Maritime Activation Plan for Governors Island a Vibrant Model of Waterfront Success Governors Island N

Maritime Activation Plan for Governors Island A Vibrant Model of Waterfront Success Governors Island N

East River

Castle Williams possible New York Corner Pier 101 water touch kayaks and Harbor’s point and fishing small boats station Upper Bay Western Shore development proposals may include harbor SOISSONS LANDING education BROOKLYN FERRY BATTERY center SERVICE TUNNEL CASTLE VENTILATOR WILLIAMS CLOSED TO PUBLIC

HISTORIC DISTRICT

WESTERN Picnic Point DEVELOPMENT possible ZONE water touch point

NEW PARK SPACES Pier 102 THE historic HILLS EASTERN DEVELOPMENT ZONE ships

YANKEE PIER FERRY SERVICE

Buttermilk Tango Pier Beach with significant possible investment water touch possible marina point Travel Lift Pier possible Lima Pier small boat Service dock maintenance Buttermilk for freight and Channel trucks Maritime Activation Plan for Governors Island A Vibrant Model of Waterfront Success

2 Executive Summary 6 Island History and Systems: Past, Present, and Future 10 Waterfront Programming and Management Recommendations 24 Site Specific Analysis and Possibilities

Appendices 36 A Brief Overview of Waterfront Construction and Permitting in New York Harbor 38 WEDG: Supporting Resilient, Accessible, Ecologically-friendly Waterfronts Near You 40 Resilient Park Construction on Governors Island

Maritime Activation Plan for Governors Island 1 Executive Summary

The harbor and waterways that surround the Island’s 2010 Park and Public Space Master great metropolis of New York have come to Plan, two areas totaling 33 acres were set aside be called our “sixth borough.” If we were to for development to attract new uses that will designate the capital of this sixth borough, the generate revenue to support Island operations. best candidate would be Governors Island, in the heart of New York Harbor. While it is deeply The water’s edge of Governors Island represents entwined in harbor history, the Island’s future untapped potential and yet remains a dynamic potential is of even greater significance as a environment where Mother Nature’s power is leading model of revitalized, resilient, accessible, undeniable. With this Maritime Activation Plan and innovative waterfront uses. (MAP), Waterfront Alliance examines how the Trust for Governors Island can make the most of Since opening to the public in 2005, its waterfront and offers recommendations for Governors Island has become an extraordinary addressing the challenges of an island in New destination beloved by New Yorkers of all York Harbor and capitalizing on that Island’s stripes. The Trust for Governors Island is the unique waterfront assets. nonprofit organization created by the City of New York and charged with the planning, The Governors Island MAP was constructed redevelopment, and ongoing operations with input from dozens of the most of 150 acres of the Island’s total 172 acres experienced maritime minds from our region (the remaining acreage is managed by the and around the country, along with many National Park Service). The Trust has worked locally invested stakeholders. hard to turn this former military base into a world-class attraction, and today, the Island’s WATERFRONT PROGRAMMING AND car-free lanes, historic buildings, and green MANAGEMENT RECOMMENDATIONS spaces blend with unrivaled harbor vistas This MAP offers strategies for rethinking and and creative programming to offer a quieter, maximizing Island maritime needs, including slowed-down version of how to have fun ferry service, recreation and education, freight in the big city. New park elements such as service, and operations and management. Each hammocks, ballfields, man-made hills, and of these essential elements applies to multiple slides have been complemented by significant parts of the shoreline, and each is influenced infrastructure investments, and as the Island by systemic and historical factors. Activation on continues to develop, there will be even more these complex goals will be critical to full use of tenants, activities, and uses. As defined in the the Island and its waterfront.

The heavily used ferry landing at Soissons emphasizes the need for enhanced ferry service for visitors. Weekends already average more than 10,000 ferry passengers per day.

2 Maritime Activation Plan for Governors Island Visitors enjoy picnicking at the shoreline, where there are sweeping waterfront views with little access onto the water.

Getting There: Improving Ferry Service that investment in both dock infrastructure to Meet Growing Demand and passenger amenities at Yankee Pier would need to be funded. However, in addition to Expand Capacity: As the Island works streamlining ferry service, this would open Pier towards full-year operation and build-out of the 102, recently used as a ferry berth, to other types development zones, ferry service will continue to of boats, increasing the variety of the Island’s be expanded and refined. Currently, weekends maritime activation. average more than 10,000 ferry passengers per day. We recommend using that number per Streamline Operations: As of the publishing of day, for seven days, as a basis for studying or this report, ferry routes to the Island are operated planning future service. by both the Trust and by NYC Ferry, with the Trust contracting with HMS Global Maritime and NY Increase Access and Equity: In recent years, Waterway for services. While ideally a unified direct ferry services to Governors Island have ferry operation has natural advantages, the Trust been from Manhattan and Brooklyn departure can continue to maximize the various services points. NYC Ferry’s transfer option now allows through strong management. connections to other ferry lines serving Queens The waterfront and the Bronx. As additional locals discover Enjoying Island Life: Providing Diverse Governors Island, having more direct ferry service gives us the Recreational and Educational Opportunities to the Island from diverse neighborhoods around experience of the region has become desirable. Ferry service Increase Water Touch Points: Other than Pier expansiveness represents a significant investment of resources, 101, there are no opportunities for visitors to though, so we recommend an economic impact touch the water at any other point in Governors amid a dense, study to refine the possibilities for additional Island’s 2.2 mile shoreline. Though it requires clustered city. direct routes. significant investment, we recommend the Trust explore ways to create an additional get-down, Psychologically, Consolidate Ferry Landing Sites through cove, or touch point. New waterfront parks it calms you; it Continued Dock Infrastructure Investment: around the harbor, more boathouses and sailing offers respite. Ferry services to Governors Island have clubs, increased numbers of marine events expanded since the island opened to the permitted by the Coast Guard, and more field Michael Samuelian, The Trust for Governors Island public, transitioning from customized military trip providers and curricula about our waters all infrastructure and responding to the Island’s highlight the trend that people are rediscovering growing popularity. We recommend the Trust the waterways for education and recreation, consider retaining the military era Manhattan-to- particularly valuing ways they can touch or Governors Island route from the Battery Maritime directly interact with the water. Building to Soissons Landing, and in the long term, assign all other ferry routes, whether Trust Invite More Boating: Recreational boaters, or externally operated, to Yankee Pier. To achieve including small motorboats and sailboats, are

Maritime Activation Plan for Governors Island 3 a local constituency that eagerly appreciates New Jersey, which is also a decision that is most waterfront access. We recommend the Trust streamlined when made in concert with the zone for and allow proposals for a marina maritime freight operator. concession which would provide access for park visitors who could arrive by their own boat. Maximizing Management: Evolving These kinds of projects require significant Waterfront Expertise and Coordination external investment, though. Continue Use of Contract Services: We recommend that the Trust continue to contract Expand Educational Offerings: Establish a with marine services companies for vessels vibrant educational and recreational district and their manning, dock maintenance, and centered around Piers 101 and 102 which could future freight services. The specific tasks of include historic ships, public kayaking and dock and boat maintenance, infrastructure and continuing Harbor School/Billion Oyster Project crew certification, cargo freight handling, and activities. marine regulatory management are distinct and require targeted expertise, with protocols and Moving the Goods: Freight Service Demands technology continually evolving in the industry. New Infrastructure

Establish a New Service Entrance: Engage Internal Maritime Specialists: In Reconstruction of Lima Pier as the “service working with a marine operations contractor, entrance” for the Island is widely supported by and to optimize the waterfront, a key to success Trust staff, maritime experts, and local park users. will be active management and coordination by Currently, nearly all freight, trash, and heavy Trust staffers knowledgeable in the maritime moving to and from Governors Island is managed field and dedicated to the Island’s maritime by trucks taking the ferry through the Battery interests. The Trust has already effectively Maritime Building to dock at Soissons Landing. managed the waterfront, expanded ferry services As only a limited number of vehicles can ride the and marine programming, and repaired areas ferry at a time, capacity for freight has been closely of shoreline infrastructure. But to further utilize managed, and managing truck and pedestrian the waterfront, we recommend adding one or traffic in close quarters on the same ferry and two specialist positions, such as a vice president docks has been an increasing safety concern. for maritime operations and a maritime director. New maritime personnel should have experience The overarching goal is to transform the way in maritime operations, including common industry parameters for contracts with marine Governors Island uses its waterfront. In the past, service providers, as well as an understanding uses were viewed as discrete, but activating the of waterfront programming implementation to further expand public engagement. Island’s full potential requires consolidating and considering waterfront uses as a whole package. ACTIVATION GOALS: SITE SPECIFIC ANALYSIS AND POSSIBILITIES Carl Weisbrod, The Trust for Governors Island These activation goals should translate into benefits on the Island’s waterfront. A chart, found Pursue Wholistic Design for Essential at the end of this report, identifies specific sites of Connectivity: A variety of tried and true designs current and future possible maritime activation, exist for building infrastructure to create freight describes considerations for use of these spaces, access at Lima Pier, and final design would be and recommends possible actions and activities best advanced as a match to the equipment that the Trust may explore as paths to the goals of the maritime operator providing the service. of full use and benefits on the waterfront of Plans for freight service at Lima Pier should Governors Island. Highlights include: also include adjacent upland space of an appropriate size and shape for the staging and Soissons Landing: Continue pedestrian ferry turning radius of trucks. The service will need service. Transfer vehicle and freight ferry service a “mainland” connection, such as Brooklyn or to Lima Pier.

4 Maritime Activation Plan for Governors Island Lima Pier: Reconstruct Lima Pier for use as establish a catch-and-release fishing station. designated “service entrance” to the Island, The landside space is most easily adapted to such as receiving trucks and freight, and this use, and while the in water conditions are discharging trash. also agreeable, this side of the Island is the most exposed to severe weather. Yankee Pier: Explore ways to maximize Yankee Pier for ferry services, including installing Tango Pier: Should significant investment additional ferry loading barges and passenger become possible, rebuilding Tango Pier as a information signage. marina’s central services dock with a dinghy dock and nearby moorings would offer a great Pier 101: Maintain educational and recreational benefit to open the Island to visiting recreational floating docks on the west side. Consider boaters who could arrive by their own boat. an additional floating dock on the east side dedicated to small motor boat landings. Travel Lift Pier: Not in use since the Coast Guard days, a travel lift enables small boats to be taken Pier 102: Emphasize educational and historic ashore for maintenance. The opportunity to ship use of the barge at Pier 102. Consider make boat work an integral part of education and permanently relocating ferry service from Pier community programs on the Island would involve 102 to Yankee Pier. a partner taking on the operations of this pier.

Buttermilk Beach: Install a basic gate and Western Shore: If a harbor education steps. Provide direct access to the beach center were to be proposed in this Western for structured educational and recreational Development Zone, significant investment would programs that touch or test the water. be needed to build a water access point here.

