PARTICIPANT GUIDE Remember and Rebuild

Starting Out forum, also convened by the Civic Alliance to Rebuild Downtown New When New York City was attacked York, a coalition of more than 85 on September 11, 2001, it left a groups. This modern town meeting gaping hole in the ground where two brought together participants from all buildings once stood, destroyed bil- walks of life – downtown residents lions of dollars in public and private and workers, families of victims and property, and, most tragically, cut survivors, emergency and rescue short the lives of thousands of people. workers, business and property own- The physical damage that New York ers, interested citizens and community City sustained was devastating, and leaders – all committed to chart a the human toll was immeasurable. In vision for Lower Manhattan while the aftermath, the entire nation has honoring those who lost their lives on embraced New York, and we have September 11. responded by vowing to rebuild our City – not as it was, but better than This event was just one of dozens of before. Although we cannot replace efforts over the past year by various what was lost, we can remember groups, most of whom are also part- those who perished, rebuild what ners in the Civic Alliance. These was destroyed, and renew and revi- efforts include forums, workshops and talize Lower Manhattan as a symbol reports by New York New Visions, of our nation's resilience. Rebuild Downtown Our Town, Imagine New York, The Labor This historic gathering – called Community Advocacy Network, The "Listening to the City" – will give par- New York City Partnership, The ticipants an opportunity to provide Empire State Transportation Alliance, input on the redevelopment and revi- The Environmental Coalition for talization of Lower Manhattan, the Rebuilding Lower Manhattan, and city, and the region in the wake of other groups. 9/11. It will also start a conversation about establishing a process for the The Lower Manhattan Development creation of a permanent memorial to Corporation (LMDC) also consulted those who lost their lives on that terri- with a broad spectrum of individuals ble and sad day. Using the latest in and groups over the past several modern technology, participants months regarding the future of Lower today will have the opportunity to Manhattan. This consultation included provide input to the Lower Manhattan discussions with civic and planning Development Corporation (LMDC), groups; not-for-profit organizations; the Port Authority of New York and community groups; the LMDC New Jersey and others on different Advisory Councils; federal, state and site planning options for the World local public officials; and the general Trade Center and its adjacent sur- public through public events, public roundings, as well as on public poli- hearings, and the LMDC website. cy options for the area and city as a Following that consultation, the LMDC whole. developed a draft set of Principles and Preliminary Blueprint for Lower On February 7, 2002, more than Manhattan. The LMDC then released 600 concerned citizens, civic leaders these documents to the public for and public officials from throughout public review, engaged in an out- the metropolitan region came togeth- reach campaign, which included a er for the first "Listening to the City" well-attended public hearing in Lower

2 Manhattan should have a greater LMDC Principles for the Future of Lower Manhattan amount of parks, cultural institutions and beautiful streetscapes; and it • Make decisions based on an for the arts, culture, tourism, should be more accessible to and open and inclusive process. education, and recreation, com- from the waterfront. plemented with residential, • Create a memorial honoring commercial, retail and neigh- those who were lost while In short, the questions are how do we borhood amenities. reaffirming the democratic make Lower Manhattan a great ideals that came under attack • Develop a comprehensive, place, and how do we fit the redevel- on September 11th. coherent plan for transit access opment of the WTC site within that to Lower Manhattan that vision? How do we appropriately • Assist in the rapid revitaliza- expands regional and local remember and respect those who tion of Lower Manhattan in a connections and improves tran- died on 9/11? How do we make manner that does not preclude sit facilities. Lower Manhattan economically desirable future development robust, economically diverse, effi- plans. • Connect the neighborhoods of cient, pleasing to the eye and a sym- Lower Manhattan and improve • Coordinate and encourage the bol of opportunity and freedom? Can the pedestrian experience on infrastructure improvements we create a Lower Manhattan with its streets. that will trigger the private great transportation, good jobs, more investment needed to sustain • Expand and enhance public parks and cultural institutions? and enhance Lower open spaces. Manhattan. Some of these goals can be realized • Preserve the historic character simultaneously, but for some there will • Support the economic vitality of Lower Manhattan and the have to be trade-offs – that’s part of of Lower Manhattan as the existing civic and cultural value the discussion today. What are the financial capital of the world of its cityscape. choices that will allow us to get the with new office space. • Promote sustainability and best mix of all this input? The conver- • Develop Lower Manhattan as excellence in design, for envi- sations to take place today will form a diverse, mixed-use magnet ronmentally sensitive develop- another base for the ongoing conver- ment. sation to determine what becomes of this wounded section of the city, and what becomes of New York and the Manhattan, and received significant line should be considered; Lower region in the 21st century. comment from the public. These docu- Manhattan should become a place ments were revised and what has that is active 24 hours a day with emerged is a set of Principles that will more retail, residences for all income help guide the LMDC in developing, groups, and business; the transporta- coordinating and evaluating plans for tion system should be rebuilt both to Lower Manhattan, a Preliminary improve Lower Manhattan’s connec- Blueprint that articulates goals and tions to the rest of the region and to objectives for Lower Manhattan, and make it easier to get around within initial proposals to achieve those the district; the financial services goals. industry should be encouraged to remain in Lower Manhattan, but new Through these various efforts, some types of industry should be encour- major themes have emerged. In brief, aged to come in as well; some streets these themes include: some type of should be restored on the WTC site; memorial should be included in any the rebuilding effort and spending of building plans; a soaring monument public money should benefit New or building that repairs the city’s sky- Yorkers of all incomes; Lower

