Howard Beach Community Reconstruction

Conceptual Plan October 2013 This document was produced by the Howard Beach Planning Committee as part of the NYRCR Community Reconstruction (NYRCR) Program within the Governor's Office of Storm Recovery. The NYRCR Program is supported by NYS Homes and Community Renewal, NYS Department of State, and NYS Department of Transportation. Assistance was led by the following consulting firms: Parsons Brinckerhoff and HR&A Advisors, and supported by SCAPE Studio, OpenPlans, and Hammes Company. All photographs were taken by the planning team unless otherwise noted. Howard Beach Conceptual Plan

Foreword

The New York Rising Community Reconstruction (NYRCR) program was established by Governor Andrew M. Cuomo to provide additional rebuilding and revitalization assistance to communities damaged by Superstorm Sandy, Hurricane Irene, and Tropical Storm Lee. This program empowers communities to prepare locally-driven recovery plans to identify innovative reconstruction projects and other needed actions to allow each community not only to survive, but also to thrive in an era when natural risks will become increasingly common.

The NYRCR program is managed by the Governor’s Office of Storm Recovery in conjunction with New York State Homes and Community Renewal and the Department of State. The NYRCR program consists of both planning and implementation phases, to assist communities in making informed recovery decisions.

The development of this conceptual plan is the result of innumerable hours of effort from volunteer planning committee members, members of the public, municipal employees, elected officials, state employees, and planning consultants. Across the state, over 102 communities are working together to build back better and stronger.

This conceptual plan is a snapshot of the current thoughts of the community and planning committee. The plans will evolve as communities analyze the risk to their assets, their needs and opportunities, the potential costs and benefits of projects and actions, and their priorities. As projects are more fully defined, the potential impact on neighboring municipalities or the region as a whole may lead to further modifications.

In the months ahead, communities will develop ways to implement additional strategies for economic revitalization, human services, housing, infrastructure, natural and cultural resources, and the community’s capacity to implement changes.

Implementation of the proposed projects and actions found in this conceptual plan is subject to applicable federal, state, and local laws and regulations. Inclusion of a project or action in this conceptual plan does not guarantee that a particular project or action will be eligible for Community Development Block Grant – Disaster Recovery (CDBG-DR) funding. Proposed projects or actions may be eligible for other state or federal funding, or could be accomplished with municipal, nonprofit or private investment.

Each NYRCR Community will continue to engage the public as they develop a final plan for community reconstruction. Events will be held to receive feedback on the conceptual plan, to provide an understanding of risk to assets, and to gather additional ideas for strategies, projects and actions.

October 31, 2013

Table of Contents | 3 NYRCR Program

NYRCR Communities

Find out more at:

StormRecovery.ny.gov/Community-Reconstruction-Program

4 | Table of Contents Howard Beach Conceptual Plan Contents

I. Introduction—6 Program Overview 6 Approach to Public Outreach 8 II. Community Context—12 Geographic Scope 12 Community Overview 14 III. Storm Impacts and Risk—16 Summary of Storm Impacts 16 Recovering from the Storm 16 Future Risk 18 IV. Rebuilding and Resiliency Planning —20 Process Overview 20 Community Asset Overview 21 Needs and Opportunities 26 Community Vision 33 V. Additional Considerations—34 Regional Perspectives 34 Existing Plans, Studies, and Projects 36 VI. Preliminary Projects and Strategies and Next Steps—41 Preliminary Projects 41 Next Steps 43

