Coney Island, Brooklyn A STRONGER, MORE RESILIENT NEW YORK Southern Brooklyn

CHAPTER 17 | SOUTHERN BROOKLYN 336 The D, F, N, and Q trains converge at The Shoreline: Then and Now Stillwell Avenue in Coney Island, one of the most vibrant centers of residential and commercial life in Southern Brooklyn. Each year millions of visitors stream onto the board- walk here overlooking the beach and Atlantic Ocean. Many move on to ogle the sea lions at the New York Aquarium or race down the famed wooden Cyclone, one of dozens of rides on offer.

Coney Island was not always so lively—or so ac- cessible. The peninsula that now contains Coney Island and three other Southern Brook- lyn neighborhoods was once an actual island, separated from the mainland by Coney Island Creek and reachable only at low tide. The entire area was a collection of wetlands, tidal marsh- lands, bays, inlets, creeks, and barrier islands— first the fishing grounds of the Lenape people 2013 Shoreline and then part of a quiet farming community. (See map: The Shoreline: Then and Now)

Over time, as the area evolved into a summer But because of Southern Brooklyn’s location, During Sandy, the beach that had been resort and further development took place, low-lying topography, and pattern of develop- nourished by the USACE did indeed help buffer property owners (and later, the City) filled in the ment, the area has long been vulnerable to those two neighborhoods. However, storm middle of Coney Island Creek, connecting the damage from storm waves and flooding. While waves battered buildings in areas without island to the mainland. Throughout the area, the Rockaway Peninsula provides some protec- coastal protections, including Sea Gate and marshlands and waterways were also filled tion to eastern portions of Southern Brooklyn, Manhattan Beach, and inundation in Southern to yield new land for development. The coast- the smaller barrier islands that once helped Brooklyn was widespread, much of it caused by line was extended into the ocean and attenuate (or break up) waves elsewhere are flooding originating not from the ocean but Sheepshead and Gravesend Bays, subsuming gone, and some of the area’s building stock, from the area’s bays, creeks, and inlets. As of smaller barrier islands. By the mid-20th century, including bungalows built in the early 20th the writing of this report, local businesses re- summer bungalow communities had largely century for summer use, are particularly main slow to recover. Although the USACE become year-round neighborhoods: Sea Gate, susceptible to damage. Portions of the shore- plans to restore the beach along Coney Island Coney Island, Brighton Beach, Manhattan line have experienced continuous erosion—in and Brighton Beach to its pre-storm condition— Beach, Gravesend, Sheepshead Bay, and fact, the first documented beach nourishment replenishing the roughly 272,000 cubic yards of Gerritsen Beach. Home to an economically and project in the United States was at Coney Island sand that were washed away or pushed inland ethnically diverse array of residents—some in the 1920s, and there have been many such during Sandy—all of Southern Brooklyn is ex- with roots that go back generations—these projects in the area since then, including a pected to be subject to future risks from storm neighborhoods offer a range of housing types, major United States Army Corps of Engineers surge, rising sea levels, and increased storms along with access to beautiful beaches, bays, (USACE) effort in the mid-1990s along the and precipitation resulting from climate change. and a network of public parks. (See map: Neigh- oceanfront in Coney Island and Brighton Beach. borhoods of Southern Brooklyn)

Neighborhoods of Southern Brooklyn

Gravesend Bay Gerritsen Beach Gravesend Sheepshead Bay

Coney Island Creek Sheepshead Bay

Brighton Beach Manhattan Beach Sea Gate Coney Island

Subway Lines Parks

SIRR Area Brighton Beach Boardwalk Credit: Tom Geibel

337 A STRONGER, MORE RESILIENT NEW YORK To help Southern Brooklyn recover from Sandy and move forward on firmer footing, the City has developed a strategy that reflects the overarching goals of this report, which are to seek to limit the impacts of climate change, while enabling New York and its neighborhoods to bounce back quickly when those impacts cannot be averted. The plan will address Southern Brooklyn’s most significant risk—its vulnerability to storm surge, particularly as sea levels rise—by strengthening oceanfront and backdoor exposures, by facilitating retrofits and resiliency in new construction and existing buildings, and by protecting vital infrastructure. The plan will also address other significant risks such as more frequent heavy downpours, heat waves, and high wind events by drawing on Coney Island Beach both citywide and locally tailored initiatives. Credit: Ian Spanier Finally, the plan will build on the area’s natural assets and local economic strengths to encour- Area Buildings Characterized by Type age reinvestment in its many neighborhoods. 2% 6% Area Characteristics 4% 2%

Southern Brooklyn is largely residential, encom- passing a range of housing types, from small bungalows to large single-family homes to multi- 17% family elevator buildings. While the vast majority of the area’s residential buildings are private homes, most Southern Brooklyn households (76 percent) live in multi-family structures, each 69% 1-2 Family of which may contain scores or even hundreds Multi-Family (walk-up) of individual units. Small businesses on local Multi-Family (elevator) commercial corridors primarily serve local resi- Mixed dents, but Southern Brooklyn also has, of Commercial/Non-Profit course, the destination entertainment attrac- Other tions that draw people from all across the Total = 21,000 Buildings city and beyond, as well as large institutions and critical infrastructure. (See charts: Area Build- Source: DCP PLUTO ings Characterized by Type; Area Housing Units Characterized by Building Type) Area Housing Units Characterized by Building Type

Neighborhoods and Residential Development Seven major neighborhoods make up Southern Brooklyn. Though several share a number of characteristics, in some cases they are quite 10% distinct from one another. 24%

There are four primary neighborhoods on the Coney Island peninsula. On the western tip of the peninsula is Sea Gate, a private enclave developed as a planned community in the late 1890s and today operated by the Sea Gate 51% 15% Association. Sea Gate’s 4,800 mixed-income residents live mostly in single-family homes on 1-2 Family quiet streets near community-maintained Multi-Family (walk-up) private beaches and the waterfront Lindy Park. Multi-Family (elevator) Mixed Next to Sea Gate, at the center of the Coney Island peninsula is the neighborhood of Coney Total = 81,000 Housing Units Island itself. Coney Island has a mix of multi- Source: DCP PLUTO

CHAPTER 17 | SOUTHERN BROOKLYN 338 family buildings and single-family homes, with To the east of Coney Island and sharing its broad Manhattan Beach is the easternmost neighbor- a high concentration of public housing and beach is Brighton Beach, the most densely hood on the peninsula. Its 4,600 residents publicly- supported housing, including 37 developed Southern Brooklyn neighborhood, at primarily occupy large single-family homes in buildings managed by the New York City Housing 102 residents per acre (more than twice the city an oceanfront setting. The neighborhood en- Authority (NYCHA) and approximately 6,300 average). Most of its 31,500 residents live in compasses Manhattan Beach Park—dotted units in the Mitchell-Lama program. Coney multi-family buildings, though some bungalows with playgrounds, baseball diamonds, and Island’s main retail corridor is is Mermaid Avenue; remain from the 1920s, and have now have tennis courts—and Kingsborough Community meanwhile, an entertainment district stretches been adapted to year-round occupancy. An College, which sits on a former Coast Guard along Surf Avenue and the Coney Island Board- elevated train runs over Brighton Beach Avenue, base along the shoreline. walk. On the north side of Coney Island is Kaiser the principal commercial corridor in the area. Park, bordering Coney Island Creek. (See chart: Area Population Density) Farther inland are three other major Southern Brooklyn neighborhoods. Gravesend, one of the Area Population Density area’s larger neighborhoods, has a population of 38,300 people primarily occupying single-family row houses and multi-family elevator buildings. The MTA’s Coney Island Yards, Coney Island Brighton Beach 102 Hospital, and Calvert Vaux Park also lie within Gravesend’s boundaries.

Coney Island 51 The neighborhood of Sheepshead Bay, fronting the water body of the same name, has 62,000 residents, most of whom live in single-family Gerritsen Beach 27 homes and newer multi-family buildings. Rows of bungalows, however, remain along pedestrian walks on the north and south sides of Emmons Gravesend 43 Avenue, one of Sheepshead Bay’s main commer- cial corridors. Some of these bungalows are as much as 5 feet below the street grade (which has Manhattan Beach 15 been raised over time), making them particularly susceptible to flooding.

Sea Gate 28 Gerritsen Beach—located on Plumb Beach Chan- nel and Shell Bank Creek, off Gerritsen Inlet— today is a tight-knit neighborhood of 5,200 Sheepshead Bay 58 residents who reside mostly in single-family homes. Developed in the 1920s as a planned NYC average = 42 people/acre community, Gerritsen Beach still has hundreds of Source: 2010 US Census bungalows. Despite renovations, alterations, and expansions over the decades, many of these structures not only were erected without the benefit of modern construction codes; they also were built at low elevations and today are at risk of flooding.

Socioeconomic Characteristics Just as there are differences in population density and housing types among Southern Brooklyn’s neighborhoods, so too do these neighborhoods differ in their socioeconomic makeup. Southern Brooklyn encompasses both wealthier and economically distressed neighbor- hoods. For example, in Manhattan Beach, where unemployment is 5 percent and the poverty rate 16 percent, the majority (over 75 percent) of res- idents owns their homes and the average prop- erty value is close to $1 million. At the other end of the socioeconomic spectrum is Coney Island, where the unemployment rate is 13 percent and the poverty rate is 23 percent. Only one-fifth of Coney Island residents own homes. (See table: Socioeconomic Characteristics)

Typical residences in Gerritsen Beach Credit: gerritsenbeach.net

339 A STRONGER, MORE RESILIENT NEW YORK Socioeconomic Characteristics % Owner- Median Median Poverty Owner-Occupied Occupied Owner- Area Population Household Households % Homeowners Rate Housing Units Housing Units Occupied Unit Income with Mortgage Value

Brighton Beach 31,500 24% $31,700 12,100 2,700 22% 58% $487,000

Coney Island 45,000 23% $32,100 18,000 3,800 21% 38% $320,800

Gerritsen Beach 5,200 7% $62,500 1,900 1,400 75% 78% $446,000

Gravesend 38,300 16% $38,900 13,800 4,700 34% 44% $546,200

Manhattan Beach 4,600 16% $84,800 1,600 1,200 77% 52% $922,300

Sea Gate 4,800 14% $61,500 1,500 730 48% 66% $614,600

Sheepshead Bay 62,000 14% $49,900 24,000 11,200 47% 55% $460,500

Citywide Total/ 8,175,000 19% $51,300 3,050,000 993,500 33% 64% $514,900 Average

Source: 2010 US Census, 2011 American Community Survey, 5-Year estimate

Vulnerable populations also reside in Southern neighborhood commercial corridors that serve Geriatric and the Shore View Nursing Home— Brooklyn. There are over 18,000 residents of local residents. However, over one-third of the offer not only critical services but also valuable NYCHA developments, including significant area’s employees work for larger businesses employment. Nonprofit organizations also numbers of individuals who have impaired mo- or institutions, each of which may employ provide significant local employment, in addition bility or are on life-support equipment. The nine hundreds or even thousands of workers. For to valuable social services. (See graphic: Profile nursing homes in the area have capacity for example, Coney Island Hospital, the biggest of Area Businesses) approximately 2,400 inpatients; meanwhile, the employer in the area and the largest medical area’s seven adult care facilities house over 1,300 facility in Southern Brooklyn, employs over The amusement area, including the Coney residents. Coney Island Hospital has 371 beds. 2,000 people. Coney Island Hospital is but one Island Boardwalk, is a significant economic part of the area’s healthcare sector, which plays engine, supported by seasonal visitation. The Business and the Local Economy a significant role in the local economy. The amusement area stretches from the New York Most businesses in Southern Brooklyn (nearly nursing homes, adult-care facilities, and other Aquarium, a 14-acre campus at West 8th Street 85 percent) are small enterprises employing medical businesses serving Southern Brooklyn— that draws 750,000 visitors annually, to MCU fewer than five people, with many occupying including larger employers such as Shorefront Park, home of the Brooklyn Cyclones, at West 17th Street. First developed in the late 19th Profile of Area Businesses century, the district has been undergoing a renaissance that started in the 1990s with the Total: 6.2K Total: 35.6K Cyclones and the renovation of the Stillwell Av- 100+ enue subway station. Revitalization accelerated 50 - 99 1% 10 - 49 6% with the passage in 2009 of a comprehensive rezoning plan that has led to the opening of 5 - 9 8% 34% three new amusement areas, together with other year-round development in and around the amusement area.

9% Critical Infrastructure Southern Brooklyn contains important infrastructure assets. While the 2.5-mile beach 20% bordering Coney Island and Brighton Beach, 1 - 4 84% maintained by the Department of Parks and Number of Employees Recreation (DPR), is a major recreational 8% amenity, it is also critical for storm protection for the entire peninsula. The mid-1990s replenishment project by the USACE raised the 29% beach by as much as 11 feet from Corbin Place in Manhattan Beach to West 37th Street at the edge of Sea Gate, to attenuate waves and Businesses Employees protect adjacent flood-prone neighborhoods by size of business by size of business and shoreline buildings. Source: Hoovers

CHAPTER 17 | SOUTHERN BROOKLYN 340 Area Critical Infrastructure

Belt Parkway

Coney Island Yards (MTA) Coney Island WWTP (DEP)

Gravesend Coney Island Hospital (HHC) Bay

Coney Island Creek Sheepshead Bay

Credit: Fred R. Conrad/The New Yo rk Times Beach/ Boardwalk (Parks) Damage in Sea Gate

Meanwhile, the Belt Parkway, an integral part of along ocean-facing areas, particularly in areas had built bulkheads at the edges of their prop- the regional highway network, extends 25 miles where coastal protections were lacking or erties, damage generally was mitigated. from the Gowanus Expressway in Brooklyn inadequate, such as in Sea Gate and Manhattan However, areas without bulkheads both were to the Cross Island Parkway in Queens. Built be- Beach. Even more significant, though, was the in- themselves vulnerable and allowed waves to ginning in the 1930s, this major roadway has undation that occurred via inland waterways, and scour and undermine neighboring seawalls and adjacent parks and esplanades maintained by historic creeks and marshland that had been bulkheads. For example, the substandard DPR. Many sections of the Belt Parkway have paved over decades before. Generally, waters that bulkhead at Lindy Park collapsed as a result of oceanfront exposures and flood during rain or entered Southern Brooklyn through these routes severe wave impacts. storm surge events, although a seawall or bulk- resulted in “stillwater flooding,” where the water head exists along portions of the roadway. On rose steadily through the peak of the storm, and Along Coney Island and Brighton Beach, by Plumb Beach, a former barrier island east then receded quickly after the surge and high contrast, the USACE nourishment project of Sheepshead Bay, the USACE has advanced tide had passed. At Sandy’s peak, floodwaters generally performed as intended, breaking renourishment projects to protect the roadway reached a height of 10 feet in some places, waves before they made contact with buildings. from erosion, including a recent project that including, for example, along Neptune Avenue in However, the beach lost approximately 272,000 involved the installation of geotubes (large, Coney Island. (See map: Area Inundation and cubic yards of sand, according to USACE long textile tubes filled with sand). Surge Height) estimates, and some areas along the beach that were nourished to lower elevations experienced Run by the Metropolitan Transportation Authority In Sea Gate, powerful waves struck buildings breaches, with waves pushing sand and water (MTA), Coney Island Yards facility is another along the waterfront, knocking out the first into adjacent neighborhoods. At Ocean Parkway, integral part of the transportation infrastructure. floors of a number of structures. Where owners for instance, waves pushed thousands of tons of The 75-acre facility—the largest rapid transit complex of its type in the world—includes work- Area Inundation and Surge Height shops where maintenance and overhauls are performed on the subway fleet. The facility was constructed on former marshlands and near sea level, however, making the yard vulnerable to inundation.

