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Maritime Activation Plan for A Regional Model for Excellence in @OurWaterfront WaterfrontAlliance Waterfront Activation

MANHATTAN BRIDGE JOHN STREET MAIN TIDAL STREET MARSH EMPIRE

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SMITH ST CAROLL ST Maritime Activation Plan for A Regional Model for Excellence in Waterfront Activation

2 Executive Summary 4 Summary of Possible Activities 6 People-Powered Water Activities 9 Public Access and Cultural Programs 14 Commercial Boating Operations 16 Waterfront Education and Recreation

Maritime Activation Plan for Brooklyn Bridge Park 1 Executive Summary

Excellence is a word associated with Brooklyn the Park, others may be developed in a long term Bridge Park, built on a series of piers and lauded plan, and others may prove to be unachievable. for its award-winning landscape design and for its But by cataloging the benefits, considerations, demonstrated resilience in the face of Hurricane infrastructure needs, feasibility, and partnerships for Sandy. This Park, however, does not rest on its laurels. a broad scope of possibilities, this report supports In addition to high-quality and diverse waterfront the development of strategies to create an even programming—from a marina, to kayaking, to better waterfront. educational programs—the Park may wish to further develop a range of exceptional maritime experiences The report divides recommendations into four for its visitors. Waterfront Alliance has created a sections: Maritime Activation Plan that explores additional 1) People-Powered Water Activities ways, from the simple to the visionary, for visitors 2) Public Access and Cultural Programs to Brooklyn Bridge Park’s 1.3 miles of unique and 3) Commercial Boating Operations and versatile shorefront can more thoroughly learn from 4) Waterfront Education and Recreation. and engage with the water that surrounds them. Each section presents a menu of possible ideas to consider, and describes potential benefits as well as “We want to make New Yorkers comfortable challenges and considerations.

on the water, it’s our of excellence.” Sample highlights include:

Mark Baker, Board Chair of Brooklyn Bridge Park Conservancy • Grow Community Dock Programs: Expand public programs at the marina’s community dock on Pier Through a qualitative interview process with 49 5 to increase opportunities for the popular sail stakeholders across the fields of park management, and kayak programs in the Park’s waters. Consider operations, cultural and environmental adding rowing. programming, education, water recreation, and • Expand docking of historic ships: Work with community leadership, the Waterfront Alliance has partners to increase use of the Park’s visiting produced this plan to support a comprehensive vessel space at Pier 5, to provide additional and integrated maritime vision for the Park. Our programming opportunities on the waterfront. process included cataloguing the Park’s waterfront • Add nature excursions: Through the commercial assets and exploring recommendations to advance operations of the marina, add the opportunity for opportunities for additional maritime use of high ticketed ecological cruises out onto the harbor. value to the community. Some of the resulting Avoid crowds by utilizing vessels with a capacity of suggestions are already being implemented by 50 or fewer passengers.

The original plan for Brookyn Bridge Park carefully considered views of the water.

2 Maritime Activation Plan for Brooklyn Bridge Park • Activate the new Pier 5 boathouse building: As the The amount and variety of additional waterfront building nears completion, develop strong training public programming is as dynamic as the city itself, protocol for staff to program the boathouse with but without a maritime plan, future programming educational, informative, and community building is difficult to prioritize and implement. The activities. Maritime Activation Plan will support the Park’s management in articulating its priorities for There are many more exciting ideas for continued maritime use and programming, allowing the Park activation of Brooklyn Bridge Park’s waterways, to proactively seek out waterfront partners and all summarized in the report. This report presents expand its own maritime vision. a menu of ideas through which the Park can articulate its own vision of maritime excellence. “The waterfront is a community building place Maritime activation is not a new idea for Brooklyn Bridge Park. Exciting opportunities to engage where a variety of activities bring together our with the water have already been implemented, diverse communities. I love Brooklyn Bridge Park! It including sailing, fishing, seining, kayaking, and boat building. Additional waterborne activities keeps getting better and better, and it’s wonderful have been suggested by many constituents and this plan is supporting that” program providers during the Park’s incremental expansion during the past seven years. Becky Blumenthal, educator

The Park has made great achievements even without the benefit of a formal maritime Gazing down the length of piers and inlets at framework. But without an explicit and public Brooklyn Bridge Park to the beautiful East River vision for on water and waterfront priorities, there and Harbor beyond, one may conclude can be more complicated interactions between the that the Park is indeed more water than land. All Park and potential waterfront users. A shared and parties interviewed for this report have recognized strategic plan can help bring clarity to questions that Brooklyn Bridge Park hosts extraordinary about water access. opportunities to engage with the water, from experiencing the port of the past through historic Excursion vessels and historic ships continue to be ships to influencing the city of tomorrow with interested in providing programming in the Park, educational waterfront programming. It can— and there is great interest in expanding swimming and will be—a regional model for excellence in and kayaking opportunities. waterfront activation.

Visitors enjoy the Pier 4 Beach, which is also a New York Brooklyn Bridge Park offers multiple ways to get out on the water. City Water Trail boat launch.

Maritime Activation Plan for Brooklyn Bridge Park 3 Summary of Possible Activities Additional details for these suggestions are provided on subsequent pages

ACTIVITY DESCRIPTION BENEFITS CONSIDERATIONS

People-Powered Grow community dock Expand public programming The marina provides Ensure outreach to the Water Activities programs at the community dock on programming for the community about these new Pier 5; Support outreach for community and increases program opportunities Page 6 sailing, kayaking, or rowing opportunities for water programs there activities

Expand public kayak Expand free, walk-up guided Activities directly on the water Build capacity of existing programs kayaking in embayment are prized by a wide variety of program through additional between Piers 1 and 2 Park users space and staffing

Increase use of Pier 4 boat Enhance launch site for New Visitors may arrive at the The site has maintenance launch York City Water Trail on Pier Park by boat, increasing needs, but an equal challenge 4 beach participation in activities and is extending procedures spending at concessions to include unscheduled, independent water access

Add row boat rentals Develop concession for public Good for families and novices Requires significant rental of rowboats at the because a group can fit equipment or infrastructure community dock or by adding together in one boat investment; siting is a new floating dock challenging, since calmer areas of Park water are already full of boating activity

Continue public swimming Include a pool in Park plans Swimming and swimming Park management and a each summer lessons help people develop future pool operator can skills to be comfortable work together in determining around the water operating procedures and safety practices.