Picnic Point: One of several places the Trust As Governors Island matures as a civic could consider building a get-down for visitors destination and asset, Waterfront Alliance to touch the water. While the in-water conditions hopes that these possibilities for recreation, nearby make this possible, it would require education, transportation, jobs, and, perhaps substantial related rebuilding inland as well. most critically, for answering the existential dilemma posed by climate change, will be of Castle Williams Corner: Another of several use to the Trust in creatively moving forward. We places the Trust could consider building a get- look to Governors Island as our unofficial harbor down for visitors to touch the water, and also capital—a vibrant model of waterfront success.

Governors Island is an urban oasis in New York Harbor with a great deal of untapped potential.

Maritime Activation Plan for Governors Island 5 Island History and Systems: Past, Present, and Future

Historical influences, natural conditions, 2002, the New York State Legislature formally and regulatory framework are all part of the recognized Governors Island as the birthplace of larger ecosystem of factors that any plans for the State of New York. Governors Island should consider. From its military beginnings as a colonial HISTORY OF GOVERNORS ISLAND militia in 1755, Governors Island became a major When the Dutch joined the native Lenape people headquarters for the U.S. Army and Coast Guard, in this bountiful estuary in 1624, they spent that making it one of the longest continually operated first year on what was to become Governors military installations in the country until its Island, seeing the surrounding waterways as closure in 1996. During the historic designation protection. This settlement soon moved to the process, the Landmarks Preservation Commission recognized that this lengthy military presence on the Island contributed to the There is a novelty to Governors Island for New remarkable integrity of its historic character.1 Yorkers. It’s exciting to visit and also to imagine. The historic buildings are still intact and some The U.S. Army built the structures now forming the historic district, and added landfill to expand are in use, but there remains a lot that isn’t the Island. The Coast Guard built much of the activated and that hasn’t been transformed. maritime infrastructure in use today. In its busiest Coast Guard days, the Island hosted a New York State Senator Brian Kavanagh uniformed residential community of more than 3,000 and a commuting population of 1,500. island that would be named Manhattan, and When the Coast Guard announced the closure in 1699 with the colony under English control, of its base there, Governors Island, perhaps for Governors Island received its current name, being the first time, entered the public’s imagination reserved for the “benefit and accommodation and became the subject of widespread of His Majesty’s Governors.” New York Harbor discussion and a grand visioning for what the remained occupied by the British during the space could and should become. American Revolution, but with independence, the new United States seized on the strategic value Negotiations following the departure of the Coast of the islands in the port of New York. In fact, in Guard led to the affirmation of a designated

Governors Island has a rich history. It’s designated Historic District contains more than 50 structures related to two centuries of the military history of the nation.

1 http://home2.nyc.gov/html/lpc/ downloads/pdf/reports/GOVERNORS_ ISLAND_-_HISTORIC_DISTRICT.pdf

6 Maritime Activation Plan for Governors Island Historic District in the north of the Island, with Fort Jay and Castle Williams and their connecting acreage further designated the Governors The Governors Island Corporation, doing business Island National Monument. In January of 2003, as The Trust for Governors Island, is the 501(c)3 Governors Island was sold for a nominal sum to the State and City of New York, with the provision nonprofit organization created by the City of New that the Island be used for public benefit York and charged with the planning, redevelopment, according to a deed restriction calling for public and ongoing operations of 150 acres of Governors space, educational use, and cultural, nonprofit and commercial facilities. The 22 acres that Island. The Trust’s mission is to transform Governors comprise Governors Island National Monument Island into a vibrant resource for New York City, would be administered by the National Park making the Island a destination with extraordinary Service and the bulk of the Island, 150 acres in total, would be administered by a joint City-State public open space, as well as educational, not-for- agency, the Governors Island Preservation and profit and commercial facilities. Education Corporation (GIPEC).

Governors Island began to open its doors to visitors, first with guided tours by the National made hills rising 25 to 70 feet, and five miles Park Service in the summer of 2003, and then, of meandering cycleways. Two designated in 2005, to the broader public. In April 2010, areas on the south-east and north-west of the City assumed sole control of the Island’s the Island would be left for new development development through the newly established of educational, commercial, hospitality, and Trust for Governors Island (The Trust), and cultural facilities in order to generate revenue through a design competition, settled on a to expand public access and be financially master development plan by urban design self-sustaining. Along the 2.2 mile perimeter and landscape architecture firm West 8 from of the Island would run a wide promenade for Rotterdam, Netherlands. The historic northern bicyclists and pedestrians. end, with Castle Williams, Fort Jay, and more than 50 historic buildings, would remain MARITIME CONDITIONS OF structurally unchanged. The majority of the GOVERNORS ISLAND southern acres would be reimagined and rebuilt Originally about 70 acres in size, Governors as a climate-resilient park offering play areas Island was expanded by landfill to its present and hammocks, natural turf ball fields, man- size of 172 acres. Landfilling is common in New

To realize the West 8 plan, Coast Guard residential buildings had to be demolished, with portions of the rubble reused in park elements such as the Hills and ballfields.

Maritime Activation Plan for Governors Island 7 New park construction (foreground) complements and protects the Island’s Historic District (background).

York City history, but famously, the extended most narrow, on the northwest and east coasts, southern portion of the Island includes the where wakes from vessel traffic add to the rubble dug out to build the Lexington Avenue complex water conditions. line of the New York City subway system. Following usual development patterns, the INFRASTRUCTURE, RESILIENCY, most historic structures on the Island hold AND FUTURE DEVELOPMENT ON When you land the high ground, and the landfilled area was, GOVERNORS ISLAND critically, in the flood zone. But park construction Because much of the waterfront and inland at Governors thoughtfully addressed this, and raised infrastructure on Governors Island dates Island, you really elevations of the newly landscaped parkland in from the Coast Guard’s administration, or ways that also help add flood protection to the even further back, the initial phase of the feel like you’re historic district. City’s capital construction program included on an island; the not only park and open space development, city feels at once Governors Island sits at the core of a dynamic but important stabilization and upgrades to estuary, where the rivers meet the sea. Tidal existing infrastructure. An investment of $300 remote, yet wholly levels cause the water height to regularly vary million in capital improvements brought the open to you. five to six feet, currents change their course restoration of potable water through a new multiple times a day, and can run at the relatively 12-inch main, more than two miles of seawall Erik Baard, HarborLAB strong speed of three knots. The estuary’s salt replaced or repaired, upgraded stormwater water adds a naturally corrosive factor, and outfalls, and realigned stormwater drainage weather predominantly comes from the west, systems. Vessel berths at Soissons Landing where an open stretch of harbor water provides and the Battery Maritime Building were fetch, or building space, for winds and waves to revitalized, increasing service and safety for pick up speed and force. With Manhattan about vehicles and passengers. New equipment at 800 yards to the northwest, and Brooklyn about Soissons Landing, including electrical and 400 yards to the east, these coasts of the Island mechanical systems, was complemented by are somewhat more protected from weather. But new signage, landscaping, and passenger that constriction of land masses also contribute amenities in the surrounding area. Similarly, to the swiftness and complexity of the currents. at the Battery Maritime Building, a new lift The waterways surrounding Governors Island bridge for boarding boats with increased see hundreds of vessels a day, from large loading capacity was added to Slip 7, with commercial bulk carriers to cruise ships to plans for additional electrical and mechanical ferries to sailboats to kayaks. These ships pass improvements. Anticipating a variety of closest to the Island where the waterways are potential uses by tenants, fiber optic lines

8 Maritime Activation Plan for Governors Island and new electrical feeders and distribution remains to be done. Continued investment systems were installed, bringing a robust in the Island’s infrastructure, particularly its power supply and high-speed communication waterfront infrastructure, will be critical for capability to the Island. it to become a self-sustaining entity serving diverse uses year-round. To that end, in 2018 Just as the Island’s infrastructure upgrades took the Trust began a rezoning initiative for the into account a variety of future commercial, South Island and its development zones set recreational, and educational uses by tenants aside in the master plan. Rezoning is necessary and the public, so too did the 2010 Park and because original codes were residential, for Public Space Master Plan, anticipating the military barracks, but now permanent housing effects of climate change and designing with is prohibited on the Island. The size and resiliency in mind. West 8 purposefully created a type of development allowed in the future resilient park that could withstand the long term build-out of Governors Island will be guided rising of sea levels and the increasing frequency by the type of commercial zoning identified of violent storms. The plan lifted many parts of the Island out of the flood zone, transforming it through a new topography and the addition of a The challenge is balancing development variety of wind- and flood-resistant tree species. zone uses that can make Governors Island

At present, the Island has three year-round economically self-sustaining with those that tenants: the offices of the Trust for Governors that are complementary to the park and that do Island, the Urban Assembly New York Harbor not limit diverse public uses. If the development School, a public high school incorporating stewardship in its curricula, including the zones are the key to making the island self- Harbor School-affiliated Billion Oyster Project, sustaining, how do you do development in a and the Lower Manhattan Cultural Council’s Arts Center, an artist studio residency program. way that is complementary to the park, but still Seasonal tenants greatly expand the Island’s attractive to those developers? programming, and include The Downtown Carl Weisbrod, The Trust for Governors Island Boathouse for kayaking, Earth Matter and GrowNYC for composting and farming, New York City Audubon for nature programs, and through this process. The Trust seeks to extend the Children’s Museum of the Arts’ Summer zoning that allows for uses compliant with the Arts Colony, among many others2. National Park Island’s deed, and to create a proactive public Service continues to offer tours and improve planning framework for future development. access to the historic monuments. Two outdoor The buildable areas being rezoned line the restaurant concessions have opened in recent waterfront on both the east and west sides of years on the waterfront near Soissons Landing, the Island, and rezoning will set parameters in addition to food trucks and tents that service for projects along these waterfronts, though other parts of the Island seasonally. the Trust retains the final decision on what ultimately is built. There is great potential for even more activity on the Island, and on the waterfront. The two For additional details about the history of development zones totaling 33 acres are open Governors Island, visit this website: govisland. to entrepreneurial and visionary proposals, and com/history adaptive reuse proposals are also welcomed for the legacy buildings in the historic district. The Island’s first commercial tenant in a historic building, QC Terme spa, is planning to open in 2021, and Spaceworks is in predevelopment to turn another historic structure into a set of studios, galleries, and performance space. Though much has been accomplished, work 2 https://govisland.com/highlights

Maritime Activation Plan for Governors Island 9 Waterfront Programming and Management Recommendations

