East River Esplanade Vision Plan East River Esplanade Vision Plan December 2014

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

Prepared for: CIVITAS 1457 Lexington Ave New York, NY 10128 www.civitasnyc.org

Prepared by: Mathews Nielsen Landscape Architects, P.C. 120 Broadway, Suite 1040 New York, NY 10271 www.mnlandscape.com CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

CIVITAS is a neighborhood non-proﬁt organization dedicated to improving quality of life on the Upper East Side and in East Harlem. CIVITAS focuses its efforts on planning, zoning, and environmental issues. Reimagining the Waterfront through a CIVITAScommunity based CIVITAS planning initiative CIVITAS is a CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS current and on-going planning project.

The CIVITAS Reimagining the Waterfront community based planning initiative is made possible through a generous grant from the New York Community Trust.

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS Table of Contents 1. Executive Summary 1

2. Historic Conditions 5

3. Existing Conditions 11

4. Outreach Process 53

5. Opportunities and Constraints 59

6. Project Feasibility 75

7. The Vision 79

8. Conclusions 111

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

CIVITAS | Mathews Nielsen 125125th25th Street Project Area Str e

116th Street

106th Street

96th Street CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

5th Ave 86th Street

Madison Ave Park Ave Lexington Ave 3rd Ave

CIVITAS CIVITAS2nd Ave CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

79th Street 1st Ave

York Ave East End Ave 72nd Street Grand Central Parkway

67th Street New York City CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

59th Street Str

1:24,000 (1 inch = 2,000 feet) Feet 0 1,000 2,000 3,000 4,000 5,000 CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

1. Executive Summary Executive Summary Background and this study come at a critical time for Parkland in New York City is a resource the Esplanade. In 2013, the New York treasured by residents and visitors alike. City Department of Parks and Recreation In the communities of the Upper East Side and Office of Management and Budget and East Harlem, the East River Esplanade conducted an underwater investigation offers a cherished landscape with dramatic of the Esplanade’s structural integrity views of the East and Harlem Rivers. The with ARCADIS. This study revealed that Esplanade affords users river breezes, the Esplanade is in need of significant wide open blue skies, access to the water’s repairs within the next ten years. The edge, and a continuous stretch of landscape community’s desire to bring about that is not subject to the stop and go of city meaningful improvements, combined with traffic. This approximately three-and-a- the need for substantial repairs, provides half mile stretch currently spans sixty-five a rare opportunity to envision an innovative blocks, but plans are in place to create and comprehensive design and resiliency Greenway connections to both the north and solution for the East River Esplanade. south termini. With the addition of those planned projects, this section of Esplanade CIVITAS CIVITAS CIVITASStudy CIVITAS Approach CIVITAS CIVITAS CIVITAS CIVITAS will provide pedestrian and bicycle access to residents of Manhattan, Queens, Brooklyn, The opportunities and recommendations and the Bronx. The Esplanade is a resource for the future of the East River Esplanade for the adjacent communities and the city as are the products of extensive research a whole, but it is in need of improvements, and analysis combined with an in-depth repairs, and planning to enhance the quality community and stakeholder outreach of the experience and ensure its long-term process. The research examined the viability in light of sea level rise and future experiential, physical, ecological, social, storms. economic, geographic, and hydrologic environment of the Esplanade. In addition, In February 2014, CIVITAS, with consultants the research looked at how this landscape CIVITASMathews Nielsen CIVITAS Landscape CIVITAS Architects has CIVITAS changed over timeCIVITAS as the tributaries CIVITAS CIVITAS CIVITAS (MNLA), launched this study of the East and streams that once fed the East and River Esplanade. The study area covers the Harlem rivers were slowly filled in and the Esplanade between East 60th and 125th hardened edge that now defines the edge of Streets and identified the following goals to the Esplanade evolved. The Esplanade will guide the process: continue to change in the face of numerous environmental factors. Improvements in • Raise awareness of the opportunities water quality have ironically increased the embedded in the East River Esplanade rate of deterioration to its existing structures. • Study all aspects of feasibility Further, it is expected that climate change • Develop recommendations to guide and sea level rise will impact the long-term CIVITASfuture planning CIVITAS CIVITASrelationship CIVITAS between CIVITAS the Esplanade and CIVITAS the CIVITAS CIVITAS • Identify opportunities for short and river, and now is the opportunity to begin long-term improvements planning for these changes. • Identify funding approaches so that improvements may ultimately be CIVITAS, together with Mathews Nielsen, constructed collaborated with stakeholders and community members to gather ideas and This study builds upon the ongoing work information, to identify opportunities, and to of CIVITAS and their commitment to garner input and support for future planning improving civic life in East Harlem and efforts. Between April and September on the Upper East Side. In 2011, CIVITAS 2014, a series of four stakeholder and three sponsored an international design-ideas community outreach meetings were held. competition to jump-start a process for Stakeholder meetings with elected officials, envisioning the transformation of the East agency representatives, and community River Esplanade. Over 90 submissions groups were a forum to share ideas, build representing 24 countries were received, political support, and discern community and the winning entries have been exhibited needs and wishes. Community meetings at several locations throughout the city. offered residents and users of the Esplanade Both the CIVITAS focus on the Esplanade the opportunity to express their ideas for 2 East River Esplanade Vision Plan CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