Public Access Create town dock Welcome temporary usage Brings in a new constituency, Requires new or repurposed and Cultural by small, private boats to increases participation in infrastructure and finding Programs pick up/unload passengers activities and spending at space/staffing for a new or visit the Park or visit for a concessions user group within the Park’s Page 9 refreshment stop waterfront

Expand docking of historic Continue to host free public Historic vessels draw people Docking infrastructure exists; ships programs and sails with to the waterfront and tangibly additional support services visiting nonprofit and cultural connect them with our that could be added include vessels heritage soundings and a floating dock

Expand docking of research Continue to host free public Provides a unique waterfront Requires the same supports vessels programs and cruises program; increases as historic ship visits, so the with visiting vessels from harbor literacy and the same efforts can provide educational institutions understanding of our multiple opportunities for relationship with the water activation

Host “Tall Ships Brooklyn” Welcome a group of visiting Festivals have economic Expanding docking festival tall ships to impact potential of 8 million infrastructure and utilities to with weeklong festival at Piers dollars and up Pier 5 and 3 is a significant 5 and 6 (deck tours, sails, and investment needed to receptions) support this activity

Create Seaport Continue to host regular ship Gives more New Yorkers Requires the same supports Museum “annex” stays and public programs access to our city’s Seaport as historic ship visits, so the with Museum same efforts can provide Museum historic vessels multiple opportunities for activation

4 Maritime Activation Plan for Brooklyn Bridge Park ACTIVITY DESCRIPTION BENEFITS CONSIDERATIONS

Commercial Add nature/fishing excursion A boat carrying about 50 Widens access to existing Need to develop the market Boating concession within the marina passengers offer ticketed ecotours (harbor tour) for these cruises, as BBP is Operations cruises for whale watching, outside of Manhattan; a greater distance to coastal birding, fishing revenue sharing benefits for fishing and nature viewing Page 14 the Park than established operators at southern Brooklyn docks

Add dinner/theater cruise A boat carrying about 50 Widens access to existing It has been challenging to concession within the marina passengers offer ticketed themed boat tours outside of define an appropriate level harbor tours with special Manhattan; revenue sharing of commercial activity and dining options, jazz benefits for the Park signage within the park that performances, or small scale preserves public priorities theater while enabling boat tour providers to cover costs.

Increase intra-park ferry Launch a Park managed, Provides more frequent Requires significant start service 20-passenger shuttle service and access between up, but could be run connection between Piers 1 the northern and southern inexpensively; demand might and 6 in addition to NYC Ferry stretches of the Park exceed capacity

Allow for overnight With proper procedures Reduces trucking and related Verify load capacity of Park commercial lift during times the Park is health concerns; provides piers and roadways, and water closed establish fees for a source of income for pier depths that meet commercial delivery of materials for maintenance needs construction projects in Brooklyn via a Park pier

Waterfront Activate the new Pier 5 Program the new boathouse Welcomes new boaters and In progress; facilitate Education and boathouse building to support maritime activities builds a boating community management of the space by Recreation in the Park a staff person with maritime programming experience Page 16

Provide maritime heritage Establish a permanent Celebrate BBP’s history An authentic and visionary opportunities in the southern working waterfront of maritime trade and the project that would require part of the Park interpretive site in the nearby active container substantial planning and southern section of the Park terminal investment that complements Brooklyn Historical Society DUMBO

Expand on-shore eco- Continue to highlight Increases harbor literacy, It’s easy to use existing school recreation and camp ecologically productive areas the understanding of our programs as the basis for for outdoor, waterfront public relationship with the water; new public programs, and for programming (fishing area, activates more of the a Conservancy coordinated piling field, oyster stations) southern end of the Park waterfront summer camp

Continue boating safety Teach marine skills, water Increased public comfort and Good activity to site in the education safety, boater education familiarity with the waterways new boathouse building

Expand fishing from Pier 5 Increase recreational A timeless family waterfront Uncertain of success due to fishing opportunities and activity the seasonality of fish runs instructional programs and the strong currents at the pier that limit favorable opportunities for beginners

Continue oyster restoration Expand restoration activities, Provides hands-on Use existing school programs programs identify additional locations opportunities for improving as the basis for new public and add more public local ecology programs educational programs

Support maritime restaurant Develop upper floors of Park’s A wide variety of Park users A restaurant aboard a ship office into restaurant and prize the opportunity to eat docked in the Park opened boat building workshop in and drink at the waterfront, a summer 2017; any additional addition to piloting restaurant portion of sales can support site requires significant new on a boat or pier maritime programs investment, but costs can be shared

Maritime Activation Plan for Brooklyn Bridge Park 5 People-Powered Water Activities