GETTING THERE: IMPROVING FERRY During the 2018 season, ferry service to SERVICE TO MEET GROWING DEMAND Governors Island was provided through a Ferry services to Governors Island have number of initiatives: expanded since the Island opened to the public. The Trust inherited a legacy system that > From lower Manhattan’s Battery Maritime had been highly customized by the U.S. Coast Building to Governors Island Soissons Landing, Guard and limited to Manhattan. Waterfront with the Coursen, now owned by the Trust Alliance has long advocated for the benefits and managed directly through the Trust’s of increased ferry services across the city, and marine subcontractor, HMS Global Maritime, elected leaders have invested in ferry service to Inc. Though other vessels may run this route, Governors Island through subsidies for weekend Coursen is the only regular ferry that provides Brooklyn service and NYC Ferry. Continually vehicle access, and she is also the highest improving the user experience for ferry passenger capacity ferry of all those that service passengers has been a driving goal across large the Island. sections of the island’s waterfront, with various ferry operators utilizing nearly all the available > From Brooklyn’s Pier 6 in Brooklyn Bridge Park to docks to maximize service for the traveling Yankee Pier on Governors Island. This passenger public. This has, in part, limited the capacity for only, weekend-only route has benefitted from a the Island’s visitors to experience the waterfront subsidy to increase service on peak weekends. It in different ways, resulting in fewer berths for is managed by the Trust through vessel charter side-loading vessels such as tour and charter with NY Waterway. boats, or historic ships that could provide programming. As operations grow towards 365 > From the Bronx, Queens, Brooklyn, and days a year access, demand for passenger ferry Manhattan, NYC Ferry’s connecting routes service is poised to grow substantially, and the allow passengers to transfer to a ferry to Trust is wisely seeking to increase ferry capacity Governors Island, originally arriving at Pier 102, while also expanding operational flexibility. but also utilizing Yankee Pier during 2018. As Yankee Pier provides a significant opportunity a City service, the Trust incurs no additional to increase passenger ferry service, which could expense for the greatly increased accessibility allow for other educational and recreational through NYC Ferry, but the Trust also has a uses at other berthing sites. reduced role in how this ferry service to the Island is managed. In 2018, NYC Ferry service to In the early years of public access to the island, Governors Island responded to growing pains pre-existing conditions introduced substantial with infrastructure, route design and passenger constraints for rationalizing ferry management. capacity by modifying schedules and route Ferry Lt. Samuel S. Coursen, in use since Coast particulars as the season progressed. Guard days and the largest serving the Island, has a unique vessel design that corresponds FERRY SERVICE RECOMMENDATIONS: to a unique landing design. This design is not Expand Capacity: Currently, weekends average widely applicable in or transferable to other more than 10,000 ferry passengers per day, and locations. In addition, Coursen, built in 1956, is that number may provide a working model for nearing the end of its operational life, and the planning full ferry service seven days a week. decision of how to continue service with this In 2018, “headway,” or the wait time between or another design must be examined. With the ferries, typically ranged from a half hour to an exception of Soissons Landing, other piers hour, and the only weekday ferry service was on the Island were not built for high-volume from the Battery Maritime Building to Soissons passenger service at the outset, and they lack Landing. It will be essential to the success of the typical width and entrance-exit separations. Island’s development zones, and to the goal of These conditions also present opportunities for year-round use of the facilities, for there to be rethinking ferry service. more weekday service, and continually improved

10 Maritime Activation Plan for Governors Island Four out of the eight historic water access points and docks are in use on Governors Island. Soissons Landing currently handles both passengers and freight.

weekend service. There is time and space open with strong management practices, aided by at the docks for ferry service to be increased community advocacy and support from elected by adding more boats to serve the existing leaders, to maximize ferry service. routes and landings. But while more boats more often would serve more people, this would be a Mid to Long Term, Consolidate Ferry significant equipment and personnel investment Landing Sites through Continued Dock by the ferry operator or the Trust, who would Infrastructure Investment: We recommend require associated increases in budget or the Trust consider keeping the traditional Battery subsidy, or the establishment of market rate to Soissons route, and in the long term, assign all routes. other ferry routes to Yankee Pier. This allows for significant increases in capacity, and having two Short Term, Continue to Streamline passenger ferry areas available gives the benefit Contracted Ferry Operations: As the above of redundancy. Not planning regularly scheduled details illuminate, a number of behind the ferry service at Pier 102 will allow its expanded scenes variations to ferry service contribute to use by educational, historic, and tour boats. Pier challenges in fully integrating transportation 102 is a comparatively smaller berthing area, well to the Island. There are different price points suited to match the comparatively less frequent between Trust-operated ferries and NYC Ferry. operations of culturally programmed vessels. The separate entities make it more challenging to manage maintenance needs and liability concerns at the ferry docks. Technically, the Taking the boat to Governors Island is a various ferry operators are competitors in the challenge logistically, but it is also the Island’s same business, further complicating how greatest asset. It’s what makes the experience of resources to expand ferry service might be shared or maximized. As a public park, it’s coming to Governors Island unique. invaluable to keep transportation costs low. Elizabeth Velez and Meredith Johnson, The Trust for Governors Island With additional operations revenue generated by further development on the Island, ferry services could be expanded and increased. But Retaining the Battery-to-Soissons route enables in the short term and with currently available ferry Coursen to continue to serve the Island resources, it would be prohibitive for the Trust in the near future, preserving its advantages to fund its own fully expanded ferry system. of carrying trucks and service vehicles, and In the meantime, the Trust can continue high passenger capacity. Coursen’s capacity is

Maritime Activation Plan for Governors Island 11 1,200 passengers, while outside of the Staten its length, similar to the NY Waterway terminal Island Ferry, the majority of vessels in use at Pier 81, serving vessels with capacity of up to can carry about 400 passengers. Soissons 399. A full marine engineering analysis should Landing is currently the only Governors Island complement this initiative; this arrangement ferry berth that can regularly handle such high may be most feasible on the outer length of passenger volume. This does not preclude the pier; it may require removing dolphins in other vessels from using the same docks, and the slip along the inside length of the pier, and Soissons Landing is able to receive work boats may even include the rebuilding of the now and barges, a flexibility that adds value to the collapsed western arm of Yankee Pier. The Island’s overall operations. The lower Manhattan pier already has electricity to supply future terminal at the Battery Maritime Building LED signage that could direct passengers is in close proximity to tourist attractions, and identify individual boarding points for government offices, the Staten Island Ferry, different destinations. Though Yankee Pier is and multiple subway and bus lines, making the somewhat narrow for lining up ferry queues Battery-to-Soissons route valuable to a number amidst exiting passengers, it is quite long, and of constituencies. planning can organize the pier successfully for crowds, as large capacity special events have The West Midtown Centralizing ferry routes from all other demonstrated. Depending on ferry headway Ferry Terminal is originating points to land at Yankee Pier, with and capacity, upland queueing may not be located at Piers 78 associated infrastructure investment, would necessary, though an information or amenity streamline service and reduce confusion for center adjacent to the pier is always desirable. and 79 in Hudson visitors. We recommend the Trust consider River Park, and adding additional ferry berths at Yankee Pier, Engage in Service Analysis: A full economic may be a model possibly by replacing the existing arrangement study could shed important light on what ferry for expanding ferry with a long, narrow floating dock parallel to the expansion might be supported by market berths at Yankee Pier. pier, with multiple perpendicular berths along opportunities, where ferry expansion would only be successful through subsidy, and what ferry services the Trust should prioritize within its own budget. Staten Islanders suggest that the Governors Island Ferry Coursen’s schedule be offset from When the Island first opened to the public, ferry service was only from lower Manhattan on the the half hour or hour by five minutes, in order to same route used in Coast Guard days. One of the facilitate an easy transfer from the Staten Island earliest additional weekend-only ferry services Ferry to the Governors Island ferry. For example, to be added was a direct link from Brooklyn’s Pier 6 in Brooklyn Bridge Park to Yankee Pier, change the Coursen’s 10am departure from the operated by the Trust through charter with NY Battery to a 10:05 departure, so those on the 9:30 Waterway. As East River Ferry germinated NYC ferry coming from Staten Island (approximately a Ferry, access to Governors Island increased. As NYC Ferry continues to expand, an analysis 25 minute ride) have time to make the transfer. should be completed to understand how the services at Yankee Pier could be integrated and arrive at the best route commitments for future ferry operations. With established NY Waterway beyond the waterborne transit connections terminals stretching up the Hudson, the Trust already provided by NYC Ferry. Such an could explore rerouting its charter ferry services arrangement would enable a faster, direct trip to provide a direct connection from the west side to the Island from more distant communities, of Manhattan to Governors Island, if other parts but would likely require an operating subsidy of the system can maintain sufficient capacity provided by local government leaders from for Brooklyn. New York City or New Jersey, or possibly from private fundraising in partnership with The In the long term, the Trust’s maritime personnel Friends of Governors Island. Because of the could work with industry partners to understand potential popularity of direct access at peak the optimal balance of subsidy, concessionaire times, capacity and headway will also have to support, and ticket fees that would enable the be carefully considered to avoid overcrowding. development of expanded ferry service. Possible participants include ferry operators (who ENJOYING ISLAND LIFE: PROVIDING currently include HMS, NY Waterway, and NYC DIVERSE RECREATIONAL AND Ferry), government agencies (including New York EDUCATIONAL OPPORTUNITIES City Economic Development Corporation and There is increasing demand for expanding New York City Department of Transportation), access for recreational boating and direct a potential future development zone contact with the water for education and concessionaire (still undetermined), and marine recreation at public and redeveloped contractors (an incomplete list of potential waterfronts. Across the region, community input respondents to a request for bids includes HMS at waterfront visioning sessions has called for Global Maritime, Inc., Millers Launch, Inc., and boat launches, docks, beaches, and water touch McAllister Towing and Transportation Co., Inc.). points. For example:

Increase Access and Equity: There is a > Community advisory groups to the U.S. misperception that the Island serves primarily Environmental Protection Agency for the Manhattanites and Brooklyn residents. superfund sites in Newtown Creek and To expand outreach into other boroughs, Gowanus Canal are requesting human- and neighbors in New Jersey as well, we powered boating launches in those restoration recommend the Trust explore long term plans, and on Newtown Creek, low points opportunities to work with a ferry operator to to touch the water. Community meetings in provide limited (once a month) weekend ferry Queens with The Port Authority of New York routes that provide a direct connection to the & New Jersey regarding Flushing Bay and Island alternating among Queens, the Bronx, Creek advocate to increase human-powered Staten Island, Hoboken, and/or Jersey City, boating and increase water touch points.