Table of Contents | 5 NYRCR Program

I. Introduction Program Overview

The New York Rising Community • Identify Assets, Risks, Needs, York State planning team includes: Regional Reconstruction (NYRCR) Program was Opportunities Leads Claudia Filomena and Chelsea Muller; NYC established to provide additional rebuilding • DefineCommunity Vision Lead Planner Steve Ridler; and Howard Beach and revitalization assistance to communities • Identify, evaluate, and Prioritize Projects Community Planners Bonnie Devine and Amy that were severely damaged by Superstorm and Actions DeGaetano. The planning team for Howard Beach Sandy, Hurricane Irene, and Tropical Storm is being led by Parsons Brinckerhoff (planning, • Identify Funding Sources and develop Lee. The NYRCR Program will enable communities coastal protection, infrastructure engineering, and Implementation Plan to identify reconstruction and resiliency projects natural/coastal management) and HR&A Advisors • Create Final Community Reconstruction that address current damage, future threats, (project management, community planning, Plan and the community’s economic opportunities. In economic development, and housing analysis). connection with the program, New York State They are being supported by SCAPE Studios has allocated funds for community planning in 50 The NYRCR Program will focus on needs, (landscape architecture), OpenPlans (participatory community planning areas across the state, 10 of opportunities, and projects that address six mapping), and Hammes Company (healthcare). which are in New York City. recovery functions: By the end of this process, the NYRCR Program will New York State has allocated up to $18.4 • Community Planning and Capacity Building produce two public deliverables: million to Howard Beach in Community • Housing Development Block Grant Disaster Recovery • Economic • Conceptual Plan, Fall 2013 – This (CDBG-DR) funding from the U.S. Department of document summarizes the work to date on • Health and Social Services Housing and Urban Development (HUD). These Howard Beach’s opportunities for rebuilding • Infrastructure Systems funds can be used for a wide variety of projects, and resiliency after Superstorm Sandy. Led and Howard Beach will likely be eligible to receive • Natural and Cultural Resources by the Howard Beach Planning Committee, additional project funding from federal, state, and this plan is based on deliberation during local sources. The purpose of the NYRCR Program Each NYRCR community is led by a Community three planning committee meetings and one is to develop a prioritized list of projects for the Reconstruction Planning Committee (Planning public meeting that were held in September allocated CDBG-DR funding and other sources. Committee), made up of community leaders and and October 2013. A minimum of two more residents. The Planning Committee takes the lead planning committee meetings and three As shown on the opposite page, this process will in developing the Conceptual and Final Plans. more public meetings will be held through include five steps: March 2014 to refine the plan and to propose The state has also provided each NYRCR community concrete projects and actions and develop with a planning team to prepare a plan. The New

6 | Introduction Howard Beach Conceptual Plan

NYRCR Work Schedule

Planning Committee Meeting Public Meeting Deliverable Due Date

Deliverables Sept. Oct. Nov. Dec. Jan. Feb. Mar. Work Plan

Vision, Assets & Risk Assessment 1

Conceptual Plan 2 1

List of Strategies 3 2

List of Priority Projects

Community Reconstruction Plan 4 3 5 4

5-Step Process NYRCR Communities in NYC

Identify, evaluate, Identify Funding Create Final Identify Assets, Define Sources and prioritize Community Risks, Needs, Community and develop Projects and Reconstruction Opportunities Goals & Vision Implementation Actions Plan Plan

Breezy Point

Introduction | 7 NYRCR Program

a final Community Reconstruction Plan. Reconstruction Strategies Approach to Public Outreach ▪▪ Community Planning and Capacity The contents of this plan include the Building Extensive public outreach and involvement following: is a key component of the NYRCR Program’s ▪▪ Economic Development 1. Introduction planning process. This is a community-driven ▪▪ Health and Social Services process that believes that outreach and community 2. Community Context ▪▪ Housing engagement are critical to creating neighborhood- 3. Storm Impacts and Risk specific ideas, setting direction, and ensuring the ▪▪ Infrastructure 4. Rebuilding and Resiliency Planning overall success of the program. ▪▪ Natural and Cultural Resources 5. Next Steps Implementation Schedule At the heart of the public-outreach process • Final Community Reconstruction Plan, ▪▪ Schedule of Implementation Actions is the Planning Committee. The Planning Spring 2014 – This document will include Committee is responsible for facilitating public more in-depth discussion of above, as well Appendices discussion and providing a meaningful link between as: ▪▪ List of CR Planning Committee Members the planning team and the local community. At the Overview Geographic Scope of Plan ▪▪ Description of Public Engagement inception of the program, New York State appointed ▪▪ Description of Storm Damage Process the following Howard Beach Planning Committee ▪▪ Critical Issues Community Vision ▪▪ Description of Priority Projects and their members: Costs and Benefits ▪▪ Relationship to Regional Plans Inventory of Assets • Frances O. Scarantino (Co-Chair) Assessment of Risk and Needs ▪▪ • John Calcagnile (Co-Chair) ▪▪ Community Assets • Andrew Baumann ▪▪ Assessment of Risk to Assets • Betty Braton ▪▪ Assessment of Risk to Systems • John Frazio ▪▪ Assessment of Needs and Opportunities • Roger Gendron • Frank Giglia • Frank Gulluscio • Edward Kalanz • Frank Lombardi