The Coney Island Wastewater Treatment Plant Gravesend (WWTP) is also a critical infrastructure asset. Bay Located on Shell Bank Creek within Gerritsen Inlet, this Department of Environmental Protec- tion (DEP) facility has the capacity to process

110 million gallons per day. It serves most of Con ey Island Creek Sheepshead Bay Southern Brooklyn and areas to the north and east. (See map: Area Critical Infrastructure)

Inundation (Feet Above Ground) What Happened During Sandy Less Than 3 3 - 6 Sandy’s storm surge struck Southern Brooklyn in 6 - 10 two ways. The storm brought direct wave impacts More Than 10 Source: FEMA MOTF 11/6 Hindcast surge extent

341 A STRONGER, MORE RESILIENT NEW YORK sand northward, with water traveling 1.5 miles north to Avenue W, joining floodwaters from Sheepshead Bay and Coney Island Creek.

Meanwhile, in Manhattan Beach and at Kings- borough Community College, the elevation of the area helped mitigate flooding. Waves, though, damaged esplanades, docks, and other structures at the water’s edge, particularly along the Manhattan Beach waterfront, from Corbin Place to the college campus at the eastern tip of the peninsula.

Sheepshead Bay was a major source of the floodwaters that impacted the neighborhoods of Sheepshead Bay and Manhattan Beach. The swelling of Coney Island Creek, too, led to inundation in Coney Island and Gravesend. Damage at Manhattan Beach The surge overtopped the creek’s low edges Credit: Nate Bliss (in fact, there was flooding along Neptune Av- Location and Level of Building Damage enue, adjacent to Coney Island Creek, a full 12 hours before the surge’s peak). Even in the ocean-facing neighborhoods of Coney Island, Brighton Beach, and Manhattan Beach, flood- waters came primarily from their “backdoors” until the peak of the storm when, in many areas, waters from the ocean met waters from the north side of the peninsula on land. Gravesend Bay Elsewhere, storm surge pushed into Gerritsen Inlet, which then overflowed into the neighbor- hood of Gerritsen Beach (although floodwaters also came over Plumb Beach and the Belt Coney Island Sheepshead Bay Parkway). This water then flowed to Shell Bank Creek Creek and up and over the creek’s edges into adjacent homes. DOB Tag Data Destroyed The most methodologically rigorous building Red damage assessment undertaken by New York Yellow City of Buildings (DOB) was completed in December 2012. According to this assess- Source: DOB December Tags ment, of those buildings citywide that were tagged, either yellow or red (including those Level of Building Damage further classified as destroyed), 10 percent were located in Southern Brooklyn. The yellow and red tagged buildings in Southern Brooklyn tended to be clustered along Atlantic Avenue in 1% Sea Gate, in Sheepshead Bay and Gerritsen Beach. Southern Brooklyn was unusual among ocean-facing parts of the city, with a larger 11% percentage of red and yellow tagged buildings 21% that were tagged yellow (78 percent) than DOB Tag Data neighborhoods such as South Queens 27% 62% Destroyed (41 percent) and the East and South Shores Red (52 percent). This was reflective of the fact that, Yellow in Southern Brooklyn, although a significant 78% number of buildings were damaged by powerful waves coming off of the ocean, the area also experienced significant “backdoor” (stillwater) inundation in its northern regions. (See map: Southern Brooklyn Citywide Location and Level of Building Damage)

Source: DOB December Tags

CHAPTER 17 | SOUTHERN BROOKLYN 342 residents. Repairs to electrical, heat, and elevator systems in high-rise buildings— including public housing and Mitchell-Lama buildings—took two to four weeks and, in some cases, even longer. Meanwhile, 10 Department of Education buildings had major damage, which impacted fifteen schools. In Coney Island, it was nearly two and half months before students could return to P.S. 288 (the Shirley Tanyhill School). In the interim, these students were sent to other schools.

Local businesses were also hit hard, with over 5,000 businesses employing over 30,000 people affected by the storm. Along neighborhood retail corridors, local grocery stores were closed, making it difficult for residents in Coney Island to access food following the storm. In turn, many businesses that managed to reopen found themselves with fewer customers because so many Southern Brooklyn residents had been displaced.

th There were significant losses within the Damage at the W. 37 Street jetty Credit: Nate Bliss entertainment area as well. At the New York Overall, the storm’s impact on buildings in was not elevated, as well as the destruction of Aquarium, operated by the Wildlife Conservation Southern Brooklyn was primarily from stillwater interior finishes. Society, floodwaters poured into buildings, flooding. Inundation damaged ground-floor and causing an estimated $65 million in damage basement spaces, destroying electrical Flooding had a huge impact on the homes and to life-support systems for fish and marine mam- equipment and other building systems, and residents of Southern Brooklyn. Flooding of mals and exhibit infrastructure. Sandy also disrupting power service. Thousands of com- ground-floor residential units, single-family destroyed the MCU Park front office, locker mercial spaces were inundated, resulting in the homes, and bungalows throughout the area rooms, and field, and did millions of dollars loss of inventory and valuable equipment that resulted in temporary displacement of of damage to rides and electrical systems at the area’s amusement parks.

Southern Brooklyn’s Jamaica Bay Neighborhoods

The neighborhoods of Southern Brooklyn that front on Jamaica Bay, including Marine Park, Bergen Beach, Mill Basin, Canarsie, and East New York, experienced Sandy in some ways that were similar to the neighbor- hoods on which this report focuses and in some ways that were different. However each was impacted in ways that continue to affect the residents and businesses of these neighborhoods.

Credit: Nate Bliss During Sandy, most of the damage done to these neighborhoods was the result of Looking to the future, low-lying areas such as and other shoreline structures in low-lying inundation from Jamaica Bay. Sandy's flood- these neighborhoods are particularly at risk most at risk of flooding, including potentially waters arrived with the storm, were pushed from rising sea levels that could exacerbate these Bay-facing Brooklyn neighborhoods through Rockaway Inlet into the Bay and then storm surges like that brought by Sandy. The (see Coastal Protection Initiative 6); and made their way into creeks, basins, and initiatives described in this report are wetland restoration measures in and around inlets, overflowing sandy beaches and designed to help address these risks through Jamaica Bay. At the same time, this report wetlands and overwhelming bulkheads. In a range of strategies. Among these are: new proposes other measures that will help the case of Canarsie, this neighborhood was coastal protections (studying, for example, with recovery in these neighborhoods by flooded on multiple fronts, with waters a potential storm surge barrier across supporting housing and commercial rebuild- coming both from Paerdegat Basin and Fresh Rockaway Inlet; see Southern Brooklyn ing, building-level resiliency investments, and Creek, impacting hundreds of structures. Initiative 4); a program to raise bulkheads investments in critical infrastructure.

343 A STRONGER, MORE RESILIENT NEW YORK Risk Assessment: Impact of Climate Change Major Risk Moderate Risk Minor Risk

Scale of Impact

Hazard Today 2020s 2050s Comments

Gradual

Sea level rise Minimal impact

Increased Could result in combined sewer overflows and flooding of low-lying areas precipitation Higher average Minimal impact temperature

Extreme Events

Significant risk of both flooding and wave action, as evidenced by Sandy; risk will grow as Storm surge V Zone expands; increased storm frequency will leave less time to restore coastal protections

As with increased precipitation, likely to result in more combined sewer overflows Heavy downpour and flooding

Greater strain on power system with potential for more failures; most significant impact Heat wave on high-rise buildings

High winds Overhead power lines are at risk of failure

Meanwhile, Coney Island Hospital and many What Could Happen in the Future the area. Meanwhile, V Zones, the areas of the area nursing homes, adult-care residences, and 100-year floodplain where waves could exceed other outpatient medical facilities experienced three feet in height, have increased along the Going forward, given the area’s coastal flooding and power loss, resulting in oceanfront and, in some cases, they even exposure and low topography, and as evi- evacuations in the days after the storm. In fact, extend into residential areas. Sensitive facilities, denced by Sandy’s destructive impacts, the Coney Island Hospital, which lost power such as Coney Island Hospital and Coney Island most significant risk to Southern Brooklyn is and suffered significant damage to its mechan- Yards, are now within the 100-year floodplain. from flooding resulting from coastal storms, ical and electrical systems, had to close the (See table: Buildings in the Floodplain) exacerbated by projected sea level rise. day after the storm—evacuating more than 220 patients—and it was months before the According to projections from the New York Major Risks hospital could begin providing inpatient care City Panel on Climate Change (NPCC), de- Preliminary Work Maps (PWMs) were released (see Chapter 8, Healthcare). scribed in Chapter 2, sea levels are projected to in June 2013 by the Federal Emergency rise through the 2020s and 2050s. During this Management Agency (FEMA). According to Sandy also had a significant impact on key period, the floodplain will likely expand, and these new PWMs, the boundaries for the infrastructure in the area, resulting in damage throughout the area, the BFE will likely continue 100-year floodplain—the area that has a 1 and disruption to critical services. The Belt to rise, reflecting the risk of ever-higher percent or greater chance of flooding in any Parkway was inundated in sections, with dam- floodwaters during storms. According to given year—have expanded to include most age to its seawall and bulkhead. At Coney Island the NPCC’s high-end projections, the 2050s, portions of the area that were once marshlands. Yards, there was flooding and significant dam- in Southern Brooklyn, approximately 20,000 (See map: Comparison 1983 FIRMs and age to track switches. Transit service was down buildings are expected to be in the floodplain Preliminary Work Maps) for nine days following the storm. The Coney Is- (an increase of 30 percent over the PWMs), land WWTP lost power during the storm for two V Zones are also expected to expand, and There is also a dramatic increase—215 hours, and inundation inflicted modest damage BFEs are expected to increase. (See map: percent—in buildings of all types in the 100- on the facility. DEP workers heroically labored Comparison of Preliminary Work Maps and year floodplain of the PWMs compared to that to get the plant back online quickly, which Future Floodplains) of the 1983 FIRMs. Base Flood Elevations helped minimize the discharge of untreated (BFE)—the height to which floodwaters could wastewater following the storm. Taking into account the combination of rise during a storm—shown on the maps have sea level rise and increased storm severity, increased two to three feet in large swaths of existing coastal protections may prove no

CHAPTER 17 | SOUTHERN BROOKLYN 344 longer adequate. Additionally, increased storm Buildings in the Floodplain frequency will make it challenging to restore 100-Year Floodplain coastal protections between extreme weather events. Buildings & Units 1983 2013 Projected Projected FIRMs PWMs 2020s 2050s Other Risks Though considerably less significant than the Residential Buildings 4,240 14,220 16,880 18,560 risk from storm surge, other moderate climate change risks do exist going forward for Southern Residential Units 28,100 61,400 73,700 78,800 Brooklyn. For example, increased precipitation and heavy downpours may overwhelm sewer Commercial and 700 1,340 1,540 1,650 systems, a phenomenon that already occurs Other Buildings today in some areas. Heavy rain events also Source: DCP PLUTO, FEMA, CUNY Institute for Sustainable Cities could result in additional localized flooding.

While future projections for changes in wind speeds are not available from the NPCC, a Comparison of 1983 FIRMs and Preliminary Work Maps greater frequency of intense hurricanes by the 2050s could present a greater risk of high winds in the New York area, which could result in downed overhead powerlines and trees, and potentially damage older buildings not constructed to modern wind standards. Heat waves may also strain power systems.