Maritime Activation Plan for Governors Island 13 You can ‘build your Staten Island’s North Shore community seeks Sailing in Inwood joining long-standing to be recognized as a Maritime Education organizations such as Manhattan Yacht Club own adventure’ on and Recreation Corridor with increased and the boaters of City Island. Governors Island. opportunities to touch the water for marine science. Manhattan’s Community Board 1 has > Opportunities to access the water at the Merritt Birnbaum, The Friends passed at least three resolutions requesting shoreline without necessarily getting in a boat of Governors Island the City create access to the beach under the are also in great demand. Crowds gather at the Brooklyn Bridge on the Manhattan side. relatively new beaches in Brooklyn Bridge Park and Hoboken, while people who fish have always > In preparing their State of the Estuary made their own way to shore in places along the Report, the New York–New Jersey Harbor & Harlem and Hudson Rivers. The Billion Oyster Estuary Program counted more than 100,000 project has grown from 12 participating schools human-powered boaters on the water in 2017. in 2014 to 70 participating in 2018, with more than Approximately 30 boathouses have been 6,000 students having touched the water as they organized across the harbor, and new boat monitor oysters’ growth and water quality. storage areas and new boathouses have opened The Bay Area Discovery within the past few years in Hoboken, Brooklyn In addition to people flocking back to the water, Museum, located Bridge Park, and Jamaica Bay. marine and bird life have begun to repopulate in a national park in our estuary, adding potential for wildlife based > Affordable marinas are in high demand, with activities to enhance programming on Governors Sausalito, California waiting lists at NYC Parks’ marinas, and sold- Island. Blackfish and stripe bass follow baitfish combines maritime out slips at Liberty Landing Marina. At the into coves among submerged rocks at the history, architecture, same time, community sailing has flourished, Island’s shore, oyster restoration encourages culture and ecology with a recently created fleets at One°15 invertebrates to gather, and common terns, a for an educational and Brooklyn Marina in Brooklyn Bridge Park and coastal bird species rarely found in New York City, entertaining experience. new moorings for Hudson River Community have been visiting the Island. The Harbor School and Billion Oyster Project, providing marine education and restoration, both utilize floating docks at Pier 101.

RECREATION AND EDUCATION Long Term, Increase Water Touch Points: RECOMMENDATIONS: We recommend developing an additional water Short Term, Maximize Existing Maritime touch point for activities, such as a small cove, Activation Sites: Many interviewees or a stepped get-down, or a pebble beach, where recognized the value of an interactive people can touch the water, if necessary with component to any waterfront programming, an outer rock wall or in-water fence that would and particularly, the value of opportunities to touch the water. As a public space in the Immersive education is the most effective way heart of New York Harbor, Governors Island is a natural hub for public waterfront recreation for students to learn; Governors Island is one of and education. Although there are challenges the few places where a waterfront lab is possible related to in-water conditions and passing vessel traffic, there are still safe opportunities for learning about marine science, resiliency, and to offer hands-on water experiences for visitors. the environment.

New York State Assembly Member Yuh-Line Niou > Continue the successful public kayak programming in its current location in the cove at Pier 101, with continued supervision by an prevent exposure to open waterways. While there experienced local boathouse. Also continue are legitimate concerns that the currents around to allow this dock to provide public access as the Island and its proximity to heavily used a NYC Water Trail Landing when the Island is ship channels complicate calls for recreational open use and unencumbered shorelines, Waterfront Alliance has direct experience operating in-water > Create supervised access to the natural beach programming for more than a decade through open at low tide on Buttermilk Channel. This the City of Water Day festival, and understands could be provided with minimal step-down these challenges firsthand. Safe access can infrastructure and an educator/attendant nonetheless be provided through diligent on station whenever the gate is open, for design and management. Potential sites exist additional safety. There, Island visitors could all around the Island’s perimeter, but would participate in programs to test the water, seine fit best within overall activation by being sited for marine life, or make a short, guided kayak on the southern or western shore. Creating a voyage to or from Pier 101. cove in any place would involve breaking inland

Maritime Activation Plan for Governors Island 15 New York’s waterways have become increasingly popular for kayakers and waterfront communities are calling for more water touch-points, as in this photo of Pier 101 at Governors Island.

from the seawall, as was imagined in early park Recreational motorboaters and sailors are very designs for the southern portion of the Island. interested in visiting the Island, and typically The exact location may be better facilitated by bring economic opportunity along with them. upland programming connections or funding While the Island’s Eastern Development Zone allocations for areas of work on the seawall. remains open to any number of possibilities, For example, the bend in the Island’s western its proximity to established pier and boating shore near Castle Williams occurs near a natural areas on Buttermilk Channel offers some rocky area offshore that would enhance marine unique opportunities for small boat access. life connections, but determining financial A development zone concession to operate a and permitting feasibility in conjunction with mooring field, with a town dock in the water jurisdiction requires further internal examination on Buttermilk Channel, and necessary upland from the Trust. space in the development zone, would expand access to the Island for visiting recreational boaters, and possibly be proposed medium The joy of urban paddling is something many to long term. A marina in the vicinity of Tango New Yorkers don’t know. You experience the Pier is also technically possible, long term, but unexpected when you’re on the water in a kayak. would require significant investment in wave attenuation infrastructure. A significant revenue Erik Baard, HarborLAB source would be necessary to establish a marina, also likely financed, managed, and operated by a Invite More Boating: At Pier 101, the larger concessionaire, similar to the arrangement that floating dock is already in use by numerous led to the development of Brooklyn Bridge Park’s vessels serving Harbor School and Billion marina. The option for a restaurant to be included Oyster Project, as well as holding oyster grow in the concession for a marina or mooring field out cages underneath. The smaller Pier 101 float may be necessary for its economic survival, as is is intended and designed for use by human- in a number of Hudson River facilities such as La powered boaters. Additional floating docks Marina and Liberty Landing Marina. are needed to meet the growing interest and activation possibilities for small boat access at Island partners and tenants, Island staff, special Governors Island. event organizers, and a small boat launch

16 Maritime Activation Plan for Governors Island service operator have all expressed interest in such as boat building and technical skills adding “touch-and-go” temporary berthing education. These types of activities are space at the Island, for pick-up and drop-off exciting to watch as well as participate in, uses, which usually dock for brief time periods. so if the investments were made, they could In the medium term, installing an additional significantly contribute to the dynamism of the small floating dock on the opposite side of Pier Island’s programming. As an added benefit, a 101 or at Yankee Pier could serve small boat working travel lift pier would also enable low access for “touch-and-go”. A long term solution cost maintenance of any small utility boats could be integrated with a town dock or marina that may serve the Island. The Trust’s maritime facility described below, in partnership with a programming partners, such as Harbor School, private operator or concessionaire. Island Oyster, and Boatride NYC are also Governors Island eager for small boat access, maintenance, and has the potential to Legacy Coast Guard infrastructure includes haul-out capability for the winter, and could be develop programming a travel lift pier, for taking small boats out invited to take a partnership role in the build- around a restored of or into the water, on the eastern shore. out and management of a travel lift. travel lift, for working Though travel lifts serve a significant maritime on small boats ashore, necessity, there are precious few available in or Expand Educational Offerings: The Trust and near New York Harbor. Restoring the Governors its programming partners have continually though significant Island travel lift pier is a capital investment expanded and improved activities presented on infrastructure which would need to be matched by related the Island. But further programming will require and equipment equipment and a boathouse ashore, but it further investment to activate underutilized investments would be would enable uniquely creative programming parts of the waterfront for things like additional needed. ecological explorations and tall ship visits. > Create a Harbor Education Center: In the Even though South Street Seaport Museum is long term, a harbor education center with nearby, the berths in the historic Seaport District programming for children and adults alike would are frequently all already in use. At Governors offer significant potential public value. Topics Island, the Pier 101 cove is frequently at full might include citizen-science data collection, capacity serving the Harbor School’s technical conservation, maritime history, Sea Scouts, programs, and nearby buildings may host a oyster restoration, or boat-building. An education kayak boathouse, but are not suited for a large center could be proposed in cooperation with a educational venue. business or university in one of the development zones, or through potential partnership with > Create a Tall Ship Dock: If ferry service were nonprofit educational institutions, and utilize a centralized at Yankee Pier per the above newly built get-down as a marine science access recommendations, Pier 102 could be promoted point for teachers and classes to engage in as a tall ship dock, and programmed with marine environmental education. heritage activities in conjunction with National Park Service (NPS). Public kayaking and Harbor MOVING THE GOODS: FREIGHT SERVICE School/Billion Oyster Project activities should DEMANDS NEW INFRASTRUCTURE continue at the adjacent Pier 101, establishing The movement of all freight to and from a vibrant educational and recreational district Governors Island by truck through the Battery centered around Piers 101 and 102. The Pier Maritime Building via ferry to Soissons 102 dock does not need to be redesigned to Landing limits freight capacity and adversely accommodate the typical tall ships of our eastern impacts service for passengers at these docks. The new Oneº15 seaboard, and additional supports for ships, such Reconstruction of Lima Pier as the “service Brooklyn Marina as shore power, could be added when feasible entrance” for the Island is widely supported features more than at a later time. The New York City Economic by Trust staff, maritime experts, and local park 100 slips plus a sailing Development Corporation (NYCEDC) and its users. This would also facilitate Lima Pier’s use school and community operating partner NYC Ferry, as well as NPS, for delivery of construction material for future boating program. would be key partners in effecting this transition. development phases on the Island. Marine With increased activity and future development on the Island, this report recommends Lima Pier be repaired for use as the designated “service entrance” to the Island.

builders are professionally hesitant to estimate flat surface, could involve installing heavy-load, costs without detailed supporting information, tide-adjustable ramp and frame infrastructure including a survey of existing conditions. It is on the pier. This may have a nominal presence challenging to accurately estimate average in sight lines to the view of the water near the pier repair costs because conditions for piers pier, but it would also enable more flexibility in in need of rehabilitation vary widely. For broad selecting companies for moving freight. comparison, Hudson River Park’s 2016 financial plan4 indicates that $21 million rebuilt basic pier access as well as the firehouse on Pier There are a variety options for how to build 53. As a benchmark for new pier construction, freight capacity and integrate freight NYCEDC’s initial projections5 for a new ferry pier infrastructure. You can build a pier to match a installation at Clason Point in Soundview, Bronx, the largest new ferry infrastructure built as part boat, or a boat to match a pier. of the launch of NYC Ferry, were $9.3 million for Tim Loesch, HMS Global Maritime a 5,000 square foot pier. (This estimate includes passenger amenities.) > Vessel-based truck transfer equipment: If the FREIGHT SERVICE RECOMMENDATIONS: Trust desires to have the ramp infrastructure Establish a New Service Entrance: While we for trucks on the barge or ship itself, this would describe scenarios here, the final decision for require a more customized vessel. The Trust designing new freight infrastructure at Lima would either have to build one itself, or commit to Pier would be best advanced as a match to the a longer contract for it to be economically viable maritime operator who would be providing the for the contractor to invest in a customized service. If a regularly scheduled service is to be barge or ship with the transfer capability aboard. established, we recommend the Trust contract with that freight operator first, then work with > Barge directly to shore: A number of New York 4 https://hudsonriverpark.org/assets/ content/general/HRPT_Fiscal_ that organization to plan any new or repaired Harbor-based marine contractors, such as Year_2016_Financing_Plan_.pdf pier infrastructure, which may include: Miller’s Launch, have creatively used barges to serve freight needs, enabling a barge system to 5 https://www.nycedc.com/sites/ default/files/filemanager/ Pier-based truck transfer equipment: Rebuilding > fully replace a pier. Significant benefits include Resources/Studies/2013_Citywide_ the pier to match common deck barges, where flexibility and ability to customize barge delivery Ferry_Study/Citywide_Ferry_ trucks might roll on and roll off a standardized when operated as a unified system, which Study_-_Final_Report.pdf