the future, articulate their concerns, and bicycles and pedestrians, noisy, and share their knowledge of the Esplanade. feels disconnected from the city. More In both the stakeholder and community programming is desired, as are improved CIVITASmeetings, CIVITAS and MNLA CIVITAS presented CIVITASconnections to the CIVITAS water, opportunities CIVITAS for CIVITAS CIVITAS portions of research and shared information gardening, ecological enhancements, and on opportunities and constraints. greater access to recreational boating. These are just some of the things the The product of this process is this Vision community would like to see improved upon Plan. The Vision Plan includes specific and integrated into future planning. The recommendations to guide future planning common thread linking areas in need of efforts as well as a range of opportunities improvement is a lack of physical outdoor for suggested improvements. Research, space. Space is also the element needed community and stakeholder outreach, and to implement and integrate many of the discussion with city and state agencies community’s aspirations and visions for CIVITASform the CIVITAS basis for the CIVITAS opportunities CIVITASthe future. Finding CIVITAS additional space CIVITAS for CIVITAS CIVITAS herein. Additional technical analysis, the Esplanade is a technical, regulatory, cost estimating, planning, design, and and financial challenge. Expansion of the community input is needed to refine the Esplanade is limited by the FDR on the opportunities and bring actual projects to upland side, while the river is the limiting fruition. Clearly, there are both significant factor on the opposite side. regulatory and financial obstacles that must be overcome, but these challenges must be Planning and designing an Esplanade with addressed given the potential impact from increased area is a real possibility, and sea level rise and future storm events to the the opportunities presented in this report Esplanade and East Harlem community. show how and where interventions can be adapted to make the best use of future funding to accomplish this goal. The options Key Findings for adding space include building above Stakeholders and community members portions of the FDR or expanding into the shared many ideas and aspirations for river via structure or fill. These are costly the future of the Esplanade. The current options and they are proposed with full Esplanade is narrow, congested with knowledge that the current state and federal regulations discourage expansion above or CIVITAS | Mathews Nielsen 3 into waterways and typically require costly short-term opportunities will sustain mitigation in return. It is also acknowledged momentum and continue the process of that the most transformative and expansive building community and political support. interventions cannot be undertaken purely This support is critical to future planning to improve recreational opportunities. efforts. For example, low-lying areas north of 90th Street, including neighborhoods of Additional planning is needed to develop East Harlem, which are home to many site-specific designs and establish a public housing developments and large comprehensive strategy for the future concentrations of low-income residents, of the Esplanade. Due to the required are particularly vulnerable to future flooding level of agency coordination, permitting, events. Rebuilding the Esplanade creates and investment needed to formulate a an opportunity to integrate long-term comprehensive plan, this effort must be flood protection measures into the future developed with city and state support and design. Therefore, it is expected that any lead to plans that are both definitive and significant investment in the Esplanade implementable. will utilize funds to maximize the value of In spite of significant challenges, there CIVITASeach dollar spent. CIVITAS Design solutions CIVITAS must CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS is a wonderful opportunity to transform be elegant and inviting to Esplanade users, the East River Esplanade into a world- but must also function on multiple levels class waterfront that is on a par with to solve the challenges of limited space, other waterfront parks in New York City. experiential quality, noise, flooding, and Furthermore, the prospect of integrating ultimately sea level rise. This multifaceted resiliency measures into the plan will ensure design approach is key to producing feasible the long-term viability of this parkland as design solutions that can and must be well as protect residences and businesses built to restore an important New York City in East Harlem and the Upper East Side waterfront edge. Furthermore, a viable from the hazards of climate change. In and long-term comprehensive solution this situation, needs and opportunities are CIVITASfor the Esplanade CIVITAS is dependent CIVITAS upon a CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS uniquely aligned so that the right design collaborative approach to problem solving will solve multiple challenges. With strong that integrates the resources and needs of political leadership, community support, and multiple agencies and groups. financial commitment, these opportunities can be transformed from vision to reality. Next Steps This report identifies short, medium, and long-term opportunities for remediation, restoration and rebuilding the Esplanade. Long-term opportunities present the CIVITASgreatest challenges, CIVITAS require CIVITAS longer CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS planning and construction times, and demand significant coordination efforts. However, short-term opportunities can be implemented quickly, energize the community and show commitment toward improving the Esplanade. Acting on these