Gravesend Bay Because much of its land lies at least several feet above sea level, most of Southern Brooklyn is not expected to be threatened by sea level rise alone, under typical conditions, and in the ab-

Coney Island Creek sence of extreme weather events. However, iso- Sheepshead Bay lated low-lying areas may experience increased regular tidal flooding. Higher average tempera- tures outside of the increase in the number of heat waves are not expected to have meaning- ful impacts on the area. 1983 FIRMs 100-Year Floodplain 2013 PWMs 100-Year Floodplain Overlap

Source: FEMA

Comparison of Preliminary Work Maps and Future Flooplains

Gravesend Bay

Coney Island Creek Sheepshead Bay

2013 PWMs 100-Year Floodplain Projected 2020s 100-Year Floodplain Projected 2050s 100-year-Floodplain Credit: Charles Denson/ Source: FEMA, CUNY Institute for Sustainable Cities Coney Island Creek Coney Island History Project

345 A STRONGER, MORE RESILIENT NEW YORK Priorities from Public Engagement in Southern Brooklyn

Southern Brooklyn community outreach workshop

Since the Special Initiative for Rebuilding and # of stakeholders from Task Force Briefing Frequency Resiliency (SIRR) was launched in December Southern Brooklyn 2012, the input of local stakeholders has helped • 11 City, State, Federal elected shape an understanding of what happened Elected Officials Monthly during Sandy, what risks Southern Brooklyn officials faces in relation to climate change, and what • 3 community boards approaches make sense to address these risks. Community-Based 4 - 6 weeks Organizations • 40+ faith-based, business, Southern Brooklyn is represented by a wide and community organizations array of elected officials at the Federal, State, and local levels. It is also represented by of such workshops held citywide in which over • Providing additional coastal/shoreline three community boards. The area is further 1,000 New Yorkers participated to discuss protection from wave action, beach erosion, served by a large number of community-based issues affecting their neighborhoods and and oceanfront vulnerabilities organizations, civic groups, faith-based organi- communicate their priorities for the future • Adding protection from “back-door” zations, and other neighborhood stakeholders. of their homes and communities. Generally, inundation that can lead to flooding of All played an important role in relief and the on-the-ground insights provided at these inland areas. recovery efforts after Sandy. Throughout the public workshops helped SIRR staff to develop • Focusing on infrastructure inadequacy, process of developing this plan, SIRR staff a deeper understanding of the specific particularly drainage benefited from numerous conversations—both priorities of, and challenges facing, the commu- • Improving communication, which was formal and informal—with these groups and nities of Southern Brooklyn. hindered after the storm individuals, including, in Southern Brooklyn, • Addressing the lagging recovery of some two task forces that met regularly. Overall, out of the various task force and other neighborhood services and commercial meetings and public workshops attended by corridors SIRR also held two public workshops in March SIRR staff since January, several priorities for of 2013 in Southern Brooklyn, part of a series SIRR clearly emerged:

CHAPTER 17 | SOUTHERN BROOKLYN 346 347 A STRONGER, MORE RESILIENT NEW YORK CHAPTER 17 | SOUTHERN BROOKLYN 348 INITIATIVES FOR INCREASING RESILIENCY IN SOUTHERN BROOKLYN

Southern Brooklyn Community first six coastal protection initiatives described This chapter contains a series of initiatives that Rebuilding and Resiliency Plan below would provide enhanced protection are designed to mitigate the impacts of climate for nearly 1,000 buildings in Southern Brooklyn, change on Southern Brooklyn. In many cases, representing nearly 12,000 housing units as well these initiatives are both ready to proceed Southern Brooklyn is an historic area containing as many businesses and much of the critical and have identified funding sources assigned some of New York City’s most iconic attractions infrastructure in Southern Brooklyn. For a full to cover their costs. With respect to these and unique neighborhoods. The area benefits explanation of the following initiatives and a initiatives, the City intends to proceed with from unparalleled access to a beautiful beach, complete description of the City’s comprehensive them as quickly as practicable, upon the the waterfront, and a network of public parks. coastal protection plan, please refer to Chapter receipt of identified funding. 3 (Coastal Protection). The following is a multilayered plan that not Meanwhile, in the case of certain other initiatives only applies citywide strategies to Southern Coastal Protection Initiative 1 described in this chapter, though these initiatives Brooklyn, but also provides strategies designed Continue to work with the USACE to may be ready to proceed, they still do not have to address the area’s specific needs and complete emergency beach nourishment specific sources of funding assigned to them. particular vulnerabilities. In anticipation of in Coney Island In Chapter 19 (Funding), the City describes future climate change-related risks, this plan additional funding sources, which, if secured, proposes ways that Southern Brooklyn neigh- Though the beach at Coney Island helped to would be sufficient to fund the full first phase borhoods can adapt by: addressing wave action protect adjacent neighborhoods from some of of projects and programs described in this and inundation along the entire coastline; the impacts of Sandy's surge, doing so came at document over a 10-year period. The City will providing opportunities to retrofit the area’s the cost of significant beach erosion. The City, work aggressively on securing this funding and most vulnerable building stock while exploring therefore, will support emergency beach any necessary third-party approvals required in potential redevelopment over time in certain nourishment work from Corbin Place to West connection therewith (i.e., from the Federal or neighborhoods; protecting and improving 37th Street. The initiative will replace approxi- State governments). However, until such time critical infrastructure; and focusing investments mately 1 million cubic yards of sand, which as these sources are secured, the City will only in strategic areas, such as the beachfront, to replaces sand lost during Sandy and will restore proceed with those initiatives for which it has advance a long-term and sustainable recovery. the beach to its original design profile. As part adequate funding. of this initiative, the City and USACE will develop Coastal Protection a plan for ongoing beach maintenance to ensure future events can be followed quickly by restoration of lost sand. The project will As Sandy illustrated, the greatest extreme begin in July with completion expected by weather-related risk faced by New York City the end of 2013. is storm surge, the effects of which are likely to increase given current projections of sea level Coastal Protection Initiative 4 rise. Going forward, it is anticipated that climate Install armored stone shoreline protection change will render coastal regions of the (revetments) in Coney Island city, including Southern Brooklyn, even more vulnerable to these risks. During Sandy, Coney Island Creek was the source of much of the “backdoor” flooding in Southern While it is impossible to eliminate the chance Brooklyn. Subject to available funding, the City, of flooding in coastal areas, the City will seek to therefore, will raise the lowest edge elevations reduce its frequency and effects—mitigating with revetments along Coney Island Creek to a the impacts of sea level rise, storm waves consistent grade. The City, through the Office of including erosion, and inundation on the Long-Term Planning and Sustainability (OLTPS) coastline of the city generally and Southern and the New York City Economic Development Brooklyn in particular. Among the strategies Corporation (NYCEDC), will begin design in 2013 that the City will use to achieve these goals with completion expected within three years. will be the following: increasing coastal edge elevations; minimizing upland wave zones; Coastal Protection Initiative 6 protecting against storm surge; and improving Raise bulkheads in low-lying coastal design and governance. When evaluat- neighborhoods to minimize inland ing coastal protection, other priorities including tidal flooding navigation and ongoing efforts to improve water quality and natural habitats, also will Bulkheads provide the first line of defense be considered prior to implementation, against flooding in many neighborhoods, where appropriate. including Southern Brooklyn, but throughout the city many bulkheads are built to an eleva- The initiatives described below provide important tion that may be insufficient given the latest examples of how the City intends to advance projections of sea level rise by 2050. Subject to its coastal protection agenda citywide. These available funding, the City, therefore, will initiatives will have a significant impact on the launch a program to raise bulkheads and other residents, businesses, and nonprofits of Southern shoreline structures across the five boroughs in Brooklyn. Taken together, when completed, the low-lying areas most at risk of daily or weekly

349 A STRONGER, MORE RESILIENT NEW YORK tidal flooding, a phenomenon that could impact proposing additional coastal protection initia- studies of flood risk reduction in New York City, over one mile of Southern Brooklyn’s shoreline tives specific to Southern Brooklyn’s vulnerabil- based on the recommendations of this report. by the 2050s. OLTPS will work with NYCEDC to ities. These initiatives are described below. manage this program, to begin implementation Southern Brooklyn Initiative 3 in 2013, in conjunction with the new citywide Southern Brooklyn Initiative 1 Call on and work with the USACE to study waterfront inspections program described Call on and work with the USACE Manhattan Beach oceanfront protections in Chapter 3. to study additional Sea Gate oceanfront protection In Manhattan Beach, an historic esplanade has Coastal Protection Initiative 7 been the subject of an ownership dispute and Complete emergency bulkhead repairs As described above, Sea Gate is highly was not repaired following a 1993 nor’easter, adjacent to the Belt Parkway in vulnerable to wave action risks. This is due in leaving waterfront properties and the neighbor- Southern Brooklyn part to the neighborhood’s decision not to hood behind them vulnerable, therefore, to participate in the USACE replenishment project Sandy’s pounding waves. The City will call on the Several critical bulkheads along the Belt Park- of the mid-1990s as a result of concerns relating USACE to develop an implementation plan con- way failed during Sandy, leaving several por- to public access required in connection with the taining options for reinforcing protections along tions of the roadway exposed and vulnerable to receipt of Federal funding. The City will call for the Manhattan Beach waterfront from Corbin future extreme weather. The City, through DPR, the USACE to develop an implementation plan Place to Kingsborough Community College at the therefore will complete bulkhead repairs in for additional protection measures at Sea Gate eastern tip of the Coney Island peninsula. The areas damaged during Sandy, including at 14th to address these lingering vulnerabilities. While City will encourage private waterfront property Avenue, 17th Avenue and 95th Street. These the groin project referenced above will provide owners to engage with the USACE and consider repairs will enhance protection during this needed shoreline protection in the near-term, participating in the implementation of such pro- year’s hurricane season. These repairs are in developing its implementation plan, the tections. New or reinforced ocean-facing protec- expected to be completed in 2013. USACE should investigate whether additional tions—such as sea walls, bulkheads and beach nourishment extending west of the revetments—would serve to protect ocean-fac- Coastal Protection Initiative 16 existing West 37th Street jetty to Norton’s Point ing structures and homes from waves and upland Continue to work with the USACE to and development of a reinforced sea wall or areas from inundation. The Federal government complete its Plumb Beach breakwater dune system on the coastal edge of Gravesend would likely require public waterfront access in and beach nourishment project in Bay may be appropriate. To obtain Federal order to support additional oceanfront protec- Southern Brooklyn funding for protective measures, the Sea Gate tions. The goal is for the USACE to begin work on Association, which is the predominant owner of this plan as part of its comprehensive study of Shortly before Sandy's arrival, the USACE oceanfront property in the area, will likely be flood risk reduction in New York City, based on completed the first phase of a beach nourish- required to provide public access to the the recommendations of this report. ment project at Plumb Beach, along the Belt community’s beaches. The goal is for USACE to Parkway. The project provided critical protection begin work on this plan as part of its continuing Southern Brooklyn Initiative 4 to the Parkway during the storm. The City, studies of flood risk reduction in New York City, Call on and work with the USACE to therefore, will support completion of the second based on the recommendations of this report. study mitigating inundation risks through phase of this existing project. The second phase Rockaway Inlet, exploring a surge barrier will include additional nourishment and Southern Brooklyn Initiative 2 and alternative measures construction of an offshore breakwater. It is Continue to work with the USACE to expected to be completed in 2014. study strengthening the Coney Much of the flood damage from Sandy in the Island/Brighton Beach nourishment neighborhoods of Brooklyn and Queens that Coastal Protection Initiative 18 face Jamaica Bay came from water that flowed Continue to work with the USACE to While immediate restoration of these beaches through Rockaway Inlet into the Bay. The complete its Sea Gate project in to pre-storm conditions with sand replacement extensive shoreline that surrounds Jamaica Bay Southern Brooklyn and reshaping is critical, rising sea levels and supports a variety of land uses and densities, more frequent storm surge demands more all of which are at risk of flooding. Because Sea Gate has very little coastal protection. As protection, focused first on areas of the beach flood protection along the existing shoreline of a result, during Sandy, the neighborhood (such as that at the end of Ocean Parkway) that Jamaica Bay would be extremely expensive sustained significant damage. The City, there- were breached in the recent storm. The City will and disruptive, and in some cases nearly fore, will support construction of groins in this call on the USACE to develop an implementa- impossible, the City will call on and work with neighborhood. These offshore structures are tion plan containing options for strengthening the USACE to develop an implementation primarily intended to protect the terminal groin the protections offered by these beaches. Ad- plan for a local storm surge barrier to be at West 37th Street, but also will provide a ditional measures could include structured constructed across Rockaway Inlet approxi- first line of protection to the neighborhood dune systems, seasonal installation of “snow- mately between Manhattan Beach in Brooklyn against some of the impacts of inundation and fencing” to control sand and sediment migra- and Breezy Point in Queens. A Rockaway Inlet destructive wave action. This project is tion, and potential reinforcement or extension local storm surge barrier at this location could expected to be completed by 2014. of existing groins. Working with DPR, the USACE protect against significant inland flooding and should also explore such protective measures wave risk in neighborhoods from Sheepshead ––– as part of its current comprehensive study. Cer- Bay to Howard Beach, as well as JFK Airport, tain low-cost interventions—such as temporary Broad Channel and the entire bayside of the Beyond the priority coastal protection fencing—may be pursued or piloted by DPR in Rockaway peninsula (provided that the barrier projects described in Chapter 3, including the near-term. The goal is for the USACE to were completed in conjunction with dune those summarized briefly above, the City is begin work on this plan as part of its continuing enhancements along the oceanside of the

CHAPTER 17 | SOUTHERN BROOKLYN 350 INITIATIVES FOR INCREASING RESILIENCY IN SOUTHERN BROOKLYN

Rockaway peninsula and mitigation measures The goal is for the USACE to begin work on this for the surrounding neighborhoods and holding along Coney Island Creek). This project, in plan as part of its comprehensive study of flood back surge. Following a weather event, the turn, would obviate the need for extensive lo- risk reduction in New York City, based on the culverts could be reopened and water could calized coastal protections spread around the recommendations of this report. drain, flushing the Creek. (See graphic: Concep- shoreline of the Bay. A preliminary feasibility tual Coney Island Creek culvert) assessment, to be performed by OLTPS in Southern Brooklyn Initiative 5 coordination with DEP, would examine impacts Develop an implementation plan and While these changes would impede future on water quality, habitat, hydrodynamics, and preliminary designs for new Coney Island navigation of the Creek, they would also navigation, and would identify potential Creek wetlands and tidal barrier present an unprecedented opportunity to mit- secondary coastline reinforcements. igate flood risks for the entire Coney Island Coney Island Creek presents a significant flood neighborhood, for much of the Gravesend The aforementioned study should also examine risk to Coney Island and Gravesend. Therefore, neighborhood, and for sensitive infrastructure alternative approaches to coastal protection the City will develop an implementation plan and such as the MTA’s Coney Island Yards, all of of the vulnerable areas behind this potential preliminary designs for a significant rethinking which were damaged by Sandy. Additionally, surge barrier, including localized options for pro- of the Creek that goes beyond the revetment the Creek protections could serve to expand tecting areas adjacent to Sheepshead Bay. project described above. This rethinking will recreation options and public access, poten- Examples of alternative approaches could be the include consideration of further protections, tially transforming this ill-used waterway into a use of the elevated Belt Parkway as a levee with including edge-strengthening and edge-softening major public open space amenity for Southern passive floodwalls at roadway underpasses; measures, such as wetland construction, and a Brooklyn. (See rendering: Coney Island Creek) permanent levees along the perimeter of the potential up-creek tidal barrier or dam across the Bay; and the “shallowing” of Jamaica Bay. As an- Creek to control tidal surge and improve water The implementation plan and preliminary other alternative, the study should also examine quality. A new levee and tide gate system could designs, to be advanced by OLTPS and by the the feasibility of a navigable or non-navigable connect Calvert Vaux and Kaiser Parks. New USACE subject to available funding, would surge barrier at Gerritsen Inlet, exploring culverts (pipes) that generally would allow investigate environmental impacts and bene- costs and potential impacts to navigation and normal tidal flow could be closed at low-tide in fits, hydrology, water quality issues, permitting water quality. anticipation of a storm, converting the Coney issues, and operational considerations. The Island Creek bed into a water detention basin goal is for the USACE to begin work on this plan