Throughout the interview process, a wide launch sites help make blue connections from variety of constituents expressed a passionate the Park to other waterfronts within the harbor, appreciation of the Park offering activities for enabling visitors to the Park to arrive by boat. To interacting with the water. They also appreciated make it easier for novices to get in and on the the Park’s efforts to keep public programs free, water, continuing to offer a swimming pool helps which democratizes the waterfront. The Park is people develop skills to feel comfortable around already well known for sports, and adding more the water. A new row boat program would enable physical activities like paddling and swimming will a family to fit together in one boat, as opposed only enhance public health benefits. to breaking up across smaller kayaks, though it raises significant infrastructure and siting The existing public kayaking program, managed considerations. by Brooklyn Bridge Boathouse with support From Brooklyn Bridge Park Conservancy, is so popular People-powered activities give opportunities for that people regularly wait in line for a turn. your average person or family to directly enjoy the ONE°15 Brooklyn Marina is opening a community water, and inspire everyone to feel like a part of a dock, and the New York City Water Trail has an waterfront community. identified launch at the Park’s Pier 4, providing capacity for additional boating. In addition, these

ADMINISTRATION & MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

Community Sailing, paddling, or rowing: Waterfront: Marina Programs have already begun ONE°15 Brooklyn Marina concessionaire looking dock programs Marina could hire community Brooklyn Bridge Park forward to constructing a dock programs coordinator Conservancy three-season building that will or work with a partner facilitate public programs Brooklyn Kayak Guides like Brooklyn Bridge Park Conservancy to plan and implement increased activities Upland: Park and marina work Marina, Park management, together on signage or info and the Conservancy work kiosk encouraging visitor flow together to increase program to the community dock outreach and marketing Report publicly to Park stakeholders on the disbursement of contractually allocated funds for programs

Public kayak Increase capacity of Brooklyn Waterfront: Solid base exists; needs Brooklyn Bridge Park programs Bridge Park Boathouse to Continue including floating some financial investment or Conservancy offer additional program days dock maintenance in overall capacity building; important Brooklyn Bridge Park of free kayaking: Park maintenance plans for Brooklyn Bridge Park Boathouse Boathouse board and Empower the organization to Prepare a $20,000 reserve in senior program leaders to Maritime maintenance attract additional, experienced case of significant emergency communicate their preferred services such as Weeks program leaders through repair to a floating dock next step for increasing Marine, Lehigh Maritime Corp. privileges like keeping their Request estimates for crane programs own kayak in the new Pier 5 service to bring floating boathouse storage infrastructure ashore during Subsidize part-time staff to the winter, then relaunch it in lead kayak programs through the spring, to extend its life the Conservancy

Upland: Continue to work with the Boathouse to develop a storage area near the dock for public program boats, paddles, and PFDs

ADMINISTRATION & MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

6 Maritime Activation Plan for Brooklyn Bridge Park “A citywide trend towards access to and monetization of the waterfront will require public investment in infrastructure for public benefit. Our waterfronts now have new uses, but the ability to serve those as well as traditional uses—visiting vessels, education, public access, and transportation—is wholly dependent on investment and making these uses available to all.”

Capt. Jonathan Boulware, Executive Director of South Street Seaport Museum

Pier 4 boat Develop and implement a Waterfront: Develop remedy The helpful signage is easy NYC Parks signage system that welcomes for deteriorating north side of to source, but typically, policy launch New York City Water Trail visitors to the park who arrive beach, such as replacing sand and culture shifts like those Association by kayak, canoe, etc. with stones that embrace this activity are more challenging to Establish procedures that implement support unscheduled, Upland: Identify a temporary independent water access parking area for kayaks at the launch site, and ways to get boats from storage or the street to the water

Row boat Provide row boat rental service Waterfront: Schedule rowing Most of the areas of calm Brooklyn Bridge Park rentals for Park visitors through around existing programs at water in the Park are already Conservancy either: an existing access point, or being used by other activities, Brooklyn Bridge Park add floating dock capacity; so finding a dedicated rowing Concessionaire/license Boathouse either at Pebble Beach or site is a significant challenge; agreement between Pier 2 and Pier 3 to add rowing to an existing ONE°15 Brooklyn Marina Agreement with marina if that area is not used for site only requires investment Concessionaire models operator swimming, with a davit for in boats and storage, but such as ’s Loeb Purchase of row boats for lifting boats to or out of the developing a new site requires Boathouse or River existing program providers in water investment in new dock Canoe and Kayak the park who would be willing infrastructure; Either way, a to expand significant amount of upland Upland: Need a storage area storage is also needed for close to rowing site, including rowing programs, presenting secure space at least 25 x 40 an additional challenge feet and a small shed for oars and PFDs

Public Strategize about possible Waterfront: Identify in-water Significant capital investment + POOL pool placement with potential space not in conflict with and regulatory approval would swimming Floating Pool Lady users and program partners other uses, such as between be necessary for any in-water Pier 2 and 3 construction. Pop-Up Pool

Upland: Plan for queuing and sanitation needs

Maritime Activation Plan for Brooklyn Bridge Park 7 People-Powered Water Activities (continued)