4 East River Esplanade Vision Plan CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

2. Historic Conditions Fig. 2.1 Great Britain War Ofﬁce (1782) Fig. 2.2 Viele Map (1874)

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

Source: New York Public Library Source: New York Public Library

6 East River Esplanade Vision Plan History Manhattan’s interface with the East and snapshot in time, and that major changes Harlem Rivers has changed dramatically have happened in the past and can happen over the course of the last several hundred again in the future. years. This is especially true of the section of land from East 60th to 125th Streets, which The transformation, from an industrial is the focus of this Vision Plan. Historically, landscape to one filled with residences and this land was parceled into country estates services along the creeks and tributaries where wealthy landowners, such as of the Harlem and East Rivers, has already Archibald Gracie, constructed large homes brought about significant change. With the at the river’s edge. Gracie’s mansion, the decline of urban industry, the water quality is current residence of the Mayor of New York improving and this allows for the survival of City and a legacy from this era, is located at shipworms and wood gribbles (Teredo and the end of East 88th Street in Carl Schurz Limnoria, respectively). These borers eat Park. During this time, the river’s edge was the wooden marine piles that support the characterized by outcroppings of natural sections of the Esplanade constructed on stone as well as vegetated earthen banks. relieving platforms. Approximately 41% of North of Gracie Mansion the river broadens, the Esplanade in the study area is supported CIVITASand the area CIVITAS of Rhinelander CIVITAS Bay and the CIVITASby wooden piles, CIVITAS and 59% is constructed CIVITAS CIVITAS CIVITAS Harlem River once contained low lying of stone and concrete retaining walls. marshes where creeks drained sections of Because of its age and the improvements northern Manhattan. in water quality, the Esplanade is in a state of structural decline and requires critical The river has also changed over the course repairs to keep portions of it from falling of the last several hundred years. Large into the water within the next decade. rock formations were blasted from Hell This is the subject of the New York City Gate to improve navigational safety along Department of Parks and Recreation and the East River. Shallow areas were dredged Office of Management and Budget 2013 for shipping. Creeks and marshlands were Marine Report, and is discussed in more CIVITASfilled in and CIVITAS drained for the developmentCIVITAS of CIVITASdetail later in this CIVITAS report. CIVITAS CIVITAS CIVITAS housing, industrial sites, and to complete the Manhattan roadway grid. The shoreline In conclusion, one of the most significant was hardened with gravity retaining walls things to keep in mind is that the history constructed of stone and concrete and of alterations to the shoreline may have relieving platforms supported on wooden changed the way it is used, but not the piles. Portions of the FDR Drive were fundamental hydrologic forces that still converted from a boulevard to a limited affect this landscape. Storm water flows access roadway, complete with on and downhill and low lying areas are the first off ramps. As a result of these combined areas to flood during heavy rain and storm changes, the waterfront along the East surge. The neighborhoods north of 90th CIVITASand Harlem CIVITAS Rivers was effectively CIVITAS severed CIVITASStreet, where marshlands CIVITAS and creeks CIVITAS were CIVITAS CIVITAS from the urban fabric and adjacent filled in, are most susceptible to this flooding. neighborhoods. The present-day Esplanade This history is clearly evident on the Federal is a narrow strip of land with a hardened Emergency Management (FEMA) Flood edge running along the river. Insurance Rate Maps (FIRM). Moreover, the effects of sea level rise and climate change The East River Esplanade is, therefore, the will likely exacerbate the risk of flooding in product of a constantly changing relationship these low-lying neighborhoods along the between land and river. Its slender profile FDR and Esplanade. A high proportion leaves much to be desired in terms of quality of the residential community in this area and its relationship to the FDR exacerbates consists of low-income residents living in the narrowness. Yet the river is a constant buildings owned and maintained by the New draw, offering expansive views, tidal breezes, York City Housing Authority (NYCHA). swift water, and relief from the congestion of the city. It is important to remember that the contemporary relationship between the Esplanade, the city, and the river is a