Coney Island Creek

Conceptual rendering of Coney Island Creek wetlands and tidal barrier, with Rockaway inlet barrier

351 A STRONGER, MORE RESILIENT NEW YORK as part of its comprehensive study of flood risk The initiatives described below provide for developments throughout Southern Brook- reduction in New York City, based on the rec- important examples of how the City intends to lyn, including as many as 4,500 units of new ommendations of this report. advance building resiliency citywide. These housing that are permitted to be constructed initiatives will have a positive impact on the res- in the Coney Island neighborhood pursuant idents, businesses, and nonprofits of Southern to the rezoning of that neighborhood approved Buildings Brooklyn. For a full explanation of the following by the City Council and City Planning initiatives and a complete description of the Commission in 2009. The city’s buildings give physical form to City’s five-borough building resiliency plan, New York. As Sandy demonstrated, however, please refer to Chapter 4 (Buildings). Buildings Initiative 2 the building stock citywide, including in Rebuild and repair housing units Southern Brooklyn, is highly vulnerable to ex- Buildings Initiative 1 destroyed and substantially damaged treme weather events—a vulnerability that is Improve regulations for flood resiliency by Sandy expected to increase in the future. While the of new and substantially improved coastal protection measures outlined above are buildings in the 100-year floodplain Roughly 23,000 private residential buildings designed to reduce the effects of sea level rise, encompassing nearly 70,000 housing units were storm surge, and wave action on the city and Though buildings constructed to modern damaged or destroyed during Sandy. Subject Southern Brooklyn, these measures will not Construction Codes generally performed to available funding, the City, therefore, through completely eliminate those risks. They also well during Sandy, given the increasing risk the Mayor’s Office of Housing Recovery will take time to design, fund, and build. It is of flooding that is likely with climate change, Operations (HRO), will provide financial and equally important, therefore, to supplement modifications are warranted. The City, there- other assistance to owners of residential these measures by pursuing resiliency at the fore, will seek to amend the Construction properties that were destroyed or substantially building level. Codes and Zoning Resolution to provide damaged during Sandy, including approximately for strengthened requirements that will, among 380 residential buildings encompassing To achieve building-level resiliency, the City other things, improve the design of new approximately 1,500 housing units in Southern will seek to protect structures in Southern buildings through the application of appropri- Brooklyn. To address the damages sustained Brooklyn and throughout the five boroughs ate resiliency measures that are calibrated to and to more effectively prepare these against a spectrum of climate risks, including not the best floodplain data available over time and significantly damaged buildings for future only flooding but also high winds and other provide that critical building systems are storm events, the City either will assist owners extreme events. Among the strategies that the better-protected from flood risks. In 2013, the or, in limited cases meeting City criteria, will City will use to achieve these goals will be to City, through OLTPS, will seek to implement facilitate the acquisition of properties by new construct new buildings to the highest resiliency these code changes and the Department of City owners whom it will assist, in rebuilding and standards and retrofit as many existing buildings Planning (DCP) will continue to take zoning substantially improving these properties based as possible so that they will be significantly better changes through the public review process, on the best floodplain data available over time. prepared to handle the impacts of extreme with the goal of adoption before the end of the Additionally, the City is seeking to incorporate weather events. year. If adopted, they will improve resiliency resiliency measures into approximately 500 to 600 multifamily properties that sustained Conceptual Coney Island Creek culvert minor damage including many publicly-assisted properties such as those developed pursuant to the Mitchell-Lama program and other Rocky Shore Edge affordable housing programs. The City, there- New York Bay Planted Bank Coney Island Creek fore, will support the retrofit of these publicly- 17’ Design Flood Elevation assisted buildings. High Tide Buildings Initiative 3 Low Tide Study and implement zoning changes to

Free circulation of fresh and saltwater during normal conditions encourage retrofits of existing buildings and construction of new resilient

New York Bay Coney Island Creek buildings in the 100-year floodplain 17’ Design Flood Elevation The City, through DCP, will undertake a series High Tide of citywide and neighborhood-specific land use Low Tide studies to address key planning issues in severely affected and vulnerable communities. Flood gates closed at low tide in anticipation of storm event, increasing capacity of tidal As part of these studies, the City will identify pond to receive rainfall and stormwater run-o and protecting inland areas from storm surge ways to facilitate the voluntary construction of New York Bay Coney Island Creek new, more resilient building stock, and to 17’ Design Flood Elevation encourage voluntary retrofits of existing vulner- able buildings over time. To be undertaken High Tide in close consultation with local residents, Low Tide elected officials, and other community stake- holders, these land use studies will focus on the Flood gates opened at low tide following storm to release excess water from tidal pond and flush creek system challenges posed by the flood exposure of the applicable neighborhoods; the vulnerability

CHAPTER 17 | SOUTHERN BROOKLYN 352 INITIATIVES FOR INCREASING RESILIENCY IN SOUTHERN BROOKLYN

of the building types that are found in these Buildings Initiative 6 Buildings Initiative 8 neighborhoods (e.g., older, 1-story bungalows); Amend the Building Code and Establish Community Design Centers to and site conditions in these areas (e.g., narrow complete studies to strengthen assist property owners in developing lots) that can make elevation or retrofit of vul- wind resiliency for new and design solutions for reconstruction nerable buildings expensive or complicated. In substantially improved buildings and retrofitting, and connect them to Southern Brooklyn, DCP will examine neighbor- available City programs hoods including Gerritsen Beach, exploring As noted above, buildings constructed to zoning and other land use changes that, in the modern Building Code standards generally The City, through HRO, will establish Commu- future, could encourage residents, if they performed well during Sandy. Sandy, however, nity Design Centers in neighborhoods so choose, to make changes with respect to brought relatively weak winds, compared across the City, potentially including Southern existing homes or build new homes that would to other hurricanes. Given the possibility of more Brooklyn, to assist property owners in develop- result in significantly greater resiliency. Subject frequent or intense wind events in the future, ing design solutions for reconstruction and to available funding, the goal is for DCP to modifications to the Building Code are war- retrofitting, and connect them to available City commence this study in 2013. Thereafter, ranted. The City, therefore, through OLTPS, programs. The Centers would be managed by DCP would move to implement changes, if any, will seek to amend the Building Code to provide the City—through agencies such as HRO, HPD, that it deems to be appropriate based on for strengthened requirements so that DOB, DCP, and NYCEDC—with support from the results. new buildings citywide can meet enhanced local partners. Buildings Initiative 4 standards for wind resiliency. The City will further study whether additional wind resiliency Buildings Initiative 9 Launch a competition to encourage standards should be required going forward. Retrofit public housing units damaged by development of new, cost-effective The amendments will be submitted to the City Sandy and increase future resiliency of housing types to replace Council for adoption, and the study will public housing vulnerable stock commence, in 2013. During Sandy, public housing developments Subject to available funding, the City, through Buildings Initiative 7 owned and operated by NYCHA suffered the Department of Housing Preservation and Encourage existing buildings in the significant damage throughout the city. Still Development (HPD), will launch an international 100-year floodplain to adopt flood more were not impacted by Sandy but remain Resilient Housing Design Competition. This resiliency measures through an incentive vulnerable to extreme weather, with even more competition will offer prizes to private-sector program and targeted mandate likely to become vulnerable as the climate developers who design and develop new, changes. The City, therefore, through NYCHA, high-quality housing prototypes that offer own- Even if every structure destroyed or damaged will repair public housing developments across ers of vulnerable building types (e.g., older, by Sandy were rebuilt to the highest resiliency the city that were damaged by Sandy, incorpo- 1-story bungalows), a cost-effective path that standards, this would still leave tens of rating new flood resiliency measures. In South- is consistent with city building and zoning thousands of existing structures in the 100-year ern Brooklyn, 40 buildings containing over 4,000 requirements, and meet the highest resiliency floodplain vulnerable—with more becoming units will be repaired. NYCHA also will undertake standards. In addition to cash prizes, the vulnerable as the climate changes. Subject to a planning process to identify additional winners of this competition will be given the op- available funding, the City, therefore, will launch resiliency investments in developments that are portunity to put these structures into service in a $1.2 billion program to provide incentives to vulnerable to weather-related events, even if connection with a City-sponsored development owners of existing buildings in the 100-year they were unaffected by Sandy. In Southern project. Prototypes will have applicability floodplain to encourage them to make Brooklyn, NYCHA is, subject to available funding, throughout the five boroughs, including resiliency investments in those buildings. Of the evaluating resiliency investments in 47 buildings in sections of Southern Brooklyn such as up to $1.2 billion available through the pro- containing nearly 3,000 additional units. Gerritsen Beach and other vulnerable bungalow gram, the City will reserve up to $100 million for communities. The goal is for HPD to launch this 1- and 2- family homes, up to $500 million for Buildings Initiative 10 competition in 2013. distribution to the five boroughs based on each Launch a sales tax abatement program Buildings Initiative 5 borough’s share of vulnerable buildings for flood resiliency in industrial buildings citywide, and $100 million for affordable hous- Work with New York State to identify ing developments. The City also will mandate As Sandy demonstrated, many industrial eligible communities for the New York that large buildings (those with seven or more buildings are vulnerable to extreme weather, Smart Home Buyout Program stories that are more than 300,000 square with more likely to become vulnerable as the feet in size) undertake certain flood resiliency climate changes. However, many industrial The City will evaluate opportunities for investments by 2030. If the City consistently buildings operate on thin margins, making it collaboration with the State in connection with achieves its stated goal of encouraging challenging to invest in resiliency. The City, its home buyout program, using an objective significant resiliency retrofit investments for the through the New York City Industrial Develop- set of criteria developed by the City, including vast majority of the vulnerable built floor area ment Agency (NYCIDA), therefore, will launch a extreme vulnerability, consensus among a in the five boroughs, nearly 45,000 units $10 million program to provide incentives to critical mass of contiguous local residents, and encompassing approximately 55 million square owners of industrial buildings to encourage other relevant factors. It is anticipated that feet of built space in Southern Brooklyn them to make resiliency investments in those these criteria will be met in a limited number of would, over time, be made meaningfully less buildings. The program will prioritize 1- to areas citywide. As of the writing of this report, vulnerable. The goal is to launch these 2-story buildings with more than four feet no areas have been identified for this program programs in 2013. between their actual ground elevation and in Southern Brooklyn. the applicable BFE. In Southern Brooklyn,

353 A STRONGER, MORE RESILIENT NEW YORK approximately 25 industrial buildings with over Southern Brooklyn Initiative 6 country. The City estimates that in areas of 200,000 square feet of floor area will be eligible Study additional resiliency initiatives Southern Brooklyn inundated by Sandy, less for this program. This program will be launched for ground-floor housing within than 17 percent of residential properties typi- in 2013. NYCHA buildings cally insured under the NFIP, including 1- to 2- family homes, amongst others, actually had Buildings Initiative 11 NYCHA developments are a significant feature policies in force during Sandy. Furthermore, Launch a competition to increase flood in Southern Brooklyn. One challenge in NYCHA’s Sandy drew attention to the significant cost in- resiliency in building systems facilities is the presence of ground-floor creases in flood insurance that many New York- residential units that are below the BFE, and are ers will soon face, resulting from recent reforms Many existing strategies for improving resiliency vulnerable to flooding. There are approximately to the NFIP as required by the Biggert-Waters in buildings are either imperfect, expensive, or a 115 ground-floor units located in 37 NYCHA Flood Insurance Reform Act. combination of both. The City, through NYCEDC, buildings in the Coney Island area. therefore, will launch an approximately $40 The City will use several strategies to encour- million Resiliency Technologies Competition To address this challenge, the City will explore age more New Yorkers to seek coverage and to using allocated Community Development the construction of new, resilient units in the help the NFIP meet the needs of policyholders Block Grant (CDBG) funding to encourage the Coney Island area to replace at-risk units. These citywide. Specifically, the City will work to: development, deployment, and testing of new units would be reserved for tenants of existing address affordability issues for the most resiliency technologies for building systems. ground-floor units in public housing develop- financially vulnerable policyholders; define In Southern Brooklyn, 15,570 buildings will be ments in Southern Brooklyn. Such a project, mitigation measures that are feasible in an eligible to benefit from this competition. The provided it were determined to be feasible and urban environment such as Southern Brooklyn program will be launched in 2013. were funded, would include rent and occupancy and create commensurate premium credits to lower the cost of insurance for property owners Buildings Initiative 12 protections for NYCHA residents and would allow residents to relocate into new, modern, who invest in these measures; encourage the Clarify regulations relating to the and resilient units in their community. The study NFIP to expand pricing options (including op- retrofit of landmarked structures in the also will assess how NYCHA could best tions for higher deductibles) to give potential 100-year floodplain repurpose vacated ground floor units in current policyholders more flexibility to make choices NYCHA buildings—exploring, for example, about coverage; and launch efforts to improve The City, through the Landmarks Preservation community or public-serving commercial uses. consumer awareness, to help policyholders Commission, will clarify the Commission’s make informed choices. The initiatives regulations to assist owners of landmarked The City’s study will be undertaken in close described below are important examples of buildings and properties in landmarked districts consultation with the NYCHA resident commu- how the City will advance these strategies. in the 100-year floodplain who are contemplat- nity and will seek to identify new sources of These initiatives will have a major impact on the ing retrofit projects. In Southern Brooklyn, there capital funding and new operating resources. residents, small businesses and nonprofits in are seven landmarked buildings or structures in Such new sources of capital funding and oper- this community. For a full explanation of the the floodplain. The Commission will issue its ating resources are a necessary precondition following initiatives and a complete description clarifying regulations in 2013. for any project to proceed. The study will be of the City’s five-borough insurance reform plan, please refer to Chapter 5 (Insurance). Buildings Initiative 13 completed by early 2014. Amend the Building Code to improve Insurance Initiative 1 wind resiliency for existing buildings and Insurance Support Federal efforts to address complete studies of potential retrofits affordability issues related to reform of Insurance can help provide residents and the NFIP As noted above, given the possibility for more businesses with financial protection against frequent intense wind events in the future, mod- losses from climate change and other types of The City will call on FEMA to work with the ifications to the Building Code are warranted. risks. Sandy not only highlighted the impor- National Academy of Sciences to complete the The City, therefore, through OLTPS, will seek tance of insurance, it also revealed that many study of flood insurance affordability, as to amend the Building Code and expand the ex- New Yorkers are exposed to flood losses, which required under the Biggert-Waters Act. The City isting DOB Façade Inspection Safety Program for are not covered in standard homeowners or will urge its Federal government partners to high-rise buildings to include rooftop structures small business property insurance policies. comply with this provision of the Act and take and equipment. The City will further study Citywide, 95 percent of homeowners carry swift action to enact the recommendations. whether additional wind resiliency standards are homeowners insurance, but when Sandy struck Insurance Initiative 4 required going forward. These amendments will less than 50 percent of residential buildings in be submitted to the City Council for adoption the effective 100-year floodplain had coverage Call on FEMA to develop mitigation and the study will commence in 2013. through the National Flood Insurance Program credits for resiliency measures (NFIP), a Federal program administered ––– by FEMA that provides flood insurance to The NFIP provides few incentives for property properties in participating communities like owners to protect their buildings from flood Beyond the priority building resiliency projects New York City. While larger properties, in damage and reduce their premiums, other than described in Chapter 4, including those summa- particular large commercial properties, tend to by elevating their buildings—actually lifting rized briefly above, the City is proposing an ad- purchase flood insurance through the private structures above flood elevation levels. In an ditional building resiliency initiative that is market, NFIP is the primary source of flood urban environment such as Southern Brooklyn, specific to Southern Brooklyn’s vulnerabilities. insurance for homeowners throughout the for a variety of reasons, elevation can be The initiative is described below. impractical, undesirable, and/or economically