Considerations and Recommendations to facilitate that include the marina staffing a There are numerous behind the scenes steps community dock program coordinator responsible needed to provide people powered water activities. for welcoming and orienting public visitors to Though the Park is full of piers, pier space has also the dock, answering questions, planning and been repurposed for non-water dependent activities implementing public programming in the marina, to serve the diverse needs of the community. This coordinating access to related supplies and can lead to space limitations for maritime activities. amenities for the public, ensuring the quality and In addition, two ramps at Piers 1 and 2 initially quantity of programming fulfills the marina’s designed for water access are currently unavailable commitment to the community, and in general for use by small boats unless pre-scheduled. ensuring there’s a “gatekeeper facilitating access for the confused public,” as one community Several interviewees expressed concern that new member described the need for a welcome booth opportunities should not crowd out successful at the pier’s entrance. programs, and that water-based programs need convenient upland service space or a larger pier Availability of program staff also affects the footprint for storage of boats and supplies, and for capacity of Brooklyn Bridge Park Boathouse, maintenance of that equipment for safety. That whose very popular programs are all planned and service space becomes especially critical in storm run by skilled volunteers. Overall, experienced response, when small boats and dock equipment boaters with the right skills are already must be secured in a sturdy part of the pier, or pulled volunteering all the time they can give, making to upland storage, so that they do not become loose it impossible to expand programming under the hazards in wind, surge, or flood. current model. A wide variety of constituents expressed support for increasing the capacity of Budget, staffing, and permitting also play a the boathouse to offer additional program days, role in the success of people-powered water possibly through adding funding for a dedicated activities. ONE°15 Brooklyn Marina is giving boathouse program staff member in partnership back to the community with community dock with Brooklyn Bridge Park Conservancy, or programming that benefits from a contractually through actively recruiting and training additional mandated investment of two percent of marina boathouse member volunteers. revenue. Permitting delays related to the dock infrastructure also delayed the start of programs, Storage space and staffing are a critical part of making the community even more eager to see building successful, interactive on-water programs. public activities enacted there now. Suggestions

The Pebble Beach cove with its protected waters offers the opportunity to expand Program coordinators from Brooklyn Bridge Park human-powered boating like row boating. Boathouse set up for free kayak programming at Pier 2.

8 Maritime Activation Plan for Brooklyn Bridge Park Public Access and Cultural Programs

People, especially children, are fascinated by benefits generated by their neighborhoods’ town both historic sailing ships and historic work docks, enabling small, private boats to stop for boats, and are drawn to the way they provide a shopping or lunch, and to pick up or drop off tangible connection to our harbor and heritage. locals who are joining the boating group. After decades of neglect of our waterfront, these connections are being celebrated in today’s city, as well as around the region, and are being expanded by hosting visiting ships “The city is short on functional waterfront, at Brooklyn Bridge Park. Many historic ships specialize in education, and those boats with proper docking hardware where there that serve school classes, youth groups, and internship programs contribute even further to is deep enough water and the ability to the community. Similarly, research vessels and have gangway access. Here at the Park is maritime college training ships already come to , and need a place to share an opportunity that’s rare in the city. “ their up close experience of advanced training, Capt. Jonathan Kabak Merchant Marine Academy, careers, and work that keeps our harbor clean Department of Waterfront Operations and Training and functioning.

Though the docking of a graceful provides a great deal of excitement, historic work Considerations and Recommendations boats, such as fireboats and ships with deck The Park made an important first step in cranes, provide equally inspiring experience identifying Pier 6 for historic and visiting through their mechanical prowess. In the past, ship docking, and providing some necessary some concern as voiced over the visuals of ships utilities, like power and water, for boats there. at the piers, understandable considering the They have been supported by the marina’s emphasis that the original Park design placed expertise for docks, and might benefit from the on views. But as use of the Park has evolved, programming expertise of the Brooklyn Bridge support for boats, in all their variety, has widened Park Conservancy, to build out opportunities across several stakeholder groups. Smaller to work with visiting ships. But many vessels visiting boats can also be a beneficial part of the from our east coast historic ship fleet need a mix at the Park’s waterfront as well. Many nearby floating dock, and Pier 6 is too high for them. communities in enjoy the economic Adding a floating dock of at least 60 foot length

Historic ships of South Street Seaport Museum would need a floating dock in order to in- and utility pedestals at Pier 6 already offer some of crease programming opportunities at Brooklyn Bridge Park. the necessary infrastructure needed for visiting ships.

Maritime Activation Plan for Brooklyn Bridge Park 9 Visiting and Historic Boats (continued)

ADMINISTRATION & MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

Town dock for Balance staff time of Waterfront: Install additional Though town docks are ONE°15 Brooklyn Marina managing the town dock floating docks, or work widespread in other harbors, small, private US Power Squadron recreational with keeping fees affordable; with the marina to identify this would be the only one in boats develop procedures for public affordable temporary docking; New York City, which makes USCG Auxiliary access without a permit and install security cameras capacity a challenge at the with minimal supervision on the town dock to aid in start; there is limited water management space to site the town dock in, and any new site would require significant investment Upland: Plan for trash cans in building new, low floating docks

Historic ships Recognize historic ships by Waterfront: Create a Continue to develop ways to Vessels/operators: national register eligibility specifications sheet to provide the services that ships Schooner Lynx as opposed to appearances; share with ships with the need; for docking would facilitate temporary signage information needed to plan help fulfill this option, and Full Rigged Ship Oliver Hazard for identification, wayfinding, for docking; plan for gangway can be rented or purchased; Perry and open hours; work space on piers; install a low expanding dockside utilities Retired Fireboat John J. together on promoting public barge to enable mid-size may require additional Harvey programs; entitle a maritime ships to dock; plan for the investment, but is also a executive as primary contact higher maintenance costs of necessary support; ships Retired USCG Cutter Lilac and facilitator providing utilities on piers and the Park continues to Retired Liberty Ship John W. work on fendering (protective Brown bumpers) and gangways Upland: Continue to facilitate (access ramps) USMMA Sailing Foundation deliveries and sanitation needs like pump out and trash removal for ships

Research Make it easy to exhibit Waterfront: Create a Requires the same supports Stony Brook University temporary signage for specifications sheet to as historic ship visits, so the vessels NOAA identification, wayfinding, and share with ships with the same efforts can provide open hours; work together on information needed to plan multiple opportunities for promoting public programs; for docking; plan for gangway activation entitle a maritime executive as space on piers; plan for the primary contact and facilitator higher maintenance costs of providing utilities on piers

Upland: Continue to facilitate deliveries and saniation needs like pump out and trash removal for ships

“You can’t measure the success of public waterfront with a cash register. Understand we are changing lives and that’s worthy of investment.”