3 The World Trade Center: A History

The Port Authority built the World Although it was not an immediate Trade Center in the late 1960’s after success upon its opening in 1970, almost three decades of debate and over the years the World Trade discussion. It was conceived largely Center filled up with financial, insur- as an economic development project ance, transportation, government and to revitalize the financial district, trade-related businesses. The complex which was already losing companies showed its first profit for the Port to midtown. Owned and operated by Authority in 1979, after numerous the Port Authority of New York and state offices were moved in, and New Jersey until its privatization in thereafter never operated at a loss. July 2001, the World Trade Center At the time of its destruction, its 10 took seven years to build and million square feet of Class-A office replaced 14 square blocks of the city, space was 97 percent occupied, and an area formerly occupied largely by its retail facilities made it one of the small radio and electronic stores. To most successful shopping centers in help gain New Jersey’s approval for the nation. Although the WTC had the project, the Port Authority accept- both fans and detractors, its impact ed responsibility for a failing transit on Lower Manhattan was undeniable system that was rehabilitated into – it helped spark a major revival in what is now the PATH system. the downtown office market, and Housing was prohibited from the site.

Lower Manhattan: A Brief History To understand the possible futures of Lower Manhattan, it helps to understand its his- 1600’s tory, one that has always stressed two themes – commerce and diversity. Since a few sellers of “stocks” gathered outside a coffeehouse near Wall Street in the late 1700’s, this area has been the nation’s center of finance. Even in the first decades after the Dutch purchased the island from the Native Americans in the early 1600’s and founded New Amsterdam, the city that would become New York was built around buying and selling everything from coffee and sugar to slaves. It also has always been an international city, with a mix of different races, religions and nation- alities from all over the globe. Most of Manhattan is known for its numbered streets and avenues. But the streets of 1700’s Lower Manhattan are often skewed, narrow and follow no clear pattern. Many date back to simple paths and streets used by the Dutch and the English for walking and for carts. These early settlers could not have imagined a time when enormous sky- scrapers perched on those same thoroughfares, nor the fantastic system of tunnels and trains beneath them.

In the 1600’s and 1700’s, the city was physically contained mostly within the rela- tively small tip of land, not much more than a square mile in size, that we now call 1800’s 4 made possible the building of Battery of hard labor. This was substantially Park City and the World Financial less than the original estimate of two Center and, ultimately, the introduction years and $7 billion. of new residential areas downtown. The site of the World Trade Center is When the World Trade Center was now a vast, empty hole in the ground, built, urban designers praised its some six to seven stories deep and wide-open plazas and tall buildings some 16 acres in area. Whatever set apart from city streets. Today, happens on the site, rebuilding in many urban designers advocate tradi- any fashion will be a huge job. tional streets and storefronts. Simply building the site up to ground level will be an enormous effort. In the terrorist attacks on the World Trade Center, 2,832 people lost their lives. The debris left after the attack plunged seven stories into the earth and more than 11 stories high. The recovery effort and cleanup took nine months, cost $750 million, involved the removal of 1.6 million tons of debris and required 3.1 million hours

Lower Manhattan. Most of the land above Houston Street was farms and scattered 1800’s villages. In the 18th century, Lower Manhattan contained the city’s principal shopping streets as well as business and residential quarters. The city continued to expand, but by 1800 still did not go much above Canal or Houston Streets.

In the 19th century, the city began to move northward, and in 1811 a state commis- sion laid out the famous grid of streets that would define the rest of the island. Lower Manhattan became a more specialized place with fewer residences.

In the early 20th century, the New York region burst out of the borders of the five city boroughs. (It now includes over 23 million people in 3 states.) Lower Manhattan became the nation’s first skyscraper district, even while its harbor still bustled with 1900’s ships. Very few people lived there, and few people shopped, dined or attended school there either. In the last generation, thousands of people have moved back to Lower Manhattan in neighborhoods like Tribeca and Battery Park City and, even more recently, the historic financial district. But the core of the area still remains largely given over to office space.

5 The Future of Lower Manhattan Remember, Rebuild, Renew

Prepared by the Lower Manhattan Planning and Public Input Introduction of PANYNJ Development Corporation and the Process and LMDC Program Port Authority of New York and New Jersey The Lower Manhattan Development In order to begin discussion of the six Corporation (LMDC) and the Port concept plans, one must first under- Authority of New York and New stand the LMDC and PANYNJ pro- Jersey (PANYNJ) have embarked gram requirements – a set of goals upon an open, public planning that provide the framework for the process. This process consists of three planning effort by the two agencies phases. and their consultants. One also must understand the contractual obliga- The first phase resulted in the release tions in effect at the WTC Site. The of six concept plans for the WTC Site program for the WTC Site and its and adjacent areas. Following a pub- adjacent areas is broken down into lic comment period, three revised two parts: on-site, which refers to the plans will be released for further 16-acre WTC Site, and off-site, which review and comment. By December, refers to the adjacent areas. a single proposed site plan will be issued. On-Site Program