CHAPTER 17 | SOUTHERN BROOKLYN 354 INITIATIVES FOR INCREASING RESILIENCY IN SOUTHERN BROOKLYN

infeasible. Fortunately, other mitigation options investments that harden energy infrastructure system, the City, through OLTPS, will work with are available. The City, therefore, will call upon and make systems more flexible in responding the PSC, Con Edison, and National Grid to harden FEMA to provide appropriate premium credits to disruptions and managing demand; and control equipment against flooding. In addition, for mitigation measures other than elevation. better diversify the city’s sources of energy. The the City will call upon Con Edison and National initiatives described below provide important Grid to take steps to prevent water from infiltrat- Insurance Initiative 6 examples of how the City intends to advance ing its gas pipes. This effort will begin in 2013. Call on FEMA to allow residential policy- utilities resiliency citywide. These initiatives will holders to select higher deductibles have a positive impact on the residents, Utilities Initiative 21 businesses, and nonprofits of Southern Brook- Work with public and private partners Flexible pricing options can encourage more lyn. For a full explanation of the following initia- to scale up distributed generation (DG), people, especially those not required to carry tives and a complete description of the City’s including microgrids insurance, to purchase insurance coverage that five-borough utilities resiliency plan, please suits their needs. A higher-deductible option refer to Chapter 6 (Utilities). The city’s DG systems, including microgrids, can substantially reduce premium costs to have the potential for significant expansion— policyholders while remaining truly risk-based. Utilities Initiative 5 but are constrained by regulations, financing Currently under the NFIP, deductibles up to Work with utilities and the Public challenges, and lack of information. The City, $50,000 are allowed for commercial policies, Service Commission (PSC) to harden key through OLTPS and the New York City Distrib- but residential policies are limited to a electric transmission and distribution uted Generation Collaborative—a stakeholder maximum deductible of $5,000. The City, there- infrastructure against flooding group convened by the City in 2012—will con- fore, will call upon FEMA to allow homeowners tinue efforts to achieve a PlaNYC goal of in- that are not required to carry NFIP policies to Various transmission substations, distribution stalling 800 megawatts of DG citywide by 2030. purchase high-deductible policies, protecting substations, utility tunnels, and underground These efforts will include reform of PSC tariffs them from catastrophic loss; initial estimates equipment in the city are at risk of flooding dur- and other regulatory changes, expansion of indicate that doing so could reduce insurance ing extreme weather. For example, 40 percent low-cost financing, and provision of technical premiums by about half. of transmission substations are in the 100-year assistance to property owners and developers. floodplain today, and 67 percent are likely to be This ongoing effort will continue in 2013. in the 100-year floodplain by the 2050s. The Critical Infrastructure City, through OLTPS, will work with Con Edison ––– and the Long Island Power Authority (LIPA) to A resilient New York requires protection of its prioritize these assets based on their roles Beyond the priority utilities resiliency projects critical services and systems from extreme in system reliability and to harden them as ap- described in Chapter 6, including those summa- weather events and the impacts of climate propriate. This effort will begin in 2013. rized briefly above, the City is proposing addi- change. This infrastructure includes the city’s tional utilities resiliency initiatives that are utilities and liquid fuel system, its hospitals and Utilities Initiative 6 specific to Southern Brooklyn’s vulnerabilities. other healthcare facilities, telecommunications Work with utilities and the PSC to harden These initiatives are described below. network, transportation system, parks, waste- vulnerable overhead lines against winds water treatment and drainage systems, as well Southern Brooklyn Initiative 7 as other critical networks—all vital to keeping During extreme weather events, high winds and Support CUNY launch of study and pilot of the city, including Southern Brooklyn, running. downed trees threaten overhead electric poles, new technologies for high-rise buildings transformers, and cables. The City, through OLTPS, will work with Con Edison and LIPA to man- The City University of New York’s Building Utilities age the risk of wind and downed-tree damage Performance Lab intends to launch a study and through tree maintenance, line strengthening, pilot program in Southern Brooklyn to place The city’s electric, natural gas, and steam and a line-relocation program. In some limited backup renewable energy systems and on-site re- systems are essential to everyday life in areas cases, rerouting lines underground may also be newable energy generation at high-rise residen- throughout the five boroughs, including South- warranted, depending on the outcome of a cost- tial buildings, in part to aid resiliency. The City will ern Brooklyn. As Sandy proved, however, these benefit analysis to be performed in partnership provide technical assistance, as needed, for systems are highly vulnerable to extreme with the utilities. This effort will begin in 2013. CUNY’s study and the eventual launch. Such tech- weather events with 800,000 customers losing nologies may provide building-specific solutions electricity and 80,000 customers losing Utilities Initiative 7 for energy resiliency and help ease pressures on natural gas service during Sandy across the city, Work with utilities, regulators, and gas the grid in times of peak demand, while also pro- including approximately 160,000 that lost pipeline operators to harden the natural ducing cost savings for the relevant consumers. electricity service in the borough of Brooklyn. gas system against flooding The CUNY Building Performance Lab will advance This vulnerability will only grow as the this study and pilot in the next two years. climate changes. Although the city's high-pressure gas transmis- sion system performed relatively well during Southern Brooklyn Initiative 8 Among the strategies that the City will use to Sandy, there were instances where remote op- Study options to ensure resiliency of address these challenges for residents of eration of parts of the system failed. Additionally, private cogeneration facilities in the area Southern Brooklyn and other parts of the city the distribution system had localized outages will be to: call for risk-based analysis of due to water infiltration. Seeking to limit the Several residential and commercial developments low-probability but high-impact weather events compromising effects of future floods on both in Southern Brooklyn have on-site private cogen- to be incorporated into utility regulation and the system’s backbone and the ability of Con Edi- eration facilities that supply energy to certain investment decision-making; call for capital son and National Grid to control and monitor the buildings. Many of these facilities were damaged

355 A STRONGER, MORE RESILIENT NEW YORK during the recent storm, and are vulnerable to fu- Liquid Fuels Initiative 4 Liquid Fuels Initiative 9 ture extreme weather events. The City, through Work with New York State to provide in- Harden municipal fueling stations and OLTPS, will explore changes to the Construction centives for the hardening of gas stations enhance mobile fueling capability to Codes or other regulations to ensure proper pro- to withstand extreme weather events support both City government and tection measures are in-place at these facilities. critical fleets This effort will begin with a study of cogeneration New York State's 2013–2014 budget required facilities and their vulnerabilities. that certain retail fuel stations invest in The City must be able to respond quickly to a equipment that would allow them to connect fuel supply disruption, providing continuous fu- Liquid Fuels generators quickly in the event of a power loss, eling to vehicles that are critical for emergency and enter into supply contracts for emergency response, infrastructure rebuilding, and disas- generators. The City, through OLTPS, will ter relief. The City, through the Department of The liquid fuel supply chain is essential for support the State in the design and implemen- Citywide Administrative Services (DCAS), will everyday life throughout the five boroughs, tation of this generator program, an effort that procure fuel trucks, generators, light towers, including in Southern Brooklyn. Sandy demon- will include working with the New York State forklifts, and water pumps to permit the City to strated the vulnerability of this system to Energy Research and Development Authority put in place emergency fueling operations im- extreme weather events. In the aftermath of (NYSERDA) to develop an incentive program to mediately following a disruption in the fuel sup- Sandy, citywide—and particularly in Southern minimize the financial impact of the require- ply chain. DCAS also will issue a Request for Brooklyn—there were long lines at gas stations ments on the businesses involved. In addition, Expressions of Interest (RFEI) to potential sup- and other challenges for drivers, including OLTPS will work with the State to develop incen- pliers of liquid fuels to evaluate options for emergency responders. The vulnerability of this tives to encourage retail fuel stations to sourcing such fuel during emergencies. The system will only grow as the climate changes. implement resiliency measures other than procurement effort will be launched in 2013, backup power capability. This effort will be with the RFEI to follow in 2014. Among the strategies that the City will use to launched in 2013. address these challenges for residents of Southern Brooklyn and other parts of the city Liquid Fuels Initiative 5 Healthcare will be to: develop a strategy for the hardening Enable a subset of gas stations and of liquid fuels infrastructure along the supply terminals have access to backup The city’s healthcare system is critical to the chain; increase redundancy and fuel supply generators in case of widespread well-being of New Yorkers throughout the five flexibility; and increase supply availability for ve- power outages boroughs, including in Southern Brooklyn. This hicles critical to the city’s infrastructure, safety, system is also a major economic engine for the and recovery from significant weather events. Gas stations are vulnerable to widespread city as a whole. This is especially true for South- The initiatives described below provide impor- power outages resulting from extreme weather ern Brooklyn, where a major New York City tant examples of how the City intends to ad- events, which could prevent them from dispens- Health and Hospitals Corporation (HHC) hospi- vance its liquid fuel resiliency agenda citywide. ing fuel. In New York State's 2013–2014 budget, tal, numerous nursing homes and adult care fa- These initiatives will have a positive impact on NYSERDA was directed to develop a generator cilities, and a network of community-based the residents, businesses, and nonprofits of pool program for gas stations. The City, through facilities, doctors’ offices, and pharmacies sup- Southern Brooklyn. For a full explanation of the its Office of Emergency Management (OEM), will port the local area. Sandy exposed this sys- following initiatives and a complete description work with NYSERDA, FEMA, and the USACE in tem’s vulnerabilities, which are expected to of the City’s five-borough liquid fuels resiliency 2013 and beyond to develop such a pool and to grow as the climate changes. plan, please refer to Chapter 7 (Liquid Fuels). create a pre-event positioning plan to enable Liquid Fuels Initiative 1 the ready deployment of generators to im- Among the strategies that the City will use to pacted areas in the wake of a disaster. address these challenges for residents of Call on the Federal government to con- Southern Brooklyn and other parts of the city vene a regional working group to develop Liquid Fuels Initiative 8 will be to: build new hospitals, nursing homes, a fuel infrastructure hardening strategy Develop a package of City, State, and and adult care facilities to higher resiliency stan- Federal regulatory actions to address dards and harden existing facilities to protect The fuel supply shortage after Sandy was liquid fuel shortages during emergencies critical systems; seek to keep lines of commu- caused mainly by damage to infrastructure in nication open between patients and providers, New Jersey and other states, where the City Various regulations relating to the transporta- even during extreme weather events; and en- and State of New York have no regulatory or tion and consumption of fuels in New York City able community-based providers to reopen legislative authority or oversight. The City, limit the flexibility of the market to respond to quickly after a disaster. The initiatives described through OLTPS, will call on the Federal Hurri- disruptions, including following extreme below provide important examples of how the cane Sandy Rebuilding Task Force and the weather events. The City, through OEM, will City intends to advance its healthcare resiliency United States Department of Energy to con- work with the State and Federal governments agenda citywide. These initiatives will have a vene regional stakeholders to develop a strat- to prepare an “off-the-shelf” package of regula- positive impact on the residents and healthcare egy for hardening key infrastructure against tory measures for use in the event of a liquid providers of Southern Brooklyn. For a full expla- future extreme weather. This effort will be fuels shortage to allow supply-demand imbal- nation of the following initiatives and a com- launched in 2013. ances in the fuel supply to be mitigated more plete description of the City’s five-borough quickly. This effort will be launched in 2013. healthcare resiliency plan, please refer to Chap- ter 8 (Healthcare).