Stephen White, Mystic Seaport Museum Operations and Training

10 Maritime Activation Plan for Brooklyn Bridge Park ADMINISTRATION & MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

Tall Ships Park maritime executive and Waterfront: Develop a plan for First conduct several Brooklyn Bridge Park Brooklyn other executive staff liaison temporary additional docking individual ship visits to test Conservancy with city agencies, national at additional piers, such as feasibility; festivals must sell Festival Tall Ships America organizations, and the Pier 3, including the dock tickets to cover expenses, so coordinating promoter needs listed for individual need to develop a balanced NYC & Company ships model for a ticketed event NYC Office of the Mayor in the Park that works with the Park mission to provide I Heart NY Upland: In addition to the programming at no cost to upland needs for individual the public ships, develop ticketing protocols with partners, and develop queuing procedures for the visiting public

South Street Park maritime executive works Waterfront: Install a low barge Docking the ships requires the South Street Seaport Museum with South Street Seaport to enable the Museum’s fleet same supports as historic ship Seaport Brooklyn Bridge Park Museum to plan a yearly to dock; provide utilities and a visits, so those efforts can “Annex” Conservancy schedule of ship stays and gangway plan provide multiple opportunities programs; the organizations for activation; this initiative work together on promoting must also extend the Park’s them Upland: Plan for sanitation commitment to free public needs like pump out and trash programming removal; develop ticketing protocols with South Street Seaport Museum, and develop queuing procedures for the visiting public

Pier 3, under reconstruction, has original docking infrastructure. This report recommends maintaining the infrastructure for visiting ships to dock here.

Maritime Activation Plan for Brooklyn Bridge Park 11 Visiting and Historic Boats (continued)

and with 4–foot freeboard above the water at another significant cost, funds are available to Pier 5 or 6, and possible partners to maintain subsidize pump outs through the state’s Clean and run it, would increase capacity for historic Vessel Assistance Program. ship programs. Often, are used as this kind of floating dock, and are available as used Jonathan Boulware from South Street Seaport equipment in the range of $5,000 to $8,000. Any Museum reminds us that “You can’t have a first docking infrastructure should also include a plan class historic vessel without the revenue stream for the gangway, or ramp, and a plan for fendering, also supporting it.” The Park follows common or protective bumpers between the boat and the practice and will allow free docking for nonprofit dock. The Park, as the host dock, understands it boats that give back to the community with plays an important role in facilitating fendering programming, but these ships still need revenue and gangway access for ships. “If you build it, they to pay their crews and educators and to keep will come!” the vessel safe and maintained. Accessing revenue streams can be even more difficult for For meaningful amounts of programming to visiting ships, which often lack local connections take place, visiting ships also need the host and are not preauthorized through municipal dock to provide access to power and water, and payment systems. Models to help keep historic to facilitate typical shore support services such ships economically afloat vary from the host as basic trash removal and vehicle deliveries for organization paying the ship, to allowing revenue bulk items such as groceries. The Park’s Pier 6 producing events aboard ship under the free already meets these needs, and expanding ship docking agreement, to facilitating the ship support services to other piers would require hosting a snack bar or restaurant for income. significant economic investment. However, However, any food or beverage service includes the Park has expanded its restrooms for the additional levels of oversight by city and state public, an important consideration related to agencies, as well as additional utilities and hosting programs for groups. Pump outs, or ship infrastructure, prohibitive start-up investments for sanitation lines in the pier, were prohibited in the many operators. original plans for the Park. While this represents

“As piers have been re-built on the city’s waterfronts, poor pier design and lack of infrastructure for maritime uses has created a situation that keeps cultural and historic vessels from bringing their programs to these piers. Dialogue with vessel operators can ensure that pier projects that were initially undertaken with a landscape design focus are welcoming to historic ships.”

Mary Habstritt, Historic Ships Coalition

12 Maritime Activation Plan for Brooklyn Bridge Park The Park has employed a common sense approach to insurance, which in other cases may be a limiting factor on the potential of visiting ship programs. The standard type of insurance carried by some ships is water based P&L (protection and indemnity), not land based commercial general liability. Many ships cannot accommodate the time to appeal, or the expense to meet, blanket insurance requirements. Looking realistically at the risk involved and equating types of insurance that effect the same coverage, is an important support the Park can continue to provide.

As with other waterfront activities in the Park, the potential for historic ship visits and programs with research vessels is reduced because of competition for usable waterfront space. The recently installed ferry dock at Pier 6 is a welcome amenity for transportation, but since its installation, procedures have been formalized that close the entire length of Pier 6 on that side to other vessels. This leaves half the valuable public docking space of Pier 6 empty. Further experience with ferry operations should carefully look at maneuvering needs and re-evaluate opportunities to share the water around Pier 6.

“It’s nice to feel like you’re part of the harbor scene. Find ways to draw people even closer to the marina and the boats.”

Noreen Doyle, Park Trust

Maritime Activation Plan for Brooklyn Bridge Park 13 Commercial Boating Operations

Finding ways to incorporate commercial vessels and embayments. Moreover, since most tourist that provide ecological and entertainment based vessels tend to work out of Manhattan, the docks harbor excursions into the Park’s waterfront in Brooklyn have rich potential for programs would offer a way to get more people onto the of interest to locals and those seeking a more water and onto the water, particularly those, such unique experience, such as in-depth looks at as very young children and the elderly, who are lesser known places in the harbor, specialized not able to paddle kayaks or sail themselves. dinner and musical cruises, and family fishing. Since these waterborne opportunities are fee Interviewees also expressed interest in a small based and commercially provided, they must jitney ferry to carry passengers between the be carefully considered for the Park’s public northern and southern end of the Park while waterfront, and could fit best as a concession facilitating their enjoyment of all the Park’s within the marina. Ticketed boat tours would fill facilities. Opportunities for the Park to operate a gap between the free kayaking programs and its own jitney ferry service are detailed here, the cost of a boat membership at the marina, even though in the interim, NYC Ferry has begun while connecting the Park’s waterfront to the service between Pier 1 and Per 6 in the Park. wider harbor environment beyond its shoreline