The public comment period occurring In May 2002, the PANYNJ gave the after the release of each phase will design team an outline for the include public hearings and meetings PANYNJ program and contractual with various government agencies, obligations for the WTC Site. Chief community organizations and civic among them is the need for a proper groups, including the LMDC Advisory memorial to those who lost their lives Councils. The LMDC and the PANYNJ on September 11th, including 75 Port will also receive comments by mail Authority staff members. The memori- and via the LMDC website, at al must also pay tribute to the hero- www.renewnyc.org. ism of the rescuers, and remember the victims of the previous terrorist The six concept plans are not fixed attack on the WTC in 1993. proposals but contain elements that can be refined and recombined in a Rebuilding and improving down- number of ways. The building forms town’s transportation system, adding shown do not represent architectural new cultural amenities and more pub- designs. Rather, they illustrate a vol- lic open space are also priorities. The ume of building space – the architec- program also needs to allow the cur- ture for which will be crafted later. rent leaseholders of the site -- Silverstein Properties, Westfield The LMDC and the PANYNJ invite America and others – to replace all you to review these six concept or most of the office, retail and, pos- plans, and look forward to receiving sibly, hotel space that had been public input and encourage public destroyed. Under the leases, the participation throughout this process. leaseholders have the right to rebuild.

6 Rebuilding also allows the PANYNJ Off-Site Program Based on the LMDC Principles and to sustain its revenues from the leas- Revised Preliminary Blueprint, there es. Those revenues, in turn, are lever- In response to the need for other are other considerations that success- aged to finance billions of dollars in facilities in Lower Manhattan, other ful plans must meet. transportation projects for New York program elements are proposed in and New Jersey. the areas adjacent to the WTC Site. Some of these proposals may require the acquisition of property, as well as All of the six concept plans new construction or the renovation of incorporate the following The six concept plans all existing structures, while avoiding the important considerations include the following demolition of high quality buildings. articulated by the LMDC program elements for the Principles and Revised on-site program: Preliminary Blueprint and by the PANYNJ: • Permanent Memorial The six concept plans • Improving Transit Connections • Public Open Space include one or more of • Cultural and Civic Institutions these program elements in • Improving Pedestrian Access off-site areas adjacent to • Integration with Surrounding • Commercial Office Space (11 the site: million sq ft) Neighborhoods • Hotel (600,000 sq ft - size of • Park and Promenade Along • Design Excellence West Street destroyed WTC Marriott Hotel) • Sustainability • Residential Buildings (include • Retail (600,000 sq ft) • Preservation of Historic both conversions of existing Properties • PATH and Mass Transit Hub buildings to residential use (to replace the former and new residential develop- • Creating a Distinctive Identity 420,000 sq ft facility, which, ment) and a New Skyline along with MTA facilities at the World Trade Center, • Cultural and Civic Institutions • Security served nearly 100,000 com- • MTA Fulton Street Transit • Access for Persons With muters each day) Center Disabilities • Bus Facility • Renovation of 90 West Street • Fiduciary Responsibility • Service and Loading Areas • St. Nicholas Greek Orthodox • Financial Feasibility Church • Con Edison substation recon- • Timing and Schedule struction

7 Transportation plex. It could also include a grand Infrastructure downtown station that would serve as a transit hub. The attacks of September 11th destroyed and damaged much of This infrastructure is important to sup- Lower Manhattan’s transportation sys- port the level of development in the tem. Millions of people will journey to program and the revitalization of Lower Manhattan each year to visit Lower Manhattan. While not final, the memorial and hundreds of thou- this configuration has emerged as a sands of people who live and work leading candidate and was used as a in Lower Manhattan require the use constant in developing the above- of mass transit each day. Developing ground variations. In the future, more a 21st century transportation system detailed options for transportation that can accommodate and meet the improvements in Lower Manhattan demands of the various transportation will be issued for further discussion. users is critical. Discussion of the Six In addition to the site program indi- cated above, the planning of the Concept Plans WTC Site and adjacent areas involves the reconstruction of below- The approach to the memorial was ground transportation. Rebuilding the the first consideration in the develop- WTC Site provides an opportunity ment of the six concept plans. The not only to replace what was lost, but titles of the plans reflect the memorial to improve upon the transportation ideas that they convey. The six con- system that existed prior to cept plans are not intended as fixed September 11th. It is now possible to proposals, but contain elements that address two long-standing problems – can be mixed and matched as the the confusing jumble of transit lines, public input process moves forward. stations and pedestrian tunnels that serve the area, and the lack of link- Three important factors may be con- ages among them. sidered in evaluating the concept plans: creation of an appropriate A critical component to be restored is memorial, restoration of the cityscape PATH, which moved over 80,000 and skyline, and reconnection of the people per day between New Jersey city fabric. and Lower Manhattan before September 11th. The former PATH 1. Memorial and station sat at the center of the site, Open Space and is currently proposed to remain on or near that location. This below- Memorials have been conceived of in ground station would accommodate a many different ways throughout histo- modern, more efficient hub connect- ry and can take a wide variety of ing PATH to several subway lines by forms. A memorial can be open means of a spacious, modern under- space, a sculpture, an object, a ground concourse. Possibly lined with room, a building, a museum, or even retail shops, this concourse could an entire precinct. The discussion of extend from the Winter Garden and the memorial in these plans is not World Financial Center all the way to intended to talk about specific ele- the Broadway/Fulton subway com- ments or designs, rather to determine