Maritime Activation Plan for Governors Island 19 would promote scalability in service and costs. adjacent to the pier as part of the freight zone, Each marine contractor has its own specialized needed for the queueing and turning radius equipment to move, place, and connect its barges of trucks. Even if the Island creates a freight to the shore according to the client’s needs. distribution hub elsewhere on its grounds, there will still be some need for truck staging > Palletized freight: If the Trust continues to allow and turning immediately adjacent to the pier. trucks to use Soissons Landing via ferry, then The nearby Eastern Development Zone may ships with a crane could deliver palletized cargo benefit from proximity to freight services, or small containers directly to Lima Pier, for as that might provide direct connections for Island-based trucks to distribute. deliveries and trash and eliminate the need for a middle carter. Thoughtful design could To estimate potential costs for these options, ensure that occasional nuisance concerns the Trust could project the quantity and in proximity to the freight zone, such as Consolidating the schedule of freight movements desired, provide odor, noise, and parked trucks, would be a survey of existing dock conditions, and minimized. If proposed, a marina or mooring movement of goods request bids from maritime companies on how field operation would be highly compatible at a purposefully they would fulfill the described freight need. alongside a pier for barges and freight, with designed space on both users having an innate understanding of the waterfront will be Pursue Wholistic Design for Essential on-water operations. essential for future Connectivity: The reconfiguration of Lima growth on Governors Pier for freight and construction services Secure a “Mainland” Connection: The Island. should include assigning upland areas reconfiguration of industrial waterfront uses Increasing opportunities to directly touch the water at Governors Island will require both infrastructure development and management policies that proactively support public access.”

in Brooklyn, including Red Hook Container MAXIMIZING MANAGEMENT: Terminal and South Brooklyn Marine Terminal, EVOLVING WATERFRONT EXPERTISE now operating under the same management, AND COORDINATION poses an immediate window of opportunity The Trust has utilized a combination of in- to secure operating agreements for points house staff and contractors to manage and of origin for freight service to Governors maintain the waterfront and waterfront services. Island. This arrangement could be a job- Whether the Trust continues to engage multiple creation opportunity for South Brooklyn contractors or merges those responsibilities residents in partnership with local leaders under the management of one maritime and community organizations. Brooklyn subcontractor, the key to success will be active Community Boards 6 and 7, Brooklyn Borough management and coordination by a Trust staffer President Eric Adams, and Council Member knowledgeable in the maritime field. Carlos Menchaca have all been strong proponents of industrial job retention and In 2018, maritime operations planning and creation in Red Hook and Sunset Park, as supervision was conducted by in-house staff, have community-based organizations such as with contractors performing maintenance, UPROSE and Red Hook Initiative. Southwest security, and vessel operations on the Brooklyn Industrial Development Corporation, waterfront. While operating with different a workforce development organization, could contractors for boat charter, vessel operations, also be a strong potential partner. and dock maintenance can introduce inefficiencies such as poor communication and Preserve Redundancy at Soissons Landing: budgeting gaps, it does allow organizational This berth is already able to accommodate flexibility in budgeting and eliminating poor some freight barges. Due to the high volume performers. On the other hand, unifying passenger traffic there, it is not recommended all marine operations under one major as a primary freight facility. But we advise contractor enables smoother coordination of retaining the possibility to receive freight barges communications and maintenance, and quicker and trucks at Soissons Landing for redundancy. response times to evolving concerns.

Maritime Activation Plan for Governors Island 21 MANAGEMENT RECOMMENDATIONS: A full-service maritime department, such Continue Use of Contract Services: We as those found in ferry and tug companies, recommend that the Trust continue to would include in-house captains, engineers, contract with marine services companies for a dispatcher, and human resources staff with vessels and their manning, dock maintenance, expertise to manage the differences in worker and future freight services. The specific tasks benefits mandated for maritime labor under of dock and boat maintenance, infrastructure the federal Jones Act. and crew certification, cargo freight handling, and marine regulatory management are New internal maritime personnel would be distinct and require targeted expertise, with charged with responsibility for coordinating all regulations and technology continually marine services and maintenance. The best evolving in the industry. By contracting out maritime managers have operations experience in for these services, the Trust is able to rely their background, such as a barge freight manager on the marine contractor for the specialist who earlier captained a tug boat. However, it skills and necessary industry updates to is unlikely that a single candidate would have properly operate docks and ferries. Other local direct experience with the full range of potential waterfront parks typically contract out for waterfront uses at Governors Island: ferries, barge marine services. freight, kayaking, historic ship programs, and dock building experience. The key characteristics Match Long Term Needs to Long Term for the new position(s) would be experience that Contracts: The Trust’s maritime maintenance enables a contextual understanding of each of and infrastructure contractors are challenged these fields, maritime management experience by the current pattern of relatively short contract to understand the contractual side of operations, periods, and a relatively short maintenance and enough public service experience to do this season, a window of the few months when the work in a public park. Island is closed to the public. Initially, the Trust’s maritime staff will have to be creative to bring The Trust will have to balance this staff efficiencies to waterfront maintenance. As the growth with the capacity of work needed on Island moves to 365 days a year access, there the waterfront, but will also have to invest will be no off season, and maintenance plans in maritime staff to be able to maximize the must also evolve to meet that goal. Buy-in from waterfront. One possible arrangement would contractors can be increased by establishing bring on a maritime director responsible for longer contracts and unifying projects under day-to-day supervision of contracts and larger contracts. If the contractor is expected maintenance, with the skills to serve as a to invest in highly customized equipment, a dockmaster or drive a small boat if needed, typical arrangement would consider a contract and tasked with growing maritime program of 20 years. Though this is the high end, longer opportunities, at a salary of about $85,000. contracts also allow retention of expert staff In the long term, a vice president for maritime who get to really know the site and can be operations who focuses on maximizing entrusted with the work. contracts, long term maintenance needs, logistics planning, and partner development, Engage Internal Maritime Specialists: with a salary of about $150,000, would be a Trust staff have effectively managed the step in support of full maritime activation of waterfront, expanded ferry services and the Island. The alumni associations of SUNY waterfront programming, and upgraded Maritime College and the U.S. Merchant Marine waterfront infrastructure. But to further utilize Academy are good networks for outreach the waterfront, we recommend adding one to for candidates, but a college degree is not two specialist maritime positions, in addition necessary for success in the maritime field, and to existing staff. Having one to two in-house specialty headhunter firms, such as Flagship maritime professionals, described below, would Management or Brooks Marine Group, or online enable the Trust to further maximize maritime trade publications such as workboat.com or operations without having to build out their passengervesseljobs.com could be helpful own full service marine operations department. resources in the candidate search process.

22 Maritime Activation Plan for Governors Island Explore Increasing Operational Flexibility in Manhattan or One°15 Brooklyn Marina at through In-House Utility Boat(s): While Brooklyn Bridge Park, would typically generate a we recommend ferry service remain under touch-and-go fee there. But the Trust could offer a contracted marine operator, there are reciprocal courtesy touch-and-go docking for opportunities for the Trust and its partners launches from those marinas as an option that and tenants to have direct control over some may eliminate fees. small boat access to facilitate their work and missions. There are times the ferry schedule If the utility boat is not used for hire, simpler introduces great inefficiencies for business Coast Guard and State regulations apply. While meetings or situations when VIPs require special it would be advisable to hire a staff member with transportation schedules, and relying on a ferry a captain’s license for extra safety, that license for very late night or early morning access for would not be mandatory for an owner-operated just a few staff is extremely costly. small boat not carrying paying passengers. If the Trust would like to establish or fund this service A utility boat would also require investments by offering it for a fee to partners, vendors, or Programming that in docking infrastructure, similar to those for tenants, it remains relatively inexpensive to further features direct contact inviting more recreational boating above, with a certify this small boat for hire, and the maritime with the water, such small floating dock, a gangway, and fendering staff described above would be capable of doing as this kayak tour bumper-like protection for boats at docks. so. In this commercial role, if the vessel carries six Recommended sites for this include the southern people or fewer, Coast Guard regulations for an at Brooklyn Bridge side of Pier 101 or Yankee Pier. To stop the utility “Uninspected Passenger Vessel” require a licensed Beach, has become boat at the opposite shore to drop off or pick captain at the helm, but relatively manageable increasingly popular up passengers, such as North Cove Marina regulatory obligations otherwise. across the region. Site Specific Analysis and Possibilities

Governors Island is a case study of the city’s underutilized waterfront…but also its potential to create balanced waterfront spaces where use of the waterfront drives the economy.

Michael Marrella, New York City Department of City Planning Soissons Landing

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

Primary pedestrian artery and sole Continued pedestrian ferry service for The Coursen, the Trust-owned Short Term: Addition of a new Trust- vehicular access point to Island park visitors, Island tenants, tourists, vehicular ferry built by the U.S. Army owned 400-passenger ferry in 2019, to via ferry service from Manhattan. and others. After transitioning in 1956 to serve this route, will need supplement service by Coursen, is in Currently, general Island deliveries vehicular ferry traffic to another to be rebuilt or retired at some point. progress. come by truck through Soissons Island pier, maintain infrastructure Rebuilding expense could be high Landing. Vehicle and pedestrian for vehicle access for transportation enough that a new ferry would be Medium Term: To transition service from traffic must be managed together in redundancy. cost effective. Coursen, build or contract for additional close quarters. ferries. Smaller ferries running more Year-round food and beverage Coursen has the highest capacity of frequently could maintain capacity while The Trust has upgraded docking concessions. any ferry currently serving the Island: reducing wait times. Establish a service infrastructure and equipment at more than 1,200 passengers. dock for trucks at another Island pier. Soissons Landing. The view of Manhattan from the Long Term: Redesign Soissons Landing Seasonal food and beverage restaurant area and its proximity to to enable a wider range of vessel types concessions such as Island Oyster, transportation make this a valuable to access this berth. Make the berths at Taco Vista, and vending machines site for entertainment concessions. Soissons compatible with the designs or carts. But the current setup does not of potential future berths at Yankee and support a year-round operation. Lima Piers for redundancy at all the Island’s transportation access points.

For food and beverage concessions, continue to upgrade infrastructure in the historic district and explore appropriate renovation of a nearby building to invite concession proposals for a year-round restaurant that can expand seasonally to the outdoor area.