ADMINISTRATION and MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

Offer nature As available within the Waterfront: Facilitate access The marina and the boat ONE°15 Brooklyn Marina marina, clarify and specify to utilities if not already would need to develop the cruises Brooklyn Bridge Park opportunities for operating present, including wireless market for this and work or fishing Conservancy excursions tours from a marina berth; access on the pier, reducing together on promotion; BBP is use capacity limits to avoid need for ticketing kiosks a greater distance to coastal Audubon Society crowds; develop protocols fishing and nature viewing Gotham Whale for signage for identification Upland: Facilitate deliveries, areas than established and wayfidning that are sanitation needs (pump operators at southern Captree Boatmen’s appropriate within the Park; out and trash removal), and Brooklyn docks, though Association establish realistic revenue queuing; provide small storage there are seasonal fishing sharing and staging area for ship’s opportunities in our inland supplies, and ice machine waters

Offer dinner or As available within the Waterfront: Facilitate access Working with the marina, ONE°15 Brooklyn Marina marina, clarify and specify to utilities if not already there are many existing boat theater cruises Harbor Safety Navigation and opportunities for operating present, including wireless operators who could possibly Operations Committee tours from a marina berth; access on the pier, reducing offer these cruises use capacity limits to avoid need for ticketing kiosks Cloud Nine Charters crowds; develop protocols The Water Table for signage for identification Upland: Facilitate deliveries, and wayfinding that are sanitation needs (pump appropriate within the park; out and trash removal), and establish realistic revenue queuing; provide small storage sharing and staging area for ship’s supplies, and ice machine

Start a Park NYC Ferry now offers service Waterfront: Add new, low NYC Ferry service now U.S. Coast Guard to the Park. If considering floating docks that are needed connects the two ends of jitney New York additional service at a for small ferry landings; of the park. Though a small, future time, the Park could establish boat maintenance Park-managed ferry could Port Washington Water Taxi plan and fund a small ferry area shorten wait times and be Fire Island Water Taxi connection between northern run inexpensively, it is not and southern park piers; hire Upland: Plan for queuing, essential at this time, would captains for shifts, including a develop related signage require significant start up lead mariner for maintenance investment, and might not be and regulatory tasks able to keep up with demand

Overnight Research the benefits and Waterfront: Identify loading Though this use is not easily Harbor Safety Navigation and commercial lift concerns of opening park limits on piers and water feasible, if loading limits Operations Committee piers to relationships with depth; create specifications and water depths meet The Port Authority of New York cargo carriers and port sheet for with information cargo needs, this could & administration; develop an needed to plan for docking be an additional source of appropriate permit fee and waterfront maintenance New York City Economic insurance paradigm Upland: Identify loading limits income at a future time. The Development Corporation on roadways; plan for truck process of overnight lift does access during closed hours not impact public use at all

14 Maritime Activation Plan for Brooklyn Bridge Park Considerations and Recommendations management space in the upland area. In addition, A primary consideration in establishing excursion permission to use through space in the Park for tours from the Park is balancing a level of commercial deliveries and passengers would be part of a tour presence that would be acceptable as a concession in operation. If these related needs are not facilitated by the Park. While encouraging ONE°15 Brooklyn Marina the overall manager of the Park, the tour operator would as the concession site would aid in management and be in the untenable position of negotiating separately contain commercial uses, success would depend on for multiple smaller footprints, a significant impediment some allowable presence or cooperation about Park to establishing these new waterfront activities. ONE°15 space and visuals. A balance will need to be found Brooklyn Marina would welcome a proposal for between providing signage to identify the program homeporting a commercial vessel to give harbor and locate the vessel while not opening up the Park tours. However, it should be noted that the marina to intrusive billboards. Limiting crowd size is a priority, is not permitted to provide fueling and sanitation and could be achieved by limiting the size of the pump out under the Park’s master plan. The closest vessel and investing in ticketing technology such placesto find these services are in New Jersey. as tap-and-go or online ticketing to speed boarding and allow for a simple check in stand instead of Though NYC Ferry now connects the northern and larger ticketing kiosks. Both community members southern piers of the Park, it was noted this is not an and mariners interviewed for this report widely operation dedicated to Park visitors. The headway, supported the idea of a tour boat operation working or time between boats, is much longer than that from the waterfront of the Park, and small operational which a dedicated service could provide. Though not compromises to enable that opportunity. feasible in the near future, a smaller, 20 passenger jitney ferry could be purchased by the Park for less Park management could advise the marina on the than half a million dollars, and provide quicker framework used to establish contracts and revenue intra-Park connections. This would also require new, sharing with the successful concessions ashore, but floating docks and staff. Once established, however, some particulars will be specific to the waterfront. it could be operated inexpensively. As evidenced by Due to the conditions of working on docks, the the demand for NYC Ferry, it is likely that the demand landlord should be willing to take on financial buy-in could exceed capacity for this new waterfront service. to ensure the commercial success of the venture, for example by aiding with gangway construction Utilizing Park docks overnight when the Park or allowing cost recovery for infrastructure like is closed, referred to here as commercial lift freshwater lines. Ideally, the revenue-sharing operations, is a source of maintenance income agreement would involve a lower rate in the first few at other waterfront parks. A fee-based system to years of the contract to meet of setup needs, and allow the delivery of construction materials that increase to a market rate over the length of the lease. arrive by barge while the Park is closed to the public overnight would require fewer, shorter truck Small dockside storage bins, a common feature called trips to the area, improving public health. Tugs dock boxes, should be allowed on the waterfront for and barges come and go before the Park opens, daily operational needs. The more the boat operations and companies carry insurance and pay for the are expected to not take up pier space, the more dockage, giving the Park protection and income critical it is to have access to additional storage and for waterfront maintenance.