8 the area that will be designated for • How well do the concept plans pro- the memorial. The process to design vide a sense of spaciousness between the memorial will be a separate buildings? process. • How important is it that the WTC Site fit within the existing cityscape, or • How important is it that the memorial should it be distinct from the rest of be linked with the rest of the site? Lower Manhattan? • How meaningful is it for the memorial to be linked to Liberty and Ellis Island 3. Reconnecting National Monuments? the City Fabric • How important is it to have a variety of open spaces at the World Trade While the WTC Site was a national Center Site? icon, its site plan separated the com- plex from surrounding neighborhoods • How well do each of these alterna- physically and visually. Views from tives create an appropriate and Broadway to the Hudson River were appealing setting for the memorial? interrupted by the Twin Towers, and • How adequate is the amount and several through-streets were eliminated location of open space? to create the plaza. The unintended effect was to cut off one area from 2. Identity, Cityscape, another, such as Tribeca from Battery and Skyline Park and the Financial District from the Hudson River waterfront. Re-estab- lishing appropriate and effective con- The World Trade Center Towers were nections is a critical consideration in as much a part of Lower Manhattan’s developing a new site plan. identity as Wall Street and the Brooklyn Bridge. A focal point of the • How important is it to establish view Lower Manhattan skyline, they were corridors to adjacent city neighbor- visible from as far away as Jersey hoods? City and Nassau County on a clear day. From the sidewalk, they were a • How important is it to improve east- constant point of reference that could west connections between Battery be seen at the end of many local Park City and the Financial District? streets. The 16-acre WTC Site was • How important is it that West Street widely recognized as a center of be redesigned to improve the experi- commercial and cultural activity. How ence of walking to Battery Park City – and whether – new development on and the waterfront? the site plays these roles is an impor- tant consideration in planning. • How important is it to improve north- south connections between Tribeca • How important is it to add a major and Battery Park? element or icon to the Lower • How important is it to navigate easily Manhattan skyline? on foot to and through the site? • How important is it that the WTC Site • How important is it to navigate easily and its adjacent areas contain a vari- by car to and through the site? ety of civic, cultural, and alternative uses?

9 Rebuilding Lives and Places

Prepared by the Civic Alliance to The destruction of the World Trade Lower Manhattan’s future as a busi- Rebuild Downtown New York Center has raised questions not only ness center determines how many about the future of the site, but the people are employed there and in future of Lower Manhattan as a what sort of work. In the short run, whole. This in turn has raised ques- thousands of people lost their jobs tions about business development, because of 9/11, ranging from a employment, transportation, housing, Chinatown restaurant worker who parks and other issues. Crafting a barely scraped by to a banker who future for the World Trade Center made millions. In fact, most of the site, by necessity, means crafting a people who lost their jobs had low- future for Lower Manhattan and the income jobs. Others have faced region. Right now, Lower Manhattan severe underemployment. How do competes as a business center with we help them get back on their not only parts of New York, but with feet? And can we help them and Hong Kong, Tokyo and London. others get and retain good jobs? What are the options for not only the Can we craft investment and policy WTC site, but for Lower Manhattan decisions to build an economy that as a whole? Below are some issues produces better jobs for more people? and options that are intended to stim- ulate discussion about the redevelop- Facts ment choices we face. • 530,000 people worked in Lower Economic Development Manhattan before September 11. and Employment • About 7 out of every 10 workers in Lower Manhattan lived in New The roughly one square mile of land York City, while 3 in 10 lived in and waterfront that comprises Lower New Jersey, Long Island, upstate Manhattan has been a job and New York or Connecticut. wealth generator since the city was • Before September 11, financial founded four centuries ago. But for service firms employed 3 out of the last half century, financial service every 10 Lower Manhattan workers firms, which have traditionally been but paid wages that were more than the foundation of the area’s wealth, 3 times as high as other industries. have been gradually moving to mid- town Manhattan, New Jersey and • In the late 1990s, many industries other parts of the region. This trend – from computer services to restau- sharply accelerated after 9/11. Now, rants and retail – grew much faster when making decisions about the than financial services. World Trade Center site, about trans- • Lower Manhattan had 120 million portation, tax and other policies, square feet of office space before should city and state leaders seek to 9/11, making it the 3rd largest keep the area as primarily a center business district in the United States. for financial services, or should they seek to reposition the area into a new or modified role?