Maritime Activation Plan for Governors Island 25 Pier 101

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

Two floating docks on the northern In addition to the existing educational The northern side of Pier 101 faces Short Term: Continue public kayak side of Pier 101 currently serve and recreational uses on the north a jetty and the Battery Tunnel programs supervised by experienced educational and recreational small side of the pier, plan a new, separate ventilation building, which creates a local boathouses and continue to provide boat activities. The larger of the two floating dock on the south side for safe cove appropriate for kayaking access as a NYC Water Trail landing when is maintained by the Harbor School small motorboat drop-off and pick- and educational uses. Keeping the Island is open to the public. and the Billion Oyster Project (BOP). up. These small boats are also known recreational and educational The other was designed as a NYC as “tenders” or “launches.” This option boating activity on this side of the Medium Term: Install a fender system, Water Trail dock for human-powered would allow on-call transportation pier and separate from small boat gangway, and floating dock on the boaters. outside the ferry schedule, providing transportation optimizes safety for all southern side of Pier 101 for touch-and- that tenants or visitors can procure activities. go berthing space for motorized small As the only existing floating docks their own small boat and perhaps pay boat access and transit uses for Trust at the Island that can accommodate a docking fee. The southern side of Pier 101 is one operational needs, tenants, and partners. small craft, tenants and visitors of two potential sites identified by sometimes ask to use them to access the Waterfront Alliance for a small Long Term: As the Island continues the Island by small boat, revealing a dock that offers “touch-and-go” developing spaces and tenants increase, growing need on the waterfront for berthing space for motorized small it is likely that this suggested drop-off additional dockage. boat access and transit uses. Though and pick-up floating dock will remain in the current number of these transits demand. In addition, Island visitors who is low, we expect requests for such are visiting recreational boaters would service to increase as the Island also seek a dinghy dock for small boat expands tenancy. The value of touch- access. Eventually, a small motorboat and-go is especially high for time floating dock at Pier 101 could be moved sensitive or sudden maintenance to become part of expanded small and operations needs, for emergency boat access elsewhere. Possibilities for management, for tenants who have that expansion include a public access high priority/high privacy customers town dock installed near Tango Pier or or guests, and for maximizing a mooring field/marina concession if productive time when working with proposed for the Eastern Development off-Island partners. This access would Zone. be a welcome amenity for future tenants, and its maintenance could be subsidized by charging a nominal fee to users, as many urban marinas do, for pick-ups and drop-offs.

26 Maritime Activation Plan for Governors Island Pier 102

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

Pier 102 is owned by the National Park Permanently relocate the NYC Ferry As built, Pier 102’s passenger vessel Short Term: In partnership with NPS, Service (NPS). It consists of a short, services to Yankee Pier and open Pier barge offers a variety of freeboard create a docking specifications brochure fixed pier with the large, floating 102 to priority use for educational and heights, a preferred arrangement for for Pier 102 and outreach materials for passenger vessel barge shown cultural programming. Specifically, hosting visiting vessels. The pier deck visiting ships to use the pier. Emphasizing above alongside. The fixed pier has program Pier 102 as a tall ship dock offers existing public signage and a weekday ship visits at the beginning educational signage for the public. A and encourage heritage activities nearby pavilion, further facilitating will help balance needs for ferry service, gated entry leads to the barge, which with the NPS. Continue to make the group educational programs on the if continued, which is greater on the is relatively well suited for docking pavilion and plaza area adjacent pier. Educationally oriented heritage weekends. historic ships or research vessels up to the pier available for activities in activities at Pier 102, together with to 120 feet in length, and can receive conjunction with ship visits. public kayaking and Harbor School/ Medium Term: Permanently transition bow-loading ferries on its outer end. BOP activities at adjacent Pier 101, ferry service to Yankee Pier, enabling Recently, a need for additional work The specific activities would vary naturally sets the stage for a vibrant unrestricted access for other vessels at on the barge pilings emerged, and with the mission of the visiting ship educational and recreational district Pier 102. Ensure that historic ships on the barge was temporarily closed for and the types of partners involved, centered around Piers 101 and 102. the National Register are made aware docking. and multiple activities could cluster of program partnership opportunities at together. For example, a ship can New York City’s multijurisdictional this National Park Service pier. Explore In the beginning of the 2018 season, be open for deck tours at the pier’s waterfront and the commercial shoreside enhancements to utilities NYC Ferry provided direct ferry barge, while the ship’s or partner’s monetizing of City piers has given and the pavilion to support increased service from Manhattan and Brooklyn marine science activities are offered New York Harbor a reputation programmatic diversity and numbers to Pier 102, with connections making in the pavilion, while a physical for being an expensive port with of participants, such as shore power for it possible to access the Island from science or navigation activity is burdensome requirements. For boats and classroom style seating in the Queens and the Bronx. Due to the offered on the plaza, while groups educational and research vessels, pavilion. See the Yankee Pier section for repair needs described above, later meet a NPS ranger for tours of the typically operated by nonprofits, this related recommendations at that site. in the 2018 season, NYC Ferry was Island’s monuments. creates a prohibitive atmosphere rerouted to Yankee Pier. for visiting the City to offer marine Long Term: The shoreline south of Pier programs. It will take outreach, 102 is one of several places the Island support, and marketing for Pier 102 could build a get-down or beach for to overcome this trend and begin to visitors to touch the water. This area fulfill the potential of a tall ship dock. experiences strong currents, but could be well integrated with supervised programming and is a good match for the proposed education district.

Similar educational opportunities are present at the Castle Williams Corner. See below.

Maritime Activation Plan for Governors Island 27 Buttermilk Beach

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

At lower tide levels, a 10- to 15-foot Consider developing this small The beach is largely under water Short Term: Work with programming sandy beach is exposed along the beach for water-based educational at high tide, so any programming partners to fundraise for installing a seawall, on the water side of the opportunities, providing direct access would have to be scheduled for gate and steps down to allow supervised promenade fence. There is currently to touch or test the water, seine for lower tide levels. The beach is close access to the beach during low-tide no public gate in the fence, and no marine life, or make a short, guided enough to Yankee Pier’s ferry traffic hours. Staff a seasonal, part time, step-down to the beach. kayak voyage to or from Pier 101. that kayaking is best reserved for educator/attendant for the beach. Tidal experienced boaters or scheduled timing allows for summer daytime excursions. But the opportunity to programming for about 10 out of every 14 have the beach as a landing for a days, for at least three hours each day. guided kayak trip traveling the short distance along the Island’s coast Medium Term: Provide access for The presents a safe, unique, and exciting Downtown Boathouse or other partner program model. The route for this to offer short, guided intra-Island coastal proposed short kayak excursion can kayak excursions between Pier 101 and hug the Island’s coast and remain Buttermilk Beach. A small amount of completely outside commercial additional communications and planning navigation channels. with existing Trust operations and security staff would enable this unique While currents in Buttermilk Channel and exciting program. can be strong, even for our harbor, the beach is out of the main stem of Long Term: Creation of a permanent current and well away from the main designated water touch-point area channel for commercial boats. at Buttermilk Beach would involve significant engineering and permitting to raise the elevation of sand above future sea level rise. In addition, to enable unsupervised water access, it’s recommended to install a jetty or piling fence to separate the area from Yankee Pier ferry traffic.

28 Maritime Activation Plan for Governors Island Yankee Pier

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

Yankee Pier was originally shaped The eastern branch could be used as Relocating all ferries (except the BMB- Short Term: Integrate additional ferry like the letter Y and was designed for a pedestrian-friendly “front door” for Soissons route) to Yankee Pier requires operations onto Yankee Pier. Formalize docking sizable Coast Guard ships. all passenger ferries not arriving or preparation for the boat operations queueing guides, increase signage, and The east branch of the Y was recently departing from Soissons. and for the passengers. As inherited possibly add an additional ferry barge on restored to provide an access point from the Coast Guard, Yankee Pier is the eastern branch of the pier. for the South Island via a passenger A rebuilt western branch may add relatively narrow for a ferry pier, and ferry barge and berthing for visiting additional ferry berths or may serve so creating an efficient passenger Medium Term: Reconfigure Yankee ships. The west branch of the Y is no as a visiting ship dock for historic and boarding experience is even more Pier to include even more ferry berths by longer visible, having deteriorated cultural vessels, or may serve as a critical. To meet future needs, traveler installing new, long, narrow transfer float into the water, but its footprint is small motorboat town dock. Including management strategies, including real docks running parallel to the pier that still charted. Governors Island’s wave attenuation in the new pier time LED signage, remote ticketing, have multiple berths perpendicular to the Brooklyn ferry service, operated by NY design to offer more protection from and queueing guides, would have to pier along its length. (The NY Waterway Waterway, has predominantly used wakes on the inland side of the rebuilt be fully vested at Yankee Pier. Ferry terminal at Pier 79 has this arrangement.) Yankee Pier. In 2018, NYC Ferry also pier will increase its utility. operation management would also A full marine engineering analysis should utilized Yankee Pier for direct routes take coordination, which could be complement this initiative; it may be most to Manhattan and Brooklyn, with fulfilled by the suggestions in the feasible on the outer length of the pier connections beyond. management section above. and could require removing obstructions in the slip to be suitable along the inside Yankee Pier’s design, at up to 12 feet off length of the pier. Ensure staffing for the the water, is not suitable for many local pier to coordinate ferry dockings and historic and cultural ships, who use communicate effectively with the riding low floating docks or piers at about 4 public, either by hiring additional marine feet off the water. staff for Trust operations or through specifying this role with contractors and An inherent conflict exists between partners. Invest in LED signage, or a using the remaining eastern branch similar real time information network, for of Yankee Pier for ferry routes and for passengers. larger visiting ships for two reasons. One is on the water, as a berthing area Long Term: Rebuilding the western for visiting ships is in the same narrow branch of Yankee Pier will require space ferries cruise through when significant capital investment, and coming in to their berth. The second will provide a significant and valuable is on the pier, as queueing for both increase in maritime capacity. Primarily, ferries and visiting ships would have we advocate for increased ferry service to be organized in the same space. at Yankee Pier. But if needs evolve Careful scheduling has enabled some differently, a rebuilt western branch could ship visits at Yankee Pier. But as the be designed to match any selected use, need for ferry service expands, it including additional ferry berths, a small will become increasingly difficult to motorboat docking facility with a dinghy balance alternate uses at Yankee Pier. dock for touch-and-go for the public, or for support vessels for Island tenants and partners. The western branch could also be custom rebuilt for historic and visiting ships if other improved options for hosting them don’t develop, as the new design could intentionally address the inherent conflicts present on the eastern branch.

Maritime Activation Plan for Governors Island 29 Tango Pier

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

Tango Pier is shaped like the letter Tango Pier may remain abandoned, Tango Pier connects to the Short Term: In the Trust’s real estate T. It is not in use due to the need but without infrastructure investment footprint of the Island’s Eastern web page and outreach for the Eastern for significant rehabilitation. Its it will eventually collapse into the Development Zone, so marina type Development Zone, explicitly recognize deterioration began before the City water. rebuilding, including a “dock and the potential to combine a dock took ownership of the Island. dine” restaurant and a shop ashore, rebuilding, new small dock, marina, or Should significant investment are compatible, though require mooring field as an add-on opportunity become possible, rebuilding Tango significant investment. As described to proposed projects. Allow future Pier as a marina’s central services at Pier 101, this investment could be respondents to development zone dock with a dinghy dock and nearby modestly offset by establishing a RFPs to include water-based add-on moorings, would offer a great fee-for-service small motorboat dock components such as docks and get-down benefit to open the Island to visiting and/or launch service for access touch points and recognize the benefits recreational boaters who could arrive needs for Island businesses, partners, of these water-based connections in by their own boat. tenants, special events organizers, evaluation of proposals. See Waterfront VIPs, and visitors interested in touch- Alliance’s WEDG program, described in and-go. the appendix, for examples or models.