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Healthcare Initiative 2 electrical pre-connections for external stand-by Construction Code amendments applicable Require the retrofitting of existing generators. Adult care facilities will be required to nursing homes and adult care facilities hospitals in floodplains to install either emergency generators that are proposed in this report go into effect, likely adequately protected or pre-connections to ex- in 2013. ternal stand-by generators. OLTPS will propose Many existing hospital buildings in the flood- Healthcare Initiative 8 plain remain vulnerable to the impact of storm these requirements to the City Council in 2013. Increase the air conditioning capacity of surge, with more likely to become vulnerable as Healthcare Initiative 5 the climate changes. The City, through OLTPS, nursing homes and adult care facilities therefore, will seek to amend the Construction Require retrofitting of nursing homes Code to require existing hospital buildings in in floodplains Nursing homes and adult care facilities typically the 500-year floodplain—including Coney Is- do not have enough emergency power capacity land Hospital—to meet by 2030 a subset of the Many existing nursing home facilities in the five to run their air conditioning systems following amended Construction Code standards for boroughs are vulnerable to storm surge—a vul- the loss of power. This could cause some flood-resistant design. To minimize the risk nerability that will only grow as the climate providers to evacuate during power outages of emergency evacuations and extended changes. The City, through OLTPS, therefore, that occur during hot summer months. The City closures, these hospitals will be required to pro- will seek to amend the Construction Codes to will offer sales tax waivers totaling $3 million tect their electrical equipment, emergency require nursing homes in the 100-year flood- citywide to assist eligible nursing homes and power system, and domestic water pumps plain—including five facilities in Southern adult care facilities that install emergency to the 500-year flood elevation. These hospitals Brooklyn—to meet standards for the protec- power solutions for air conditioning systems. tion of electrical equipment, emergency power also will be required to install backup air-condi- Healthcare Initiative 9 tioning service for inpatient care areas in case systems, and domestic water pumps (if applica- of utility outages, pre-connections for tempo- ble) by 2030. These systems will be protected Harden primary care and mental rary boilers and chillers if primary equipment is to the 100-year flood elevation, in accordance health clinics not elevated, and pre-connections for external with specifications already in the Construction generators as a backup power source. Coney Codes, and will help enable patients to shelter In communities such as Southern Brooklyn that Island Hospital already has begun exploring a in place safely or reoccupy quickly after a are at risk of extensive flooding during extreme number of these and other flood mitigation storm. OLTPS will propose these requirements weather events, primary care and mental measures as part of its post-Sandy rebuilding to the City Council in 2013. health services may be compromised for weeks after a disaster due to extended facility process. OLTPS will propose these require- Healthcare Initiative 6 ments to the City Council in 2013. closures. Subject to available funding, the City, Require retrofitting of adult care through DOHMH and a fiscal intermediary, Healthcare Initiative 3 facilities in floodplains therefore, will administer a competitive Support the HHC’s efforts to protect financing program to harden large clinics public hospital emergency departments Nineteen adult care facilities in the city are providing primary care and mental health serv- from flooding vulnerable to storm surge, including six in ices in Southern Brooklyn and other high-need Southern Brooklyn alone. The City, through communities. The program will include grants Emergency departments (EDs) are critical access OLTPS, will seek to amend the Construction and interest-free loans for capital investments points for patients in need of hospital services, Codes to require existing adult care facilities that enable faster recovery of services—for ex- and at three public hospitals citywide—including located in the floodplain to elevate or protect ample, installation of emergency power sys- Coney Island Hospital—EDs are at risk of flooding their electrical equipment to the 100-year flood tems, protection of other critical building due to storm surge. Subject to available funding, elevation by 2030, in accordance with the spec- systems, and wet flood-proofing of facilities. the City, therefore, through HHC, will invest in ifications in the Construction Codes. In addi- The goal is for this effort to be launched in late measures to flood-protect these vulnerable EDs tion, the City will seek to require these 2013 or early 2014. providers to have either emergency generators so they can remain available to provide care Healthcare Initiative 10 during extreme weather events. HHC has already that are adequately protected or electrical begun exploring strategies to protect their EDs pre-connections to external generators. OLTPS Improve pharmacies’ power resiliency and will continue to develop their mitigation will propose these requirements to the City plans through 2013. Council in 2013. Pharmacies dispense life-saving medicines essential for those with chronic conditions. Healthcare Initiative 4 Healthcare Initiative 7 However, without power, pharmacists cannot Improve design and construction of new Support nursing homes and adult care access the necessary patient records or insur- nursing homes and adult care facilities facilities with mitigation grants and loans ance information to dispense these medicines. The City, through DOHMH, will work with New nursing homes and adult care facilities are The primary challenge for most nursing homes pharmacies to improve their ability to leverage at risk of power failures due to storm surge, and adult care facilities in implementing mitiga- generators for power resiliency and address which could result in patient evacuations. The tion measures is obtaining financing. Subject to their other emergency preparedness needs— City, through OLTPS, therefore, will seek to available funding, the City, through NYCEDC including the launch of an emergency amend the Construction Codes to require that and the New York City Department of Health preparedness website for pharmacies. This new facilities are constructed with additional and Mental Hygiene (DOHMH), therefore, will effort already has begun and will continue resiliency measures for their emergency power administer competitive grants and subsidized throughout 2013. systems. New nursing homes also will be loans to assist providers with mandated retrofit required to have emergency generators and projects. The goal is for NYCEDC and DOHMH to launch the program when proposed

357 A STRONGER, MORE RESILIENT NEW YORK Healthcare Initiative 11 Surf Avenue in Coney Island. This interim facility Telecommunications Initiative 2 Encourage telecommunications resiliency could be completed before the end of 2013. Establish new resiliency requirements for in the healthcare system providers using scheduled renewals of Telecommunications the City’s franchise agreements In the aftermath of a disaster, it is important that New Yorkers be able to speak to their Flooding caused outages during Sandy in facil- doctors for guidance on needed medical care. The city’s telecommunications system is essen- ities that did not follow the Federal Communi- The City, through DOHMH, therefore, will tial to individuals and businesses throughout cation Commission’s recommended best develop a best practice guide and outreach the five boroughs, including in Southern Brook- practices for resiliency, including flood protec- plan to help community-based providers under- lyn. While this is true at all times, it is especially tion measures. The City, through DoITT, there- stand the importance of telecommunications true during emergencies. As Sandy demon- fore, will encourage and enforce resiliency resiliency. Resiliency solutions could include strated, however, this system is highly vulnera- standards for telecommunications providers using backup phone systems (such as a remote ble to extreme weather events—precisely when through the franchise renewal process and, answering service that would not be affected telecommunications are most needed. Citywide through other agreements into which such by local weather hazards), Voice over Internet and in Southern Brooklyn, Sandy resulted in out- providers enter with the City, explore options Protocol (VoIP) technology that allows office ages to landlines and mobile service, as well as to increase conduit infrastructure redundancy phone lines to be used off-site, and pre-disaster to data service. The vulnerability of this system and resiliency. The City will also seek to require planning to inform patients of available likely will grow as the climate changes. standardized outage reporting and publishing. emergency phone numbers. This effort will DoITT will launch this effort in 2014, in advance begin in 2013. Among the strategies that the City will use to ad- of 2020 franchise renewals. dress these challenges for residents, businesses, Healthcare Initiative 12 and nonprofits of Southern Brooklyn and other Encourage electronic health record-keeping parts of the city will be to: increase accountabil- Transportation ity among providers to promote resiliency; use Doctors rely on patients’ medical records to strengthened City regulatory powers and Without the city’s expansive transportation sys- provide and track care, but paper records may stronger relationships with providers to ensure tem, New York would grind to a halt. This was be compromised or destroyed due to extreme rapid recovery after extreme weather events; en- illustrated starkly during Sandy when outages weather events. The City, through existing courage hardening of facilities to reduce occurred across the system during and imme- DOHMH programs, therefore, will call upon weather-related impacts; and increase redun- diately following the storm. These outages se- community-based providers located in the 100- dancy to reduce the impact of outages. The ini- verely impacted Southern Brooklyn, which year floodplain and other disaster-prone areas tiatives described below provide important found itself isolated by the shutdown of subway to implement electronic health records (EHR) examples of how the City intends to advance its and other public transit systems, as well as by systems for resiliency. DOHMH’s Primary Care telecommunications resiliency agenda citywide. flooding on arterial and secondary roads. The Information Project will sponsor initiatives These initiatives will have a positive impact on vulnerability of this system will only grow as the to provide primary care and mental health the residents, businesses, and nonprofits of climate changes. providers citywide with EHR technical assis- Southern Brooklyn. For a full explanation of tance. This effort will begin in 2013. the following initiatives and a complete Among the strategies that the City will use to ad- description of the City’s five-borough telecom- dress these challenges for residents of Southern ––– munications resiliency plan, please refer to Brooklyn and other parts of the city will be to: Chapter 9 (Telecommunications). make the system more flexible and more Beyond the priority healthcare resiliency Telecommunications Initiative 1 resilient; protect critical elements of the system projects described in Chapter 8, including from damage; and seek to maintain system op- those summarized briefly above, the City is pro- Establish an office within the Department erations during extreme weather events; and, posing an additional healthcare resiliency initia- of Information Technology and following extreme events, to enable quick recov- tive that is specific to Southern Brooklyn’s Telecommunications (DoITT) to focus ery, while also putting in place plans for backup vulnerabilities. This initiative is described below. on telecommunications regulation and transportation options until regular service can resiliency planning be restored. The initiatives described below Southern Brooklyn Initiative 9 provide important examples of how the City in- Construct new Coney Island Hospital While the City has regulatory authority over tends to advance its transportation resiliency outpatient clinic to replace the destroyed some aspects of telecommunications service, agenda citywide. These initiatives will have a Ida G. Israel facility it has no entity focused broadly on ensuring the positive impact on the residents, businesses, resiliency of the public communications and nonprofits of Southern Brooklyn. For a full Hurricane Sandy wreaked havoc on Coney Is- networks. The City, therefore, will form within explanation of the following initiatives and a land Hospital’s outpatient facility, the Ida G. Is- DoITT a new Planning and Resiliency Office complete description of the City’s five-borough rael Clinic, which was located north of Neptune (PRO) that will have the resources needed to de- transportation resiliency plan, please refer to Avenue along Coney Island Creek. Instead of re- velop, monitor, and enforce resiliency stan- Chapter 10 (Transportation). building the clinic in its existing flood-prone lo- dards, in close cooperation with State and cation, HHC has identified a likely permanent Federal regulators and providers. DoITT will site at a higher elevation. In order to restore launch the new office in 2013. these vital outpatient services as soon as possi- ble, the City, through HHC, will construct an interim clinic on City-owned property located on

CHAPTER 17 | SOUTHERN BROOKLYN 358 INITIATIVES FOR INCREASING RESILIENCY IN SOUTHERN BROOKLYN

Transportation Initiative 1 structure located at grade in the area. The City Transportation Initiative 16 Reconstruct and resurface key streets will work with these agencies to advance these Expand the city’s Select Bus damaged by Sandy plans in 2013. Service (SBS) network Transportation Initiative 9 Sandy’s waves and flooding caused significant Parts of the city lack subway access or have slow damage to area roadways. The City, through the Plan for temporary transit services in the and unreliable public transportation. In these Department of Transportation (NYCDOT), will re- event of subway system suspensions areas, the City and the MTA have been deploying construct 60 lane-miles of streets that were SBS routes to improve general mobility. These damaged severely, and will repave approxi- When major portions of the subway system are routes can form the backbone of high-capacity mately 500 lane-miles of streets with damaged out of service, there simply is not sufficient ca- bus service in the event of major subway out- surfaces. In Southern Brooklyn, this will include pacity in the rest of the transit network or the ages, including following extreme weather over a linear mile of reconstructed streets and roadway system to carry the increased volume events. The City, through NYCDOT, will work with over six linear miles resurfaced throughout the of commuters and other travelers. The City, the MTA to expand the SBS network significantly, area. Wherever feasible, the reconstructed through NYCDOT, therefore, will work with the building on a plan developed jointly in 2010. Im- streets also will include resiliency features to MTA and other transportation partners to de- plementation of this plan has already begun, with prevent future damage. NYCDOT will launch this velop and regularly update formal plans to pro- a new SBS route that will go into effect this year initiative in 2013 with funding from Federal and vide temporary transportation services in such on Nostrand Avenue in Brooklyn. City sources. an event, including following extreme weather. These services could take the form of tempo- ––– Transportation Initiative 3 rary, high-capacity “bus bridges” of the type im- Elevate traffic signals and provide plemented during Sandy, linking, for example, Beyond the priority transportation resiliency backup electrical power Southern Brooklyn to Midtown Manhattan via projects described in Chapter 10, including the Nostrand Avenue Select Bus Service route those summarized briefly above, the City is pro- New York’s traffic signals—and particularly the (see Initiative 16, below) or temporary point-to- posing an additional transportation resiliency controllers that operates these signals and com- point ferry services, for example connecting initiative that is specific to Southern Brooklyn’s municate with the NYCDOT Traffic Management Coney Island and Lower Manhattan. This plan- vulnerabilities. This initiative is described below. Center—are vulnerable to damage from flooding ning effort will begin in 2013. Southern Brooklyn Initiative 10 as well as to power loss from various extreme Transportation Initiative 10 weather events. Accordingly, the City, through NY- Call for the USACE to develop an CDOT, will raise controllers at approximately 500 Identify critical transportation network implementation plan for the intersections in flood-vulnerable locations across elements and improve transportation reinforcement of existing Belt Parkway the city, including in Southern Brooklyn. In tandem responses to major events through edge protections with this effort to place electrical hardware above regular resiliency planning exercises the 100-year floodplain elevation, NYCDOT also The coastal edges along portions of the Belt will install power inverters in approximately 500 Many of the facilities critical to the City’s ability Parkway not only protect this key piece of NYPD vehicles to allow these vehicles to provide to respond effectively to a disaster are vulnera- transportation infrastructure, but also have the backup electrical power to critical traffic signals. ble to disruption and damage during extreme potential to provide additional flood protection This effort will begin in 2013. weather events, potentially impairing delivery to mainland neighborhoods throughout of emergency services and supplies, as well as Southern Brooklyn. The City and State have an Transportation Initiative 8 impairing the restoration of critical non-trans- opportunity to incorporate resiliency design Call on non-City transportation agencies portation infrastructure and economic activity. measures into future roadway and bridge to implement strategies to address This vulnerability is expected to increase as the reconstruction projects along the highway. The climate change threats climate changes. To respond better to a variety City, therefore, will call on the USACE to develop of different possible transportation outage and an implementation plan containing various Many non-City agencies that own and operate restoration scenarios, the City, through NYC- options for reinforcing and strengthening existing critical portions of New York City’s transporta- DOT, will work with transportation agencies edge protections along the Belt Parkway beyond tion system have already announced resiliency around the region to identify the critical ele- the immediate repairs underway. The Belt Park- and protection initiatives appropriate to their ments of the surface transportation network way is maintained by the NYCDOT, but its coastal system. Without such action, the critical facili- that need to be available quickly following dif- edges are generally maintained by the Parks ties managed by these agencies will remain vul- ferent types of events. The key tool to identify Department, as is the surrounding parkland. The nerable to damage and disruption from future these networks will be an ongoing series of de- New York State Department of Transportation is weather-related events. The City, therefore, will tailed and multi-disciplinary resiliency planning also involved in certain capital work. The goal is call on these agencies to implement the exercises that will allow NYCDOT and its part- for USACE to begin work on this plan by 2015. initiatives that they have announced and take ners to understand where resources need to be additional steps to protect their major trans- focused before, during, and after an event. This portation assets from climate change threats effort will begin in 2013. Parks and prepare for quick restoration following an extreme weather event. Assets that may require During Sandy, it became clear that, in addition hardening and/or preparation measures in to serving as neighborhood front yards and Southern Brooklyn include: Coney Island Yard, recreation centers, in many places (including the lower level of the Stillwell Avenue station, Southern Brooklyn), the City’s parks serve as and the limited portions of the subway infra- the city’s front line of defense when extreme