10 • More than 30 million square feet 5. Strengthen Lower Manhattan’s role as of office space was destroyed or a prime tourist destination by invest- significantly damaged on 9/11. ing in better parks, cultural amenities and transportation options. • More than 100,000 people were estimated to have lost jobs in the city as a whole because of 9/11, Considerations and many others saw their work week curtailed and are underem- • What actions are needed to revitalize ployed today. and strengthen the economy of Lower Manhattan, including both its com- • Sixty percent of those who lost their mercial core and the neighborhoods jobs worked in industries where the below Houston Street? average wage was $11 an hour or less. Eighty percent of them lived • Can the rebuilding effort create a outside of Manhattan and more stronger and more equitable economy than half were new immigrants. for New York City and the entire met- ropolitan region? Options • Should we seek to keep Wall Street as one of the world’s leading finan- Among the futures and options cial centers? being considered: • Can raising wages for lower-income jobs make the region more competi- 1. Invest in transportation, telecommu- tive in the long run by improving the nications and an attractive work labor force, or will it hurt the region’s environment downtown to facilitate economic competitiveness? the growth of jobs of all types. • Should the government invest in work- 2. Focus on retaining Lower er training and pushing industries to Manhattan’s position as a center have good career access to jobs and for financially-related businesses to career ladders, or should market ensure that stock trading, banking forces determine who gets what jobs and insurance continue to generate at what wages? jobs and income for the city and the region. • What is the relationship between the provision of affordable housing and 3. Seek to diversify the types of busi- our ability to retain and attract busi- nesses in Lower Manhattan and the nesses? city through investments, education, training and land policy that help growing sectors of the economy. 4. Establish broad and generous pro- grams to retrain people who lost their jobs directly or indirectly because of 9/11. Such programs could also provide grants for hous- ing and living expenses.

11 N

Transportation that go there. This includes the oppor- 2. Establish a Street Management plan tunity to make all modes of the trans- that recognizes the primacy of pedes- portation system more accessible to trians while still allowing for essential people with disabilities. traffic. Right now, most streets in Lower Manhattan, many of which are Facts very narrow and date back to the city’s founding in the 17th century, • Number of transit stations, transit are clogged with cars, trucks and lines, express bus routes and ferry buses of every sort, making it difficult lines that go to Lower Manhattan: 28 and unpleasant for the many people mass transit stations, 16 rapid transit who live and work in the area and The amazing number of people that lines, over 20 express bus routes, and use the sidewalks. live and work in Lower Manhattan on 14 ferry lines. 3. Improve commuter rail access to a daily basis is only possible because • Number of commuters who traveled Lower Manhattan. Proposals include of the dense web of transit lines each weekday on mass transit lines connecting the Long Island Railroad, beneath their feet that carry them into Lower Manhattan prior to 9/11: connecting MetroNorth, accelerating there quickly and efficiently. If the 500,000. Number of those using the construction of the Second Avenue area were dependent on private cars, subway: 400,000 subway, and considering various pos- vast amounts of parking would be sible locations for the downtown required and the area’s skyscrapers • Number of acres of surface parking PATH station. would not be able to fit. Even prior to lots that the World Trade Center 9/11, the system had serious defi- would have required for worker park- Considerations ciencies and limitations. To many, ing if the center had not been served by mass transit lines: 375 acres (or improving the area’s transportation • How do we decide where to spend much of Lower Manhattan). system has always been one of the the finite amount of public dollars on quickest routes to economic growth transportation investments? because it would allow more people Options to live and work there. • Should projects like the Downtown These problems and challenges have Concourse and transportation hub The terrorist attacks of 9/11 led to many proposals. Three of them take precedent over others, like destroyed or damaged much of are: improving regional commuter rail or Lower Manhattan’s transportation sys- depressing West Street? tem, one of the world’s largest. 1. Build the 2,000-foot underground • Should we invest in the transportation Eleven rapid transit stations were ini- Downtown Concourse and related systems in other parts of New York tially shut down, bus and ferry servic- central hub station. The central hub before Lower Manhattan? es rerouted, streets closed at or near on the Downtown Concourse would ground zero for utility repairs, and be a rebuilt and redesigned • Can investments in transportation entry to the area by passenger cars Fulton/Broadway/Nassau Street sta- improve Lower Manhattan as a busi- restricted by carpool-only rules. The tion (and would connect the 2, 3, 4, ness center, and thus generate more 2necessity of repairing the damage 5, A, C, J, M, Z and PATH trains) taxes for all parts of the city? has raised the question of whether with comprehensible corridors, sky- this is the time to address several lights and better access for people major historic flaws that have existed with disabilities. The Concourse in the transportation system of Lower would feature moving sidewalks and Manhattan, despite the many lines commuter-related retail space in an attractive environment.

