is nothing quite like it: a nearly eighty-acre blank canvas, situated within the largest and most densely populated metropolitan area in America, visible from nearly every portion of our coastline and owned by the people of New Rochelle. But while Davids Island has inspired grand plans, all have faltered in the face of economic, environmental or political obstacles. Today, half a century after the closure of Fort Slocum, the island’s future remains unsettled – its potential for public enjoyment and benefit, like the island itself, just out of reach. In September 2010, New Rochelle opened a new chapter in Davids Island’s history. Determined to avoid the mistakes of the past, the City resolved neither to advance concepts without first testing their value and viability, nor to react to concepts without first establishing a homegrown, community-supported vision. Acting on this new strategy was a volunteer Task Force composed of neighborhood representatives, development experts, environmental advocates and public officials from various levels of government. Together, the Task Force members reflected the spectrum of perspectives that have traditionally had an interest in – and often clashed over – Davids Island. The fact that the Task Force was able to work collaboratively and collegially is, in itself, evidence that historic divisions can be overcome in favor of a fresh consensus. For its hard work, open-minded spirit and creative energy, the Task Force has earned the gratitude of all people in New Rochelle. The findings and conclusions of the Task Force have been tested, illustrated and greatly enhanced by the planning professionals of KPF, ARUP and SBI – among the very best in the world. Rarely has such a generous gift of expertise been donated to a municipality, and I hope that the experience of addressing a site as unique and interesting as Davids Island provides some measure of compensation. The report that follows reflects the insights of the Task Force and the analytical skill of KPF, ARUP and SBI. It constitutes the most rigorous, comprehensive and useful examination of re-use options for Davids Island that has ever existed, and it will be an invaluable tool for the City Council and the people of New Rochelle as we strive together to shape the future of this remarkable place. Mayor Noam Bramson 4 5 letter from davids island task force The Davids Island Task Force was created to examine the challenges and opportunities energy neutrality to innovative waste management, can and should be a defining feature surrounding a unique waterfront asset and to assist the City Council in shaping an of any re-use plan. In addition to enhancing the overall quality and marketability of any achievable, community-based vision for the Island’s future. In approaching this mission, the development, sustainable design and operation may also help to reduce infrastructure costs, Task Force sought to honor several over-arching principles: mitigate negative development impacts, and attract public and/or private financing. The range of options for sustainable design and operation is dramatically larger today than • Recognize and take full advantage of the unique nature and value of Davids Island; during any previous consideration of re-use plans for Davids Island. • Draw upon and respect public input from New Rochelle and our region; Access Should Minimize Car-Dependency: Water-borne transportation, coupled with surface • Appropriately balance environmental, economic and social concerns and objectives; transportation between the downtown central parking district and any ferry embarkation • Enable the public to better achieve and enjoy access to the waterfront; point(s), is likely to be the only cost-effective and least impactful means of providing access to Davids Island, and would also help integrate the Island into the downtown commercial • Demonstrate and advance a commitment to sustainability; and economy. The prohibition of cars on the Island would reduce infrastructure costs and • Consider economic and fiscal constraints to ensure that plans are realistic. reinforce sustainability principles. Bridge access, although not recommended, is nonetheless examined in this report for the sake of completeness. The Task Force conducted a comprehensive assessment of the Island, researched its history and current conditions, and entertained a variety of potential re-use scenarios. Implementation Should Be Phased: Re-use plans for Davids Island can and should be phased. Immediate steps should concentrate on facilitating passive public access to the We did not attempt to achieve consensus on a single, specific re-use plan, but rather to Island for kayakers and boaters and on encouraging greater public awareness of and illustrate the probable benefits, impacts and obstacles associated with a spectrum of options exposure to the Island’s potential value. Short-term development should be self-contained, and to provide tools for evaluating the consistency of such options with the principles above. sustainable and consistent with a longer-term vision for the Island, and should serve as a Clarity in the City’s goals and expectations, coupled with additional outreach to the public catalyst for future development. and stakeholders, will maximize the prospects the successful re-use of Davids Island. The Members of the Davids Island Task Force express thanks to the City Council for the The Task Force’s chief conclusions and recommendations are as follows: opportunity to participate in this exciting and engaging exercise. We acknowledge the guidance and support of City staff, including Commissioner of Development Michael Slightly More Than Half Of The Island Is Developable: Approximately 45 of the Island’s 78 Freimuth, Planning Director Eleanor Sharpe and Senior Project Manager Suzanne Reider. acres could be developed. This figure accounts for shoreline setbacks, probable sea level rise, And we express great appreciation to KPF/ARUP, whose donation of time and expertise the presence of a Consolidated Edison easement, and a variety of other constraints. The 33 contributed immeasurably to the professionalism and thoroughness of our report. non-developable acres could, nonetheless, serve a variety of public functions, and the use and condition of this additional acreage should be integrated into any overall plan for Davids Task Force Members were deliberately selected to represent a wide array of constituencies, Island. viewpoints and interests. Our exchange of ideas and perspectives was consistently enlightening and thought provoking. After more than a year of working together, Environmental Remediation Is Necessary & Costly: Significant and costly environmental differences of opinion about Davids Island still remain, but we are firmly united in the belief remediation will be a necessary component of any plan entailing meaningful human access that Davids Island holds significant potential for our community and region, and that the to the Island. The required scope of such remediation will depend upon the intensity and time to explore this potential is now. nature of intended development and recommendation from DEC. It our hope that the product of our efforts will enable the City of New Rochelle to meet this Balancing Environmental & Economic Objectives Is Essential: A plan that blends private challenge in a confident and positive spirit, escape a fruitless cycle of reaction to external and public uses, with the former wholly or partially subsidizing the latter, is more likely to proposals, and instead formulate a bold, community-based vision that excites the public’s meet the tests of financial and political viability than a plan that is either exclusively private imagination and engenders the durable support necessary to sustain a long-term endeavor. or exclusively public. Especially at a time of limited public resources, the Island should, over the long-term, at least “carry its own weight” and contribute to the vitality of our local and Davids Island Task Force: Doug Hocking, Thomas Lang, Kathy Jensen-Graham, Terence Gargan, regional economy. Bonnie O’Brien, Rob Balachandran, Cesare Manfredi, Steve Levy, Christine Sculti, William Janeway, Richard Organisciak, Sara Richmond, Ellie Fredston, David Blumenfeld, Gary Trachten, Gregory Sustainable Design Presents A Key Opportunity: Sustainable design and operation, from Merchant, Mayor Noam Bramson, Council Member Albert Tarantino, Michael Yellin 6 7 table of contents Introduction ............................................................................................................................................................................................ 10 Site Analysis ........................................................................................................................................................................................... 22 Density Scenarios ...............................................................................................................................................................................46 Appendix ..................................................................................................................................................................................................