359 A STRONGER, MORE RESILIENT NEW YORK weather events hit, buffering adjacent neigh- Parks Initiative 2 Parks Initiative 11 borhoods. As the climate changes, it will be Harden or otherwise modify shoreline Improve the health and resiliency of the even more critical that the city’s parks are able parks and adjacent roadways to protect city’s urban forest to play all of these roles. adjacent communities. The city’s forests and trees provide an array of Among the strategies that the City will use to Approximately 24 percent of DPR parks and health and environmental benefits but are vul- address these challenges for residents of other open spaces are in the 100-year flood- nerable to a variety of climate change-related Southern Brooklyn and elsewhere in the City plain, which is expected to expand as sea levels impacts, including storm surge, wind, and even will be to: strengthen the city’s parks so that rise—including in areas where parks front resi- changes in average temperatures. Subject to they are able to survive weather-related events dential and commercial districts. Subject to available funding, the City, through DPR, will un- more effectively and can act as stronger buffers available funding, the City, through DPR, will dertake a variety of efforts to protect trees— study and identify mitigation strategies, includ- for adjacent communities; and pursue tech- whether located in natural areas and parks, or ing cost-effective ways to use its park system to nologies and approaches that will enable the along streets. This would include adding forest protect adjacent neighborhoods and the parks City to monitor, analyze, and prepare the park management crews, identifying locations in system for its many roles in an era of increasing themselves. Strategies could include hardening or elevating park infrastructure, construction of which to expand tree beds, and modifying reg- change. The initiatives described below provide ular tree inspection and pruning efforts to pri- important examples of how the City intends to levees or floodwalls to minimize flooding and attenuate waves, and using flood-tolerant ma- oritize trees in areas vulnerable to extreme advance its parks resiliency agenda citywide. terials in the construction of parks. Target sites weather events. The goal is for DPR to launch These initiatives will have a positive impact on in Southern Brooklyn include especially Marine this effort in 2013. the residents, businesses, and nonprofits of Park, Manhattan Beach, Calvert Vaux Park, Southern Brooklyn. For a full explanation of the Kaiser Park, and other shoreline parks in the ––– following initiatives and a complete description area. The goal is to complete this study in 2014 of the City’s five-borough parks resiliency plan, Beyond the priority park resiliency projects please refer to Chapter 11 (Parks). Parks Initiative 4 described in Chapter 11, including those Parks Initiative 1 Expand the City’s Greenstreets, including summarized briefly above, the City is proposing for Jamaica Bay an additional parks resiliency initiative that is Restore city beaches specific to Southern Brooklyn’s vulnerabilities. Increased localized flooding is likely from more This initiative is described below. Beaches play an important recreational role in frequent heavy downpours in the future. Sub- Southern Brooklyn and also are a vital Southern Brooklyn Initiative 11 ject to available funding, the City, through DPR component of the area’s coastal defenses, but and in partnership with DEP, will expand its ef- Restore recreational infrastructure along they cannot protect adjacent areas without forts to build more and larger Greenstreets to Southern Brooklyn beaches being “renourished” (replenished with new absorb stormwater, mitigate local flooding, im- sand to replace that lost to erosion) from time prove urban heat island effects, increase pedes- DPR will work to restore recreational infrastruc- to time. Subject to available funding, the City, trian and traffic safety, and beautify ture along Southern Brooklyn beaches, includ- through DPR, will collaborate with Federal and neighborhoods. This will expand the installa- ing facilities (comfort stations, lifeguard State partners—including the USACE—to tion of green infrastructure at appropriate loca- stations, and administrative buildings) at Plumb implement plans quickly to restore sand lost tions in the City’s streets, with technology Beach, Manhattan Beach, Brighton Beach, and after extreme storm events and to conduct similar to the NYC Green Infrastructure Plan, Coney Island. In each case, these replacement regular nourishment of beach and regular mon- which improves water quality in combined facilities will be more resilient than the struc- itoring to detect the early signs of erosion. This sewer areas. The first phase of this expansion tures that preceded them. DPR has also already will focus on key beaches, including Southern would focus on fourteen neighborhoods with begun the reconstruction of damaged play- Brooklyn beaches such as Plumb Beach, the greatest potential for improvement, areas grounds, ball fields, courts, neighborhood Manhattan Beach, Brighton Beach and Coney that are not slated for CSO improvements parks, and other park facilities. DPR will Island. The goal is to begin this effort in 2013. through the City’s Green Infrastructure Plan, but complete this restoration and reconstruction To restore the beaches following Sandy, the could be well suited for greenstreets based on work by 2014. City, in cooperation with many other City, State best available data showing low bedrock and and Federal partners, conducted an expedited ground water. An early priority for this effort program of projects to provide new and ele- Water and Wastewater will be the area surrounding Jamaica Bay, where vated lifeguard stations and public bathrooms DPR will collaborate with DEP and NYCDOT to and improvements to other beachfront ameni- reduce localized flooding and stormwater The city’s water and wastewater system is one ties in advance of Memorial Day 2013. This im- runoff, directly improving the health of the Bay. of the most complex in the world, not only sup- pressive achievement comprised the first The goal is to begin with pilot projects in and plying millions of New Yorkers with safe drink- phase of restoring the city’s beaches. In the around Coney Island, Marine Park, the Rock- ing water in all conditions, but also treating coming months and years, DPR will continue its aways, and Canarsie Park, including green- wastewater to ensure that the area’s water- efforts to provide emergency sand nourish- streets and parkland installations by 2014. ways remain clean, while draining rainwater to ment and to expedite planning, evaluation, and minimize flooding. Sandy demonstrated the design work for long-term plans to restore the system’s vulnerability to a whole host of beaches, boardwalks, and other beachfront weather-related threats, ranging from surge amenities of Southern Brooklyn. and sea level rise, to heavy downpours— threats that are expected to worsen as the climate changes.

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Among the strategies that the City will use to Water and Wastewater Initiative 3 Southern Brooklyn Initiative 12 address these challenges for residents of Harden wastewater treatment plants Complete planned drainage Southern Brooklyn and other parts of the city improvements in Coney Island to will be to: protect wastewater facilities from All 14 of the City’s wastewater treatment facilities mitigate flooding storm surge; improve and expand drainage in- are located along the waterfront and are there- frastructure; and promote redundancy and flex- fore at risk in the event of a coastal storm. Sub- DEP has identified Coney Island as an area ibility to make available a constant supply of ject to available funding, the City, through DEP, where existing stormwater and other related in- high-quality drinking water. The initiatives de- will protect these critical treatment facilities by frastructure systems require upgrades based, scribed below provide important examples of raising or flood-proofing assets that are critical to in part, on anticipated new development in the how the City intends to advance its water and the treatment process, constructing barriers, im- area. In conjunction with robust coastal de- wastewater resiliency agenda citywide. These proving waterfront infrastructure, or implement- fenses, expanded drainage infrastructure may initiatives will have a positive impact on the res- ing redundancy measures to avoid failure of assist in protecting against damage from idents, businesses, and nonprofits of Southern these critical treatment systems. DEP will initially weather-related flooding. In Coney Island, the Brooklyn. For a full explanation of the following target facilities that have been identified as either City, therefore, will complete approximately initiatives and a complete description of the most at-risk, or most likely to create issues for ad- $137 million in planned upgrades to stormwa- City’s five-borough water and wastewater re- jacent communities and waterways, based on ter and sewer infrastructure, including enlarg- siliency plan, please refer to Chapter 12 (Water the findings of an in-depth study by DEP. These ing pipes and outfalls to handle additional flow. and Wastewater). facilities include the Coney Island Wastewater These projects are now being undertaken by Water and Wastewater Initiative 1 Treatment Plant. The goal is for DEP to begin im- DEP and the Department of Design and Con- plementation of adaptation measures for these struction (DDC), and are scheduled for phased Adopt a wastewater facility design and other facilities in 2014 as part of repairs and completion over the next six years. standard for storm surge and sea other planned capital projects. level rise Southern Brooklyn Initiative 13 Water and Wastewater Initiative 8 Provide technical assistance to support Sandy damaged wastewater treatment plants Reduce combined sewer overflow (CSO) Sea Gate in repairing Sandy-damaged and pumping stations even though the design with Green Infrastructure infrastructure of City wastewater facilities has taken into ac- count the highest historically recorded water As climate change brings increasing rainfall vol- The Sea Gate community, where a private hous- height of nearby water bodies or the BFEs iden- ume to the New York area, the city may also ex- ing association owns and maintains the streets, tified in FEMA maps. The City, therefore, will perience shifts in the frequency and volume of parks, and sewer infrastructure, is outside of adopt an increased level of protection for design CSOs. The City will continue to implement its DEP’s jurisdiction and thus faces unique chal- and construction of all wastewater facilities Green Infrastructure Plan and CSO Long-Term lenge in the aftermath of Sandy. The neighbor- based on the latest FEMA maps, modified to re- Control Plans (LTCPs) to reduce such CSOs. For hood’s Sandy-damaged infrastructure, which flect sea level rise projections for the 2050s. DEP this purpose, DEP, working with DPR and NYC- eventually ties into the City’s sewer system, im- will adopt the new design guidelines in 2013. DOT, will continue to pursue its plan to capture pacts not only Sea Gate but also poses down- Water and Wastewater Initiative 2 the first inch of runoff in 10 percent of impervi- stream risks from clogs and back-ups. The City, ous surfaces citywide by 2030. At the same through DDC, therefore, will work with the Sea Harden pumping stations time, DEP also will continue to develop LTCPs to Gate Association to assist it in obtaining all Fed- evaluate long-term solutions to reduce CSOs eral funding for repairs for which it is eligible. Many of the city’s pumping stations are located and improve water quality in New York City’s The Sea Gate Association has engaged an engi- in low-lying areas and are necessary to convey waterways. DEP will issue an LTCP for Alley neering firm to study the condition of the area’s wastewater and stormwater out of communi- Creek in Queens in 2013, with nine additional infrastructure and suggest a scope for repairs, ties; however, their location also increases their waterbody-specific LTCPs and one citywide and the City will provide technical assistance in vulnerability to storm surge. Therefore, subject LTCP to follow through 2017—including for connection with that effort. to available funding, the City, through DEP, will Coney Island Creek, the Gowanus Canal, New- retrofit these pumping stations to improve their town Creek, and Jamaica Bay. resiliency. These retrofits will include raising or Other Critical Networks: flood-proofing critical equipment, constructing ––– barriers, and installing backup power supplies. Solid Waste Preliminary estimates indicate that there are Beyond the priority water and wastewater re- currently 58 at-risk pumping stations, of which siliency projects described in Chapter 12, in- On a daily basis, the solid waste collection sys- several are already scheduled for capital im- cluding those summarized briefly above, the tem in New York disposes of more than 12,000 provements. Subject to available funding, DEP City is proposing additional water and waste- tons of waste and recycling in a safe and sanitary will pursue implementation of resiliency proj- water resiliency initiatives that are specific to fashion. Unlike many other critical City systems, ects in conjunction with repairs and planned Southern Brooklyn’s vulnerabilities. These ini- during Sandy this one proved remarkably re- capital work, and as appropriate based on the tiatives are described below. silient, resuming many of its normal functions al- level of risk, historical flooding, and potential most immediately after the storm. In fact, thanks community impacts, among other criteria. The to the efforts of the City’s Department of Sanita- goal is to begin implementation in 2014. tion, even as the agency was dealing with its own storm-related challenges, it was able to assist with the recovery of Southern Brooklyn and the larger city by collecting the debris left by the storm in an organized and efficient manner.