The already heavily used ferry landing at Pier 1 Boats that provide specialty harbor tours like fishing and nature watching would highlights the value of ferry service for park visitors. increase the variety of on-water opportunities in the Park.

Maritime Activation Plan for Brooklyn Bridge Park 15 Waterfront Education and Recreation

Constituents shared a strong consensus that programming and waterfront education, particularly expanding direct contact with the water and in the southern end of the Park. Experiencing the continuing to foster an interactive, not passive, water directly is one of the best ways to promote relationship to the harbor is one of the Park’s ecological education and to foster a maritime core strengths. A wide array of respondents community around the Park. supported increasing the possibility for hands-on

ADMINISTRATION and MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

Open the Hire and train Park staff Waterfront: N/A In progress Brooklyn Bridge Park new Pier 5 personnel with a boating focus Conservancy to manage the boathouse boathouse Brooklyn Bridge Park Upland: Flexible design should Boathouse support the boathouse’s use as a visitors center and classroom; the boathouse is relatively small so kayak program storage needs will persist

Provide Entitle a maritime executive Waterfront: Activities could A visionary project that Brooklyn Bridge Park maritime to develop concepts for be aboard a historic work boat would require significant new Conservancy the Park’s southern area; permanently docked; this investment heritage Working Harbor Committee opportunities recognize working waterfront would require pier utilities, heritage vessels by national sanitation services, and Brooklyn Historical Society register eligibility; use this internet access on the pier for theme for programs to interpretive programs complement the neighboring cargo port in the southern area of the Park and the Upland: Activitiesr could Brooklyn Historical Society be in a new upland facility center in the northern part of or repurpose of an existing the Park upland structure; this could double as a visitors center for the southern entrance to the Park

Increase Create a master permit Waterfront: Continue to Build on existing successes, Brooklyn Bridge Park eco- category for key program highlight ecology oriented such as seining programs, Conservancy partners, so that they can be activity areas of the Park and grown these efforts with ashore Coastal Conservation vetted once then apply for through additional signage, a Conservancy coordinated Association additional program dates with such as identifying the waterfront summer camp minimal additional procedures marine creatures hiding in the ecosystem of the salt marsh Upland: Storage areas are currently adequate, but may need to expand with expanded programming

“Brooklyn Bridge Park took design risks with a layout that’s tied to the water. There are fewer boundaries and more places you can touch the water. It’s the best design, so far, for waterfront activation. But even with that great design, the Park is finding ways to do more on the water.”

Murray Fisher, Founder and Executive Director, New York Harbor Foundation

16 Maritime Activation Plan for Brooklyn Bridge Park “Putting regular recreation like basketball and soccer on the piers both saved them and democratized them, and now we have the opportunity to expand diversity for on-water recreation too.”

Regina Meyer, former President of Brooklyn Bridge Park

ADMINISTRATION & MANAGEMENT INFRASTRUCTURE FEASIBILITY PARTNERSHIPS

Teach Promote boater education Waterfront: N/A Existing qualified Brooklyn Bridge Park boater through the new Pier 5 organizations can easily bring Conservancy boathouse and by working safe boating courses into this education Brooklyn Bridge Park with the marina’s community Upland: Make this a program new location Boathouse dock of the new boathouse; include AV equipment and internet USCG Auxiliary capability in fitting out the US Power Squadron building; facilitate open evening hours for the building

Increase use Work with NYS Department of Waterfront: Continue to Seasonality of fish runs and Brooklyn Bridge Park of the fishing Environmental Conservation maintain the amenities already strong currents at the pier limit Conservancy to host family friendly fishing provided by the Park, such favorable opportunities for pier Coastal Conservation clinics; work with NYS as placing trash cans at the beginners Association Department of Health to corners of the pier, where the increase awareness about fish fishing takes place, and access NYS Department of consumption advisories to the sink Environmental Conservation Upland: Add signage NYS Department of Health about fishing seasons and responsible angling, such as illustrations on handling the catch and hook removal

Expand oyster Create a master permit Waterfront: Add public This easily builds on existing Brooklyn Bridge Park gardens category for Billion Oyster programs with the oyster successes of Billion Oyster Conservancy Project and the Conservancy, restoration activities, outside Project; consider turnout, Billion Oyster Project so that they can be vetted of school and work day times including other programming once, then apply for additional within the Park, when oyster program dates with scheduling public programs minimal additional procedures Upland: Storage areas are currently adequate, but may need to expand with expanded programming

Add a Establish realistic revenue Waterfront: Avoid docking Requires significant new New York City Hospitality waterfront sharing areas assigned for active investment, but costs can Alliance boating be shared with the business; restaurant Brooklyn Boatworks the opportunity is currently being explored with a boat Brooklyn Bridge Park Upland: As plans for filling restaurant at Pier 6 Conservancy the upper floors of the Park office progress, continue to incorporate the public’s interest in expanding boating programs supported by a percentage of food and beverage sales. Both programs and restaurants need storage, deliveries, and sanitation services.