Medium Term: Fund a structural analysis of Tango Pier to inform the extent of rebuilding needed to reprogram it.

Long Term: Should future development proposals not address Tango Pier’s future condition or possibilities for docking in that area, capital funding from public or private sources could be sought to remove the failing infrastructure, and replace it with a more modest town dock that will allow recreational boaters to access the Island. The management section of this report recommends the internal maritime staff to be considered for the Trust to implement this infrastructure permitting, development, and management.

30 Maritime Activation Plan for Governors Island Travel Lift Pier

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

A travel lift is an open, box-like vehicle Reactivating the Travel Lift The Island relies on boats, and Short Term: The Trust’s real estate web with straps for lifting boats out of Pier would enable the Island to working boats need places to be page and outreach done for the Eastern the water. It works in tandem with a continue its Coast Guard heritage taken ashore to be serviced and Development Zone, explicitly recognize specially constructed pier space that as a center for boats and be an repaired. There are already maritime the potential to combine a travel lift boat allows the wheels of the travel lift to authentic maritime activity for use uses on the Island that could benefit service operation or marina as an add-on roll out on either side of a water inlet, of the Island’s space. If the Trust from this activation, and there will opportunity to projects proposed for the lower the straps into the water, and could maintain the pier, a partner probably be more of them with future development zone. Allow development pick up a boat. Travel lifts are useful could manage the actual travel lift tenants. Without the travel lift, these proposals to include water-based for taking small- to medium-size operations and programming. With needs will have to be met farther components such as docks and a small boats ashore for repair or winter significant maritime partners such afield. boat workshop and recognize the benefits storage. Currently, we don’t have as Harbor School and The Downtown of these water-based connections in enough travel lift services in New York Boathouse already in place, the Revitalizing the Travel Lift Pier is just evaluation of proposals. See Waterfront Harbor, and many boaters go out Travel Lift Pier could make this boat one step. The travel lift vehicle itself is Alliance’s WEDG program, described in to Long Island or up the Hudson to work an integral part of education a second, costly investment. The Trust the appendix, for examples or models. “haul the boat.” and community programs for Island and potential partners on the Travel partners and visitors. Lift Pier project would have to work Medium Term: Include the possibility of The Travel Lift Pier on Governors out cost sharing for infrastructure activating the existing Travel Lift Pier in Island is left over from Coast Guard responsibilities. As the Island’s any survey of waterfront infrastructure days. It sits adjacent to the Eastern pier infrastructure suffers delayed maintenance needs on the Island. Development Zone and is close to maintenance, it would be unrealistic Lima Pier. to expect a new project of this type to Long Term: Should development cover all the costs of a repair. proposals not address this pier, the Trust may work with a partner to seek public Once the boat is lifted out of the water access funding to capitalize on the water, it needs a space on land to unique programming opportunities that rest, so a nearby workshop and boat Travel Lift Pier presents. shed would be an important upland component to discuss with partners and to develop along with the Travel Lift Pier. That upland is the Eastern Development Zone, and decisions about that zone will affect the possibilities for maritime activation on the adjacent waterfront.

Maritime Activation Plan for Governors Island 31 Lima Pier

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

Lima Pier is shaped like the letter L. Reconstruct Lima Pier for use as An upland area immediately adjacent Short Term: Continue maintenance on Like Tango Pier, it is immediately designated service entrance to the to the pier would be needed for Lima Pier. Commission a marine survey adjacent to the Eastern Development Island, including receiving trucks and staging freight vehicles and allowing to establish specifically which freight Zone freight, and discharging trash. the turning radius of trucks. conditions can be supported at Lima Pier in its current state. This information While Lima Pier is not used for Proposed projects for the is likely to be requested by any marine passengers and does not see the development zones may take freight provider. level of freight activity of Yankee Pier, advantage of Lima Pier as a freight it has been used for transportation pier. If trucks and trash eventually Considering Lima Pier’s proximity to of construction materials for large are handled at Lima Pier regularly, the Eastern Development Zone, clarify scale projects on the Island, such projects for this part of the Eastern that proposals for this area of the as building the Hills, rehabilitating Development Zone should include development zone be compatible with the Parade Ground, and moving plans for managing their proximity to freight operations as a neighbor. reef building materials for BOP. The these activities. pier recently underwent a partial Medium Term: Develop a strategy to seek rehabilitation, but would require A marina operation would be highly proposals for freight service to the Island further improvements to support compatible alongside a pier for via Lima Pier. The management section increased maritime traffic. freight, with both users having an of this report recommends the internal innate understanding of on-water maritime staff to be developed at the operations. Trust to design, implement, and manage these contractual relationships. Using Lima Pier for freight will require a matching dock on the distribution Long Term: Build necessary pier side, such as in Brooklyn, Staten infrastructure or contract for services to Island, or New Jersey. Marine freight fully utilize Lima Pier for freight deliveries companies have their own partners to the Island. and specifications to be considered in establishing this connection. Some marine service companies handle both passengers and freight under the same umbrella. Analyze if integrating ferry management with freight management would be beneficial.

32 Maritime Activation Plan for Governors Island Picnic Point

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

In 2009, this newly built park area at The shoreline of Picnic Point and its Early visions for the Island’s Park Short term: Seek risk data from Red the most southern edge of the Island possible future eastern extension and Public Space Master Plan Hook’s Valentino Park and Pier, a beach opened as Picnic Point, with green is one of several places the Island included ecology activities and immediately across Buttermilk Channel space and impressive harbor views. At could build a get-down for visitors habitat features in this area. In some from Governors Island. If necessary, the eastern side of Picnic Point, there to touch the water. This area is suggestions, these wetland gardens commission a survey to compare liability is still a portion of remaining space impacted less by current and weather and restored marshes interacted with concerns to real data on parks with open from the West 8 Park and Public conditions than other shorelines of tidal levels and provided a sheltered coves where one can touch the water. Space Master Plan that could be built the Island, and also faces the least cove where Island visitors could have as additional park land. active commercial shipping waters. touched the water. These features Medium Term: Identify potential sites If necessary, installing rip rap or add cost and presume additional including Picnic Point and create a in-water gates would ensure visitors liability, and they did not make it design contest for building a get-down, aren’t exposed to the open harbor. through to final plans. tidal cove, or water touch point on Governors Island. As more fully described in the waterfront recreation and education Long Term: Seek capital funding from section of this report, there are strong public or private sources to create a calls for opportunities for the public place for the public to touch the water to touch the water around the region, on Governors Island. The management including at Brooklyn Bridge Beach in section of this report recommends the Manhattan, two popular beaches in internal maritime staff expected to grow Brooklyn Bridge Park, and beaches in at the Trust to implement this permitting, Hoboken, Red Hook, and Astoria. development, and management.

Maritime Activation Plan for Governors Island 33 Western Shore

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

The central stretch of the Island’s Both the Eastern and the Western There are large footprints to fill in the Short Term: On the Trust’s real estate western shore is immediately Development Zones have borders development zones on Governors web page and in outreach for the Western adjacent to the Western Development with the promenade and waterfront. Island, while many established local Development Zone, explicitly recognize Zone, just north of the Hills. It This presents a fantastic opportunity harbor education programs are the potential to combine a water touch features a promenade with views of for development proposals in more modest in size. Partnerships point or shoreline education station the Statue of Liberty and Ellis Island. these areas to create a harbor could be key in realizing the full as an add-on opportunity to projects education center that can include maritime activation potential of the proposed for the development zone. direct programming with the development zones. Allow development zone proposals to water, developed in cooperation include water-based components such with a business or university, or While the Island’s western shore is the as a get-down touch point, and recognize through partnership with nonprofit most exposed coast to heavy weather, the benefits of these water-based educational institutions. shallow rocky areas along the western connections in evaluation of proposals. shore also provide conditions that See Waterfront Alliance’s WEDG program, would support marine life populating described in the appendix, for examples into a cove or ecology touch point. or models.

The new shoreline revetment was Medium Term: Create an application for established by building it into the organizations that offer harbor education promenade, narrowing the path. and public engagement on the water To site a water get-down along the to be listed with the Trust as potential Western Development Zone would partners for development zone projects, require realigning the path into the and distribute that list to development development zone footprint, to allow zone applicants. In addition to existing activity space at the water’s edge. Trust program partners, organizations such as The River Project, American . Littoral Society, and HarborLAB could add public marine-focused benefit to commercial projects in the development zones.

Long Term: Continue to include marine education in measuring the success of development zone tenants.

34 Maritime Activation Plan for Governors Island Castle Williams Corner

CURRENT CONDITION/USE POTENTIAL USE CONSIDERATIONS RECOMMENDATIONS

This northern stretch of the Island’s This short shoreline has great Recent rebuilding converted Short term: Pilot using this area for a pop western shore includes about potential for maritime activation, other edges of the Island to rocky up fishing clinic on occasional days. The 800 feet between the Western including a natural nook in the coast revetment, but at the Castle Williams DEC I Fish NY education program is a Development Zone and Castle that might be built into a small cove Corner, there is still a straight possible partner. Williams, a historic fort. It features the or get-down to touch the water for seawall, which allows catch-and- same views to the Statue of Liberty educational activities. A catch-and- release fishing. While revetment has Medium Term: Identify potential sites, and Ellis Island as the rest of the release fishing station would also fit benefits in resiliency and ecology, it including the Castle Williams Corner, western shore. well with the conditions and layout on is a shoreline design that prohibits and create a design contest for a get- this waterfront. fishing, particularly for beginners. down, tidal cove, or water touch point on The area features the Island’s straight In general, recreational fishing in Governors Island. stone seawall, and in parts, the Historic buildings immediately New York Harbor is supervised by promenade is much wider than at adjacent to the waterfront in this the New York State Department of Long Term: If development zone other points on the western shore. area may be adaptively reused to Environmental Conservation (DEC) proposals do not eventually include a offer the necessary upland space for through a free, online recreational harbor education facility, a space like waterfront programming. marine fishing registry. The Trust this outside the development zone may would not be required to establish or serve that purpose. Significant funding Water is available in the area to create enforce fishing regulations. would still be needed to build a water an outdoor hose and sink, a vital touch point and get-down and to restore amenity for an ecology or fishing While the Island’s western shore is the a nearby historic district building to serve station. most exposed coast to heavy weather, as a harbor education center. its shallow rocky areas also provide conditions that would support marine Similar educational opportunities are life populating a cove or ecology present near Pier 102, and at Tango Pier. touch point. See above.