361 A STRONGER, MORE RESILIENT NEW YORK However, the system does face real issues. For ply resiliency plan, please refer to Chapter 13 across the city, including Southern Brooklyn. example, during Sandy, the city’s solid waste (Other Critical Networks). However, as the climate changes, difficulties disposal system experienced interruptions that such as these will likely arise more frequently, interfered with its ability to convey refuse out testing institutions mightily. of the city to its ultimate destination. Addition- Environmental Protection Among the strategies that the City will use to ally, as the climate changes, it is likely that this and Remediation achieve the goal of making its neighborhoods system will become more vulnerable to ex- and their critical institutions more resilient will treme weather. be to: help build grassroots capacity and foster Sandy showed that extreme weather events— community leadership; help businesses and which are likely to increase in severity with cli- Among the strategies that the City will use to nonprofits impacted by Sandy to recover; help mate change—not only have the potential to address these challenges for residents of businesses and nonprofits in vulnerable loca- impact the city’s people, built environment, and Southern Brooklyn and other parts of the city tions to make resiliency investments that will critical systems; they also can have a deleteri- will be to: harden critical City-owned solid better prepare them for future extreme ous impact on the natural environment. To help waste assets to protect them from extreme weather; and bring new economic activity to minimize the impact of future extreme weather weather-related impacts; and seek to improve neighborhoods recovering from the impacts of on the environment, the City will advance a the resiliency of the broader solid waste net- Sandy to enable these neighborhoods to come range of initiatives to protect open and en- work—both City- and third-party owned—en- back even stronger than before. closed industrial sites containing hazardous abling it to resume operation quickly should substances in an economically feasible way, disruptions occur. The initiatives in Chapter 13 The initiatives described below provide impor- and to encourage the cost-effective remedia- describe how the City intends to advance its tant examples of how the City intends to ad- tion and redevelopment of brownfields in a re- solid waste resiliency agenda citywide. These vance its community and economic recovery silient fashion. These initiatives will have a initiatives will have a positive impact on the res- agenda citywide. These initiatives will have a positive impact on the residents, businesses, idents, businesses, and nonprofits of Southern positive impact on the residents, businesses, and nonprofits of Southern Brooklyn, which is Brooklyn. For a complete description of the City’s and nonprofits of Southern Brooklyn. For a full home to approximately 130 industrial compa- five-borough solid waste resiliency plan, please explanation of the following initiatives and a nies and one site designated under the New refer to Chapter 13 (Other Critical Networks). complete description of the City’s five-borough York City Brownfield Cleanup Program. For a community and economic recovery plan, please complete description of the City’s five-borough refer to Community and Economic Recovery. environmental protection and remediation Other Critical Networks: plan, please refer to Environmental Protection Community Disaster Preparedness Food Supply and Remediation. Initiative 1 Identify and address gaps in Though the food supply chain generally community capacity emerged intact following Sandy, in certain local Community and areas (including parts of Southern Brooklyn), Economic Recovery The capacity of a community to organize to aid residents found themselves without access to businesses and residents after an extreme basic sustenance after the storm. In addition, New York is a city of neighborhoods, and these weather event or other disaster is a strong pre- had Sandy played out just a little differently, it is neighborhoods vary widely in size and nature. dictor of the success of that community’s recov- possible that significant links in the food supply Notwithstanding this variety, successful neigh- ery. To improve the capacity of vulnerable chain—including the food distribution center in borhoods across the city tend to share certain communities, OEM, working with the NYC Cen- Hunts Point in the Bronx—could have been se- traits. Two of these are: a formal and informal ter for Economic Opportunity (CEO), will under- riously threatened. As the climate changes, it is network of community members who help and take a pilot assessment of the strengths and likely that risks such as these will grow. support one another in good times and bad; weaknesses of a Sandy-impacted community— and vibrant commercial and nonprofit sectors which could be a neighborhood in Southern Although initiatives outlined in several other that employ and provide goods and services to Brooklyn—to inform the creation of a plan to sections above are important contributors to the people of the community. address needs uncovered by the assessment. the overall resiliency of the food supply network Subject to available funding, the City, through (including especially those addressing utilities, As Sandy demonstrated, however, both the net- OEM and CEO, will choose a pilot community liquid fuels, and transportation), the City also work of community-based organizations and the and begin their study in 2013. will pursue food-specific strategies to meet this commercial and nonprofit sectors in New York’s goal for the benefit of residents of Southern neighborhoods can be sorely tested when ex- Community Disaster Preparedness Brooklyn and other parts of the city. These treme weather hits. During these times (when Initiative 2 strategies will involve calling for resiliency in- contributions from these networks and sectors Continue and expand OEM’s Community vestments at the most significant food whole- are desperately needed) these organizations Emergency Response Teams saling and distribution centers in the city and and businesses themselves are frequently cop- addressing issues relating to retail access in the ing with the same set of challenges that the com- OEM currently trains 54 teams of 1,500 volun- event of extreme weather. The initiatives in munity at large is—a circumstance that can push teers across the city, which staff Community Chapter 13 describe how the City intends to ad- even the most well-run organization or business Emergency Response Teams (CERTs). Before, vance its food supply resiliency agenda city- to the breaking point. Even with these pressures, during, and after disasters, including extreme wide. These initiatives will have a positive during and in the immediate aftermath of Sandy, weather events, members of these teams help impact on the residents, businesses, and non- New York’s commercial and nonprofit sectors to organize community disaster preparedness profits of Southern Brooklyn. For a complete overcame many of their own difficulties, playing and participate in emergency response and re- description of the City’s five-borough food sup- a critical role in the recovery of neighborhoods covery. In light of Sandy, OEM will work with

CHAPTER 17 | SOUTHERN BROOKLYN 362 INITIATIVES FOR INCREASING RESILIENCY IN SOUTHERN BROOKLYN

tions of a major business or non-profit, the re- Coney Island Boardwalk vitalization of important commercial corridors, the expansion of an existing neighborhood in- stitution, or a major new transportation option. NYCEDC will launch this program in 2013. Economic Recovery Initiative 3 Launch Neighborhood Retail Recovery Program

At the core of many Sandy-impacted neighbor- hoods are the local commercial corridors that provide employment opportunities and services to those who live and work around them. They Coney Island Boardwalk today include local retailers, institutions, and service providers—such as food markets, pharmacies, social service organizations, laundromats, and others. In many cases, though, these corridors were devastated by the storm. To address this, the City will call on the PSC and Con Edison to amend the preferential Business Incentive Rate (BIR) program, which offers a discount on Con Edison’s electric delivery charges, to allow it to be extended to impacted small businesses in the five communities on which this report focuses, including Southern Brooklyn. Businesses and nonprofits with 10 or fewer employees that have received support from City-sponsored loan and grant programs will be eligible for the discount for five years up to a Coney Island Boardwalk conceptual rendering including new protective dune and amusements maximum discount of $50,000 per business or nonprofit. The maximum aggregate benefit communities to create additional teams, ensur- Program of up to $80 million will assist busi- available across Southern Brooklyn will be ing that the volunteers are as representative as nesses with recovery and rebuilding efforts. $1 million. The goal is for NYCEDC to launch this possible of the communities that they serve. NYCEDC will launch these programs in 2013. effort in 2013. Among the corridors where the Towards the same end, OEM, working with CEO, Economic Recovery Initiative 2 benefit could be available in Southern will identify low-income young adults to be Brooklyn include: trained to lead their communities in disaster Launch the Neighborhood • Brighton Beach Avenue (between Ocean preparedness. OEM and CEO will launch this Game-Changer Competition Parkway and West End Avenue) program by 2014. • Coney Island, including Neptune, Mermaid, The recovery of many of the communities im- Economic Recovery Initiative 1 and Surf Avenues pacted by Sandy, including Southern Brooklyn, • Coney Island Avenue (between Avenue X Launch business recovery and has been hampered by a lack of opportunities and Brighton Beach Avenue) resiliency programs for economic advancement and employment • Emmons Ave. (between West End Avenue among significant populations that were im- and Knapp Street) During Sandy, over 27,000 businesses citywide, pacted by the storm. In many cases, these chal- • Gerritsen Avenue (between Ave. U and including over 5,500 in Southern Brooklyn, were lenges existed even before Sandy, but have Seba Avenue) impacted by the storm. For many, recovery has been exacerbated by the impacts of the storm. • Nostrand Avenue (between Avenue Z and been challenging. To assist with this recovery, To address this, the City, through NYCEDC, will Avenue U) immediately after the storm, the City launched launch the CDBG-funded Neighborhood Game • Ocean Avenue (between Avenue W and a series of programs described in Community Changer Competition to invest up to $20 million Emmons Avenue) and Economic Recovery including a $25 million in public money in each of the five communities • Sheepshead Bay Rd. (between Avenue Z and loan and grant program and a $25 million sales on which this report focuses, including South- Emmons Avenue) tax waiver program designed to help busi- ern Brooklyn. This funding will be available on nesses get back on their feet. Building on the a competitive basis to help finance transforma- Economic Recovery Initiative 4 momentum of these programs, which have as- tional projects. To win the competition, a proj- Support local merchants in improving and sisted over 2,500 businesses as of the writing of ect will have to spur incremental economic promoting local commercial corridors this report, the City, through NYCEDC, will activity, generate new employment opportuni- launch the CDBG-funded Business Resiliency In- ties, and match public funding with significant As mentioned above, Sandy highlighted the im- vestment Program of up to $100 million to help private capital. Projects that would be eligible portant role played by local commercial corri- vulnerable businesses throughout the city make to be funded in Southern Brooklyn through this dors in many communities impacted by the resiliency investments in their buildings and competition could include new attractions storm. The City, through the Department of equipment, and the Business Loan and Grant bringing new visitors, significant new opera- Small Business Services (SBS), will provide finan-

363 A STRONGER, MORE RESILIENT NEW YORK cial and/or technical assistance to area business Southern Brooklyn Initiative 14 will be a joint effort of the Department of Cultural improvement districts (BIDs), merchant associa- Work with Brooklyn Chamber of Affairs, the Wildlife Conservation Society, and tions, and other groups that work to improve, Commerce to assist in organizing FEMA. (See rendering: Coney Island Boardwalk) market, maintain, and otherwise promote pri- Sheepshead Bay businesses marily commercial corridors. Subject to review Southern Brooklyn Initiative 16 of applications received, SBS will prioritize allo- Strengthened local civic infrastructure can pre- Study opportunities along Coney Island cating its resources, including its CDBG funding, pare communities for disaster response. In Creek to generate economic activity and to Sandy-impacted commercial corridors. Such Sheepshead Bay, where no existing merchant facilitate resiliency investments funding could be used for a variety of purposes, group exists, increased cooperation among including capacity building, façade improvement area merchants and stakeholders would result In areas that contain particularly vulnerable programs, streetscape improvements, and busi- in multiple benefits. Since early 2013, the Brook- buildings, vacant or underutilized properties, or ness recruitment and marketing efforts. In lyn Chamber of Commerce has been working to unprotected privately owned waterfront edges, Southern Brooklyn, corridors that could receive convene local merchants and support the encouraging new construction can help to spur this additional assistance include corridors in potential establishment of a new merchant economic activity and achieve resiliency goals. Brighton Beach, Sheepshead Bay, Gerritsen association. Additionally, the FEMA Community The City will work to identify waterfront redevel- Beach, Coney Island, and Gravesend. SBS will Planning and Capacity Building program has opment and edge improvement opportunities provide this assistance beginning in 2013. identified the area as a potential recipient of along Coney Island Creek. Focusing on sites where existing utility and road infrastructure may Economic Recovery Initiative 5 technical assistance in connection with the de- velopment of a tailored revitalization strategy. be able to accommodate new development, the Continue to support the FRESH program The City will support this effort by providing City will study opportunities to generate eco- to increase the number of full-line technical assistance of its own and, through nomic activity through resilient new construction, grocers in underserved neighborhoods existing programs, potential financial support which could house a range of potential commer- coordinated by the SBS to match local cial and residential uses. By 2014, NYCEDC will Even before Sandy, the residents of many com- business investments. launch and complete an economic development munities impacted by Sandy, including parts of study of these potential sites along Coney Island Southern Brooklyn, lacked adequate access to Southern Brooklyn Initiative 15 Creek that will examine specific sites, regulatory fresh fruits, vegetables, and other healthy Support area recovery through the constraints and infrastructure capacity. foods. Noting this challenge, especially in rebuilding and expansion of the Southern Brooklyn Initiative 17 underprivileged areas of the city, in 2009, the entertainment district City launched the FRESH (Food Retail Expansion Implement planned and ongoing to Support Health) program, a series of zoning The entertainment attractions in Southern investments by the City and and financial incentives available to supermar- Brooklyn are an important symbol of the area. private partners kets to fill this gap in neighborhoods under- More significantly, they contribute to area busi- served by grocery retail. To promote the ness activity, enhance local quality of life, and Preservation and revitalization of neighborhoods recovery of commercial corridors in these drive visitor activity that benefits the local econ- most impacted by Sandy will be furthered by areas, the City will continue to support the omy. The entertainment areas have witnessed keeping planned development projects on-track. FRESH program, with a particular focus on growth in recent years, and this momentum Among the development projects that the City Sandy-impacted neighborhoods, including must be sustained to anchor area recovery. will continue to pursue are the following: those in Southern Brooklyn. Parks and Open Space Economic Recovery Initiative 6 The City will support enhancement of key area attractions to anchor recovery and growth, • Calvert Vaux Park, an enhancement project Reassess commercial properties citywide including construction of major new amuse- that incudes new artificial turf fields, new to reflect post-Sandy market values ments, construction of a new seasonal coastal habitat along the shoreline, and other amphitheater and community arts center, and park improvements. After Sandy, many commercial properties were expansion of the New York Aquarium, the most- • The West 8th Street Access Project, a project worth less than before the storm. To reflect this visited attraction in Brooklyn and a year-round to improve access from the W. 8th Street fact and to help with recovery from the storm, asset in the entertainment district. The City also subway station by demolishing an extant the City has reassessed more than 88,000 prop- will support enhanced programming, market- pedestrian bridge and creating a new board- erties impacted by the storm citywide. Overall, ing, and district improvements to set the stage walk entry at W. 10th Street. these reassessments have lowered the tax bur- for economic growth, and will continue to den on Sandy-impacted properties—including support programs to link this growth to the local Economic Development both commercial and residential properties— residential neighborhood through workforce • Coney Island Commons and YMCA, a mixed- by over $90 million, with commercial properties development and other initiatives. use development project that will create over in neighborhoods impacted by Sandy receiving 190 units of affordable housing and Southern a reduction, on average, of approximately 10 Costs to enhance and expand the entertainment Brooklyn’s first YMCA, opening in 2013. percent off of their pre-storm assessed values. district—including the construction of a new • Coney Island Comprehensive Plan, including state-of-the-art steel rollercoaster between West the development of the Coney Island amuse- ––– 15th and West 16th Streets on the Boardwalk— ment and entertainment district, including the will be borne primarily by private operators. For new Luna Park, Scream Zone, and Steeplechase In addition to the measures described above, the New York Aquarium, the repair of damages Plaza, the re-lighting of the iconic Parachute the City will advance the following initiatives to from Sandy and the planned expansion of the Jump, and the construction of a new seasonal address Southern Brooklyn’s community and campus including the Ocean Wonders project amphitheater, as well as new housing and economic recovery needs: neighborhood amenities.

CHAPTER 17 | SOUTHERN BROOKLYN 364