Maritime Activation Plan for Brooklyn Bridge Park 17 Waterfront Education and Recreation (continued)

Considerations and Recommendations Even with the added complexity of environmental Building on the Park’s strengths as a gateway permitting, the Park has embraced oyster to the harbor with additional infrastructure and restoration. Interaction with the Park’s oyster opportunities for boater education, marine gardens could be increased even further by awareness, and shore access, was a priority shared providing the same educational content as by many participating interviewees. The Park additional public programming on the weekends, already provides rich programming opportunities with existing permitees, the Billion Oyster Project at the shore, so the focus is on maintaining and and the Brooklyn Bridge Park Conservancy. growing these efforts. Additional signage that further explores the Park’s rich water habitats, such as describing the marine Though the Park has streamlined permitting, a life of the piling field off Pier 1, is another way to number of respondents retain perceptions of the more deeply connect park goers to the water. While Park permitting process as ad-hoc, repetitive, and fishing at the Park is sometimes challenged by the overly concerned with details, and thus an obstacle strong currents around the Pier 5 fishing station, the to increasing educational programming. An Park’s commitment to facilitate fishing is shown in improvement would be for organizations that the regular maintenance and upkeep of the trash regularly program within the Park to be vetted cans and sink in the area. once, and following that have reduced procedural obligations to plan programs. However, the Interviewees did express interest in more constraints of the overall municipal permit system educational programming on fishing techniques are not within direct control of Park management. and responsible practices, oriented towards families. Pier fishing is also a good way to build a constituency in partnership with a possible fishing excursion boat working from the Park. “People are drawn to the waterfront, and A common vision among interviewees want to enjoy refreshments there. The trick anticipates the new Pier 5 boathouse serving as is to find the commercial opportunity for a multidisciplinary educational facility: flexibly designed to accommodate basic boat maintenance food and beverage that doesn’t take too needs as well as group programs, wired for A/V and internet capability for classes, with both daytime much away from public uses.” and evening hours to serve youth and adults. Physical boathouses provide a nexus for people Shari Hyman, Brooklyn Bridge Park Corporation Board of Directors

Pebble Beach, where you can get your toes wet, is one of the most popular Children get to touch small fish and crabs through current educational places in the Park. programming at the Park. Photo by Paula Berg.

18 Maritime Activation Plan for Brooklyn Bridge Park to come together as a boating community, and It was also noted that there are unused floors in though the building itself is relatively small for a the Park office in this vicinity, which could serve boathouse, the benefits can be no less powerful. as a heritage boat building workshop or a heritage (The Park boathouse will be 1,750 square feet. Other museum, and be supported by a connected local boathouses are 5,000 to 7,500 square feet and restaurant. feature very wide doors for moving boats.) People love to eat and drink by the water, and One of the most visionary concepts that arose from many interviewees cited a restaurant on a pier or interviews involved a partnership with Brooklyn a restaurant excursion boat as a way to fund or Bridge Park Conservancy, who could utilize the bring in public benefits in the Park. This option is boathouse building as a home base for a waterfront being explored with a short term lease for a boat summer camp, from which children could restaurant at Pier 6 in 2017. But cultural experts rotate through the many diverse water centered recognize that with the financial power on the side experiences offered throughout the Park. But as of the food business, priorities sometimes become noted earlier, space is at a premium, and the need flipped, and programmatic opportunities become for a visitors’ center with restrooms in this part of the lost. The Park is committed to closely manage and park is another service this small structure may be oversee concessions in order to guarantee that called on to fill. community services are fulfilled. But as noted earlier, if a Park partner has a lengthy permission In addition to Brooklyn Historical Society’s new process for every aspect of its program, it can be museum galleries at , unique difficult to accomplish anything – whether for the opportunities exist to more actively incorporate business or for the community. A balance might Brooklyn’s working waterfront heritage into the Park be found by elevating nonprofit. Park partners in the southern section. With the cargo cranes on with expertise in the proposed program areas to a the docks of Red Hook in view, the areas around management council for the proposed for profit Piers 5 and 6 are perfectly poised to site a hands activity. on working waterfront maritime heritage center. Whether aboard a docked historic register vessel, or in a structure ashore fitted with working maritime artifacts and equipment, many felt the Park should continue to build authentic connections to its past, when the piers were once filled with ships and longshoremen, with cranes and hooks and sacks.

Educators from Brooklyn Bridge Park Conservancy run a popular seining program. Additional educational signage would help visitors better understand the rich Photo by Etienne Frossard. marine environment of the piling field and salt marsh at Pier 1.

Maritime Activation Plan for Brooklyn Bridge Park 19 20 Maritime Activation Plan for Brooklyn Bridge Park Acknowledgements

Waterfront Alliance is most grateful to our more than 950 Alliance Partners, who continually contribute their efforts and expertise to invigorate and restore our waters and waterfront. We thank the organizations below for additional specific feedback for this report:

Brooklyn Bridge Park Corporation and Board of Directors

Brooklyn Bridge Park Conservancy and Board of Directors

Waterfront Alliance Board of Trustees

Barque Picton Castle New York City Department of Schooner Pioneer Parks and Recreation Berkeley Carroll School Seastreak New York City Economic Billion Oyster Project Development Corporation Senator BillyBey Ferry Company New York City Water Trail South Street Seaport Museum Brooklyn Bridge Park Association Boathouse New York Harbor Foundation State University of New York Maritime College Brooklyn Kayak Guides New York Harbor School Tom Fox Associates Classic Harbor Line New York State Department Tall Ships America Downtown Brooklyn of Parks, Recreation and Partnership Historic Preservation Tall Ships Portland Historic Ships Coalition United States Merchant NY Waterway Marine Academy Trust Department of Waterfront Manhattan by Sail ONE°15 Brooklyn Marina Operations and Training Maritime Museum of San Operation Sail United States Merchant Diego Marine Academy Sailing Osprey Maritime Foundation McAllister Towing & International Transportation Schooner Dennis Sullivan Mystic Seaport Museum Schooner Lettie G. Howard WATERFRONT ALLIANCE

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