12 4 Housing able housing below 14th Street and Facts in other parts of the city. Finding a place to live in New York 2. Build low-income housing in other • Annual attendance figures: Statue of at a price one can afford is difficult parts of the city where land is less Liberty: 4.3 million; Castle Clinton for most people in New York, but par- expensive, although this could mean National Monument: 2.5 million; ticularly for those who make less dividing the city more by wealth and National Museum of the American money. Historically, government has income. Indian: 330,00; South Street Seaport played an important role in helping Museum: 61,000 to address high housing costs, but 3. Provide more money for rent vouchers that can be used anywhere in the city, • Lower Manhattan has 80 acres of there are a number of different ways open space, including parks in to go about it. Some options involve (although a lack of places to use them has left many people with unusable Battery Park City, Battery Park, and short-term help for people directly City Hall affected by the terrorist attacks, vouchers). including those facing eviction. • There are over 24 public plazas Others involve longer-range policies to increase the supply of housing. Considerations Options Supplying affordable housing helps the city attract and retain new busi- • Are we willing to reallocate federal 1. Respect and enhance Lower nesses. resources that New York City received Manhattan’s identity as the city’s his- to address this problem? toric core by giving special incentives Facts for historic preservation. • Are we willing to establish inclusion- 2. Develop a stronger system of parks, • Total residents south of Canal Street ary zoning requirements where every new development contributes to a public spaces, managed streets, and in Lower Manhattan: 34,000. Battery cultural destinations. Park City and financial district resi- fund to develop affordable housing, dences: 25,000 as a number of other cities have 3..Regulate traffic, parking, trucks and done? other activities to improve the look • Number of subsidized housing units and feel of the streetscape. due to convert to market rate: 14,287 • Should federal requirements for units in Mitchell-Lama units in affordable housing and other related 4. Pedestrianize parts of Lower Community Districts One, Two and rules be maintained to promote Manhattan. affordable housing? Three; 3,103 Section 8 units below Considerations 14th Street; 14,411 units below 14th Street. Parks and Culture • Is it possible to create a better pedes- • Federal Liberty Bonds issued after trian environment in Lower 9/11 are being used to produce Lower Manhattan is the historic core Manhattan? Is it worth sacrificing more luxury housing and less afford- of the city, ringed by water, placing some automobile space to do so? able housing than is standard under every street within a few minutes walk • How important is establishing better usual federal requirements. of the waterfront. But the waterfront is not always easily accessible, despite public spaces, parks, museums and cultural facilities to the redevelopment • Over half a million city renters (one its proximity. There are proposals to of Lower Manhattan? out of four households) pay over half capitalize on the waterfront’s proximi- their incomes for rent; this figure is ty by establishing a network of parks, • What is the right balance between even higher in Lower Manhattan. as well as improving ferry service. parks that serve the needs for local Similarly, Lower Manhattan is home to residents and those that attract region- Options important museums and cultural insti- al residents and tourists? tutions, which could form links on pedestrian routes. • How important is connecting down- 1. Allocate a portion of the Federal town to the waterfront? assistance funds to maintain and pre- serve the existing supply of afford-