Public and harbor education programs require a way to touch the water as well as an upland storage/ support area to be most successful.

Maritime Activation Plan for Governors Island 35 Appendices A Brief Overview of Waterfront Construction and Permitting in New York Harbor

The regulatory environment for waterfront and of General Services (OGS). Federal permits wetland construction in the New York City area administered by the USACE are necessary is widely acknowledged to be complicated and for construction in navigable waters, for any challenging. The complexity of the permitting amount of dredging or filling in of a waterway process stems in part from the varying policies, (including excavation activities and pilings standards, and goals of the federal, state, and placements), and construction or dredging municipal agencies that oversee waterfront in tidal water. Within New York State, the DEC activities and that are tasked with protecting the regulates activities on or near the shoreline health and safety of our waterways. and issues permits for all work and activities that are in or that have an impact on a Waterfront Alliance has authored two detailed waterway or wetland. Permits are required reports outlining the permitting process, for floating docks, new pier construction, which highlight the need for a comprehensive and pier rehabilitation or reconstruction, and resource to guide users. Using this work as include those for Tidal Wetlands, Protection a foundation, the New York City Economic of Waters (including Section 401 Clean Water Development Corporation (NYCEDC) developed Act Permit, Water Quality Certification), and a web portal—Waterfront Navigator—as a “one- Coastal Erosion Hazard Area (depending on stop” educational resource to guide applicants location). The DOS is responsible for ensuring through the process. This website, developed that projects and activities within the coastal in partnership with the four primary agencies zone that are authorized by the USACE, adhere involved in the permitting process—the U.S. to, and are consistent with, the State’s Coastal Army Corps of Engineers (USACE), the New Management Program, which seeks to balance York State Department of State (DOS), the competing land and water uses in the coastal New York State Department of Environmental area. Accordingly, proposed construction Conservation (DEC), and the New York projects and activities are subject to and require City Department of City Planning (DCP)— a Coastal Zone Federal Consistency review by consolidates information about each agency’s the DOS. requirements and directs applicants to the materials they will need to submit a successful All in-water construction projects also require a permit application. For the purposes of this Lands Under Water Easement from the OGS as report, we provide a summarized overview of the well as a Waterfront Construction permit from regulatory agencies involved, their respective the SBS, which has jurisdiction over maritime jurisdictions, and the permits commonly and non-maritime construction for waterfront required for major construction, renovation, properties as well as private and city-owned or rehabilitation projects, such as those under marine and maritime structures such as consideration by The Trust for Governors Island. docks, piers, seawalls, and bulkheads. A permit from the DOB is required for constructing or While the permitting process and required renovating any building on privately owned permits may vary according to the purpose, waterfront property. Additional permits that site, and potential environmental impact of may be required include a Private Aids to the project, major non-residential projects Navigation permit from the U.S. Coast Guard for typically require review and approval from the placement of buoys, lights, or day beacons the four major agencies as well as additional in navigable waters, and a Floating Objects permitting from New York City Small Business Permit from the New York State Office of Parks, Services (SBS), New York City Department of Recreation and Historic Preservation, for Buildings (DOB), and New York State Office anchored markers or platforms at the surface of

36 Maritime Activation Plan for Governors Island the water such as mooring buoys, speed zone As an example, building a floating dock or markers, and diving floats. reconstructing a pier will require permits from the four primary agencies identified above, At the municipal level, proposed waterfront as well as a Floating Objects Permit from the projects must be reviewed by the DCP to State Office of Parks, Recreation and Historic ensure their consistency with the Waterfront Preservation and a Waterfront Construction Revitalization Program, a set of policies for the Work Permit from SBS. While there is difference development and use of waterfront areas within in permitting complexity between a small kayak the Coastal Zone Boundary map. Projects such dock and a large float for ferries, all projects as a floating dock or pier construction must must strictly attend to requirements related pass a Waterfront Revitalization Program (WRP) to size, position, and water depth. The project consistency review prior to filing for a permit. description, per the DEC, must include why it is The entirety of Governors Island falls within the necessary to build the dock in a chosen area, Coastal Zone map; and Lima Pier, Yankee Pier, a long-term maintenance plan and proof that Piers 101 and 102, and Soissons Landing are construction of the dock would not cause any designated as “Priority Marine Activity Zones,” measurable increase in erosion at the site, and where projects and developments that make use a description of how the project prevents or of the existing maritime infrastructure for water- minimizes effects to existing erosion protection dependent uses are prioritized in the permitting structures and natural resources such as process (see Policy 3.5). Because the WRP significant fish and wildlife habitats. Dock program also includes a policy on the protection project applications must also include a detailed of Significant Coastal Fish and Wildlife Habitats, set of drawings and maps and, for larger permitting for development of Lima Pier should projects, a supplemental application form with be mindful of, and include provision for, the details about the measurements of the dock area as a site of significant tern nesting and the and volume of boats to be docked there. tern’s classification as a threatened species.

Ferry landings would benefit from installing additional loading barges and passenger information signage.

Maritime Activation Plan for Governors Island 37 Appendices WEDG: supporting resilient, accessible, ecologically-friendly waterfronts near you

Waterfront Alliance, a New York City-based others—are engaged with WEDG best practices nonprofit organization working to protect, through advisory roles, professional education, transform, and revitalize New York harbor, is and a volunteer program. working to expand the success of its Waterfront Edge Design Guidelines (WEDG) tool and Eight certified projects and dozens of informed program to improve public and private decision- landowners, resulting in improved design making at the waterfront in coastal regions strategies—direct access to the water for boats across the nation. and people, storm and sea-level rise-resilient structures, and room for wetlands in urban New WHAT IS WEDG? York City. WEDG® is a credit system and set of guidelines for catalyzing resilient, accessible, Landowners, designers, engineers, and and ecologically-sound urban waterfront regulatory agencies engaging in solution- transformation: think LEED® for the waterfront. oriented conversation using WEDG. A nationally-applicable version of WEDG was launched in 2018, developed by a cross-cutting The launch of a city-wide WEDG Neighborhoods field of experts convened by Waterfront Alliance Campaign in New York City promoting rights to provide better guidance amid a complex to resilient, ecologically-responsible, and regulatory environment and the threats of accessible waterfronts to each of the 43 climate change and coastal storms. waterfront community boards, with focus on the most economic and socially vulnerable WHO IS WEDG FOR? neighborhoods. WEDG is for the edge—for urban and suburban projects along the coast. It is a reference Three additional community-based planning for landowners, community stakeholders, efforts using WEDG as a tool to engage with regulators, designers, planners, and engineers. landowners and design better, more resilient Much like LEED made complex sustainability waterfronts in the Bronx, Brooklyn, and Queens, concepts accessible to practitioners and and passed resolutions by community boards in developers, resulting in real market changes, support of WEDG. WEDG aims to shift the field of waterfront design. WEDG also aims to empower grassroots What’s in it for my community? advocates to demand better waterfronts, We all want livable and resilient cities that developing an ambassador network of will thrive for generations to come, but our organizations and assisting in community- existing frameworks are leaving many human, based planning efforts. economic, and natural assets increasingly vulnerable. Waterfront Alliance is working WHAT ARE THE RESULTS? with partner regions locally in New York City WEDG facilitates positive outcomes from the and in the Philadelphia–Camden region in bottom up across private and public lands 2018–2019 through its WEDG program to adapt through professional education, project these resources and grow the community certification, and stakeholder engagement. This of professionals, activists, and government has resulted in: actors that push for more resilient, accessible, and ecologically-sound waterfronts. A community of hundreds of professionals— The organization is also working to grow from leading international design and relationships coastal cities across the nation to engineering firms, government agencies, and shift how we design at a national scale.

38 Maritime Activation Plan for Governors Island What’s in it for practitioners and landowners? Climate change is already reshaping the design Leaders in the design and engineering fields need to be informed by cutting-edge and function of our nation’s waterfront edges. information. Waterfront projects are extremely The WEDG guidelines provide an actionable and complex (exacerbated by sea level rise and climate change), regulated, and high-value. flexible tool for practitioners, landowners, and WEDG uniquely addresses these issues communities alike to communicate and support through a rating system, guidelines, education, the quality and future adaptability of their and engagement. Alignment with WEDG demonstrates leadership, innovation, and waterfront projects. integrity in a field where these qualities are Kate Orff, SCAPE necessary for a competitive edge.

“As our coasts face increasing risks, properties and communities need to be designed to the highest standard and for long-term resilience. Resources like WEDG are important because they provide guidelines for risk reduction and help to address changing hazards.” –Lou Gritzo, FM Global

Maritime Activation Plan for Governors Island 39 Appendices Resilient Park Construction on Governors Island

The Governors Island Park and Public Space throughout the park that define pathways also Master Plan features forward thinking protect the Hills against wave action during approaches to resiliency. In building the park flood events. In reconstructing the seawall that features on the South Island, 40 acres of land surrounds the Island, rip rap revetment was were raised 16 feet by adding more fill. The Hills, placed along the shores and at the base of the partially created with reused debris from the Hills. Revetment at the water line provides more removal of 20th century military housing, were ecological benefits than a straight sea wall, secured with a jute mesh erosion control mat giving nooks and crannies that sea life can use, and the addition of trees, shrubs, and grasses and doing more to break up damaging wave and that stabilized the new hilly topography and wake action. prevented its erosion. The white seat-edges

West 8’s design anticipates increases in sea level rise and the extreme storms that are expected to accompany climate change along the Eastern seaboard. Acknowledgements

Waterfront Alliance is most grateful to our more than 1,000 Alliance Partners, who continually contribute their efforts and expertise to make our waterfront resilient, revitalized, and accessible for all communities. We thank the organizations below for additional specific feedback for this report:

The Trust for Governors Island

The City of New York

The Friends of Governors Island

Waterfront Alliance Board of Trustees

Billion Oyster Project Millers Launch, Inc. New York City Department of Transportation (Staten HarborLAB National Park Service Island Ferry) HMS Global Maritime, Inc. New York City Audubon Operation Sail, Inc. Hughes Marine Firms New York State 26th (OpSail) Senate District Manhattan Borough The Downtown Boathouse President’s Office New York State Assembly The LiRo Group 65th District Manhattan Community The Urban Assembly New Board 1 (CB1) New York City Department York Harbor School of City Planning McAllister Towing and Transportation Co., Inc. New York City Department of Parks & Recreation

Photos courtesy of:

The Trust for Governors Island

Waterfront Alliance

The Urban Assembly New York Harbor School

West 8

New York City Water Trail Association

Bay Area Discovery Museum

Alison Simko

Ian Douglas

David Gonsier

Etienne Frossard WATERFRONT ALLIANCE

217 Water Street, Suite 300 | New York, NY 10038 | 2 12.935.9831 @OurWaterfront WaterfrontAlliance [email protected] | waterfrontalliance.org

The Waterfront Alliance inspires and effects resilient, revitalized, and accessible coastlines for all communities.