CIVITAS | Mathews Nielsen 7 Fig. 2.3 Historic Conditions: Cut + Fill Port Morris

Manhattan Valley

East Harlem

Randall’s Island CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

Carnegie Hill

CIVITASUpper CIVITAS CIVITASYorkville CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS East Side

Astoria Lenox Hill

CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

Ravenswood

Roosevelt Island Legend Sutton Cut Place Fill 1609 Shoreline (Mannahatta) Current Shoreline 1609 Streams (Mannahatta)

Note: Historic shoreline and stream data for Queens or Long Island City Bronx Boroughs is not depicted in this ﬁgure

8 East River Esplanade Vision Plan Fig. 2.4 Historic Conditions: Ecological Communities

125th Street

HypotheticalTrail Lenape 116th Street

106th Street

96th Street CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS

5th Ave

86th Street Legend Madison Ave Park Ave Tidal River Community Lexington Ave 3rd Ave Marine Eelgrass Meadow CIVITAS CIVITAS 2ndCIVITAS Ave CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS 79th Street Low Salt Marsh 1st Ave

York Ave High Salt Marsh East End Ave 72nd Street Salt Shrub Community

Grand Central Parkway Appalachian Oak-pine Forest Coastal Oak-hickory Forest

67th Street Oak-tulip Forest CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS Chestnut Oak Forest

Highbush Blueberry Bog Thicket

Hempstead Plains Grassland 59th Street Pitch Pine - Scrub Oak Barrens

Successional Shrubland

Maritime Beach Community

Lenape Horticultural Fields

Lenape Village Site

Successional Old Field Community

Note: 1609 Conditions depicted. Data for Queens or Bronx Boroughs is not depicted in this ﬁgure (Mannahatta Project)

CIVITAS | Mathews Nielsen 9 Fig. 2.5 Historic Esplanade Design Drawings

Esplanade Timeline

• Early 19th Century and Before

Lenape likely harvested ﬁsh, shellﬁsh, and waterfowl from the rich marshland along the western bank of the Harlem River. Later under colonial and early American rule, small farms, orchards and settlements dotted the landscape. Archibald Gracie builds his mansion in 1799.

• 19th Century

The waterfront is developed with piers, docks, slaughterhouses, coal yards, and breweries. By the end CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITASof the CIVITAS century the waterfront CIVITAS is in decline because of competition from elsewhere in the harbor. • 1934 - 1939 Construction of East River Drive, a major arterial roadway, begins with funding from the Federal Public Works Administration. Rubble from London is used as ﬁll beneath portions of the highway as boats bring the material as ballast from CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITASwar-torn CIVITAS England. The Esplanade CIVITAS is Bulkhead Wall Construction. Triborough Bridge Authority (1935) constructed.

• 1948

FDR Drive was converted from a boulevard to a controlled-access parkway south of 92nd Street. The Carl Schurz Park and Gracie Mansion deck is built.

• 1951 CIVITAS CIVITAS CIVITAS CIVITAS CIVITAS CIVITASWards CIVITAS Island Bridge is CIVITAScompleted and opened to pedestrians. The bridge opens to bicycles in 1967.

• 1980s

Most of the Esplanade between 63rd Street and 125th Street is reconstructed with funding from East Side development projects.

• 1987-1991

Parks renovates Pier 107 which had begun deteriorating in the 1960s.

• Today

Approximately 150,000 vehicles per day use FDR Drive. The narrow Esplanade is once again Typical Current Condition. Designed by Abel Bainnson Associates (1985) deteriorating. 10 East River Esplanade Vision Plan