13 Creating a Memorial: Designing the Process

now extinguished, which were seen area for families, a living memorial, a across the region. museum, arts and cultural spaces, a tomb for unidentified remains, open The events of 9/11 also left deep space and sunshine, a sanctuary for scars in Pennsylvania and at the healing and renewal, and names of Pentagon. A memorial sculpture has all the victims. been established in Shanksville, Pennsylvania to honor those who lost Participants in "Imagine New York," their lives on Flight 93. And a memo- an initiative that engaged 3,500 citi- rial grove of trees is scheduled to be zens in envisioning the re-creation of planted at the Pentagon next Spring New York after 9/11, expressed simi- The tragedy of 9/11 directly impacted to honor lives lost there. lar hopes. "An inclusive international the lives of many thousands of people memorial should be designed for the who died or their families and friends What is the best way to proceed in World Trade Center site that memori- who were left with deep wounds in the development of the design of a alizes all the victims of 9/11-includ- need of healing. The tragedy also left memorial within the context of ing those in Washington DC and this entire nation – indeed the entire rebuilding the WTC site itself? Some Pennsylvania, as well as New York- world – in need of healing. In imme- actions have already begun, and not the violence. The memorial should diate response to 9/11, spontaneous some ideas have been developed. capture the magnitude of collective memorials sprang up throughout the loss, but should also honor the indi- world, as people everywhere What’s Been Done to Date vidual victims and their lives in an expressed what is a fundamental egalitarian way, with a physical sym- human need – to remember and At the first Listening to the City event bol or representation of each individual." reflect upon our losses. on February 7th, 650 participants provided input on four key questions. We can also learn from how memori- Some people believe that the best als were created for other situations. way to remember those who died • When asked “who is the memorial For example, after the 1995 bombing 9/11 is to rebuild the twin towers as for?” participants said: those were left in Oklahoma City, the mayor appoint- they stood. Others believe the best behind, those who survived, those ed a 350-member volunteer commit- way is to build nothing other than a who came to the rescue, those who tee. Before tackling the issue of respectful park. Some would like to offered help, those who come to design, the committee set out goals see a museum as well as space for understand, those who are our future, that the memorial should fulfill. With contemplation. Still others would like Americans and the world. the Vietnam Memorial, a committee to see a soaring monument – “a 21st of veterans and others appointed a Century Eiffel Tower” -- that captures • When asked “what should the memo- jury, which then judged the results of the skyline. And there are those who rial commemorate?” they said: the an international design competition. believe that beyond a monument or individuals who lost their lives; demo- park, creating a vital, active new cratic ideals and freedom; America’s Creating a Memorial unity and resiliency; the rescue and urban district is the most fitting memo- Process rial of all. emergency workers who spent count- less hours assisting in the recovery; all of those who lost their lives in the The creation of a suitable memorial The memorials from 9/11 to date for 9/11 is certainly one of the most have encompassed a range of cre- attacks on 9/11, and in the World Trade Center bombing in 1993. compelling and critical challenges ative outpouring, including the post- facing us at this time. The process by ings of missing persons posters and • When asked “what are the messages which this is created is, therefore, of the shrines created around them, the that should be conveyed by this fundamental importance. As we craft display of the damaged bronze memorial?” they said: peace, hope, our process, we need to consider a sphere that once stood in the plaza serenity, respect, reflection, spirituali- wide variety of questions including: of the WTC site now in Battery Park ty, healing, and renewal. to the soaring Tribute in Light, the • What is the appropriate way to inter- twin columns of lights into the sky, • When asked “what should the memo- rial include?” they said: a private pret the events of September 11 for 14 future visitors, including those in Rebuilding Downtown The Lower Manhattan Development Corporation future generations? New York: Who’s Who The Lower Manhattan Development • How should the location of the Corporation (LMDC) is a joint State-City corpo- memorial site be determined? Should The Civic Alliance to Rebuild ration formed by the Governor and Mayor to Downtown New York oversee and coordinate the revitalization and the location be determined first or rebuilding of Lower Manhattan south of should the design idea for the memo- Houston Street, and create a permanent memo- In conjunction with New York rial generate the selection of the site? rial honoring those who lost their lives on University, Pratt Institute, and New September 11th. The LMDC is governed by a • In addition to the families, who School University, Regional Plan 16-member Board of Directors -- eight appoint- Association has convened The Civic ed by the Governor, eight appointed by the should be involved in the memorial Alliance to Rebuild Downtown New Mayor -- and is chaired by John C. process? If diverse participation is York to develop strategies for the rede- Whitehead. Louis R. Tomson serves as desired, how is it best achieved? velopment of Lower Manhattan in the President and Executive Director. aftermath of the September 11 attack The LMDC works with the PANYNJ, the owner • Regardless of size, how should the memo- on the World Trade Center. The Civic of the 16-acre site on which the World Trade rial be integrated into the 16-acre Alliance is a coalition of more than 85 Center once stood, to coordinate long-term development—through physical con- business, community and environmental planning of the site, including an appropriate memorial. The LMDC is currently pursuing a nections, or based on themes and values? groups representing a cross-section of New York and the region that is provid- number of initiatives to achieve this important goal of revitalizing the area south of Houston • How should the designers be chosen? ing a broad "umbrella" for civic plan- Street, in coordination with the communities ning and advocacy efforts in support of and stakeholders in Lower Manhattan. • How do we create a schedule for the rebuilding of Downtown New York. developing the memorial that bal- The Alliance is working closely with the The Port Authority of New York ances the sometimes conflicting Lower Manhattan Development and New Jersey (PANYNJ) Corporation, the Empire State The Port Authority of New York and New Jersey needs of families, survivors, residents, Development Corporation, the Port downtown businesses and others? built the World Trade Center and operated it Authority of New York and New Jersey, from 1970 until July 2001, when it was leased and the City of New York to create a • How do we ensure that genuinely to private operators. It continues to own the bold vision for a revitalized downtown. 16-acre site. The Port Authority lost 75 employ- creative designs emerge? ees on September 11, including 38 civilians and 37 police employees. On the same day, the agency lost its headquarters office. More than 2,000 agency staff who survived were relocated. In Conclusion: on what happens, there will be fur- The Port Authority was formed by the states of ther choices needing to be weighed New York and New Jersey in 1921 to promote and considered, and which will and strengthen the commerce of the port As we can see, the task of remember- region. The PANYNJ is governed by a 12- ing and rebuilding that faces us is again require the collective wisdom member Board of Commissioners, six of whom daunting – it will call upon our deep- of well-informed and diverse citizens are appointed by each Governor. est reservoirs of faith, good-will, and from throughout our city and region. The agency is committed to moving forward in an inclusive, public process to rebuild at the energy. We must proceed, and we WTC site; to provide fitting tributes to those must also not leave one another After the disaster, there was a public lost on September 11 and to the rescuers; to behind in the process. Too much is at outcry, demanding a public dialogue help restore the economic vitality of Lower before decisions were made. So Manhattan; and to improve the downtown stake for the decisions about the area’s transportation system. While advancing rebuilding of Lower Manhattan to many people have shown their com- these goals, the PANYNJ is also working to reflect the views of only one or anoth- mitment to having this dialogue, as protect and improve public safety and security evidenced by those who are here at all its facilities, and to renew and to improve er part of this great city and region. critical transportation links throughout the These decisions must reflect what is in today, as well as the extraordinary region, as called for in the agency’s five-year the best interests of all of us alive level of participation in other such $9.5 billion capital program. today, and for generations to come. events in these past months. Listening to the City, then, is a part of a much This day, Listening to the City, is larger process of true democracy– being conducted to ensure that our one that will hopefully continue to full range of voices comes together to engage all manner of people from weigh these questions. Today is not throughout the region in sharing intended to be simply an event. No responsibility for rebuilding the kind final decisions will be made here of city in which we all want to live, today or at this point in time. Based work, and take pride. 15 Sponsors The Civic Alliance to Rebuild Downtown New York

The July 20th Listening to the City event at the CONVENER UNIVERSITY PARTNERS Jacob Javits Center is being organized by the Civic Alliance to Rebuild Downtown New York Regional Plan Association New School University • New York University • Pratt Institute and is supported by the Center for Excellence in New York City Governance at the Robert F. CIVIC ALLIANCE PARTICIPANTS: American Institute of Architects (New York Chapter) Wagner Graduate School of Public Service at AmericaSpeaks • Alliance for Downtown New York • American Planning Association (NY Metro New York University, the Regional Plan Chapter) • American Society for Landscape Architects • American Society for Public Administration Assocation, the Pratt Institute's Center for (NY Metro Chapter) • Andy Warhol Foundation for the Visual Arts • Architecture Research Institute Community and Environmental Development, the New School's Milano Graduate School, Asian American Federation of New York • Asian Women in Business • Association for a Better New and AmericaSpeaks. York • Business Labor Community Coalition • Center for an Urban Future • Center for New York City Law • Center for Urban Research • Citizens Budget Commission • Citizens Housing & Planning FUNDERS Council • Citizens Network for Sustainable Development • Citizens Union • City Labor Coalition Columbia University Center for Urban Research and Policy • Commonwealth Fund Community Board 1 The Atlantic Philanthropies Community Cartography • Community Service Society • Consortium for Worker Education Rockefeller Brothers Fund CUNY Institute Urban Systems • Design Trust for Public Space • Disabled Action of Metropolitan Lower Manhattan Development Corporation New York • Environmental Advocates of New York • Environmental Defense • Environmental Rockefeller Foundation Simulation Center • Fine Arts Federation of New York • Fiscal Policy Institute Five Borough Institute W. K. Kellogg Foundation Ford Foundation • General Contractors Association • Guggenheim Museum Housing First! Hunter College • Independence Community Foundation • Institute for Urban Design J.M. Kaplan JP Morgan Chase Fund • Jobs with Justice • Landair Project Resources • Lawyers Alliance for New York Lincoln Square AOL/Time Warner B.I.D. • Robert J. Milano Graduate School (New School University) • Municipal Art Society Merrill Lynch National Executive Service Corps • Natural Resources Defense Council • New York Building Con Edison Congress • New York City Central Labor Council • New York Community Trust • New York Department of Housing and Urban Conservation Education Fund • New York League of Conservation Voters • New York New Visions Development (HUD) NOW Legal Defense and Education Fund • NY Lawyers for Public Interest • NYPIRG Straphangers Campaign • NYS AFL-CIO • NYU Brennan Center for Justice • NYU Center for Excellence in New York City Governance • NYU Institute for Civil Infrastructure Systems • NYU Institute of Public Administration • NYU Real Estate Institute • NYU Robert F. Wagner Graduate School of Public Service • NYU Rudin Center for Transportation Policy and Management • NYU Furman Center for Real Estate and Urban Policy • Pace University • Parks Council • Pratt Institute Center for Community and Environmental Development • Project for Public Spaces • Real Estate Board New York Rebuild Downtown Our Town • Riverside South Planning Corporation • Rockefeller Brothers Fund • Rutgers University • Salmagundi Club • Surdna Foundation • Sustainable South Bronx • Take the Field The Century Foundation • Transit Workers Union Local 100 • Tri-State Transportation Campaign Urbanomics • Van Alen Institute • Wall Street Rising • West Harlem Environmental Action Women’s City Club • Women in Housing and Finance • YMCA of Greater New York

ACKNOWLEDGEMENTS: For more information Listening to the City would like to thank the following groups and individuals please contact: for their assistance on this project: Bruce Davidson Eugene McGrath Association Civic Alliance to Rebuild (Magnum Photos) New York Cares New York Waterway Downtown New York Raymond Depardon (Magnum Photos) New York Historical Society Richard Parsons 4 Irving Place, 7th Floor Stephen Heintz New York Trial Lawyers David Rockefeller New York, NY 10003 www.listeningtothecity.org Listening to the City Citizens Advisory Greater New York Labor-Religion Coalition Committee, which includes representatives of: Housing First! American Arab Anti-Discrimination Committee Imagine New York Asian American Legal Defense and Neighborhood Economic Development Education Fund Advocacy Project Asian Americans for Equality New Jersey Association of Railroad Passengers Asociacion Tepeyac New York City Environmental Justice Alliance Central Brooklyn Churches New York City Partnership Children's Aid Society New York Immigration Coalition City Project New York Jobs with Justice Common Cause New York New Visions Community Board One New York Women's Foundation Serveral photos in this brochure have Community Board Two Nkiru Center for Education and Culture been kindly donated by NYCfoto Community Board Three Partnership for New Jersey www.nycfoto.com Council of the City of New York Port Authority of New York & New Jersey FDNY SEIU Local 32BJ Additional Photos provided by Global Kids, Inc. Wall Street Rising Project for Public Spaces Design: Checkman Design Inc. Good Jobs New York