Committees were developed through direct engagement with community leaders and community members. Howard Beach committee members are

8 | Introduction Howard Beach Conceptual Plan

community leaders, life-time residents and business and monthly newletter. Emails have also gone out utilities/infrastructure and vulnerable owners who are active in the community. This to more than 700 families with children through the populations committee has access to an extensive network that S.T.A.R.S. Youth Center email databse. ▪▪ Developed strategy for conducting can be used to disseminate and gather information. outreach to vulnerable populations for The co-chairs of the Howard Beach Planning Going forward, the Planning Committee will input in asset maps, and to the local Committee have worked with the planning team to determine how to evolve their outreach strategies media for publicizing public meetings develop agendas for all meetings, and to provide through the planning process after evaluating the ▪▪ Initial asset inventory and planning area input on draft documents and presentations prior level of turnout at the first and subsequent public boundary were presented for input and to circulation and presentation at meetings. They meetings. review also have spearheaded the outreach process for meetings, coordinating a strategy for publicizing Public Feedback Opportunities meetings and the NYRCR Program to the Howard Thus far, two formal Planning Committee • Planning Committee Meeting 2 (October Beach community members. meetings and one public meeting have been 7, 2013): held to jumpstart and structure the community ▪▪ Reviewed asset maps and reported Community Outreach Strategy visioning process for the area. The committee comments and priorities from asset In consultation with the project team, the has met several times on its own to establish a plan inventory Planning Committee has developed and of action and to set forth priorities and ideas. ▪▪ Further brainstormed community needs executed a comprehensive outreach strategy. and opportunities, and began to define a This strategy has entailed reaching out directly to Dedicated time is set aside at each meeting community vision several key community organizations, attending to incorporate public input. Members of the ▪▪ Discussed agenda for public meeting, meetings of these groups to explain the project public have attended the committee meetings and venue, and outreach materials and promote meeting attendance, and strategically are welcome to attend the meetings of NYRCR placing meeting announcements in local media and communities outside of Howard Beach as well. organizational bulletins. The Planning Committee The results of the committee meetings thus far Following these two Planning Committee meetings, have done this through distributing flyers by hand at include the following: the first public meeting was held on October 21, churches and schools (to over 2,500 students), and 2013. Each public meeting is designed to maximize presenting at meetings for civic organizations and • Planning Committee Meeting 1 interaction between members of the public, the fraternal/service organizations including the New (September 16, 2013): Planning Committee, and the consulting team. Hamilton Beach Civic Association, the Rotary Club ▪▪ Reviewed NYRCR Program scope, The meeting was used to review the purpose, and Sons of Italy. The Planning Committee has also workplan, and timeline scope, and timing of the NYRCR Program and to worked with local houses of worship to disseminate gather public input around 1) assets; 2) needs and ▪▪ Discussed current issues post- flyers and notices in bulletins, and has posted opportunities identified by the Planning Committee; Superstorm Sandy and began to identify announcements for the public meeting on the New and 3) short- and long-term goals to inform a needs related to knowledge gaps around Hamilton Beach Civic Association's Facebook page community vision.

Introduction | 9 NYRCR Program

Four public meetings are projected to take In addition to the NYRCR website and feedback All community input is visible to all other map place before submission of the Final Plan on e-mail address, another valuable source of users, the Howard Beach Planning Committee, the March 31, 2014. A second public meeting will public input will be the online interactive planning team, and the state’s NYRCR team. This be held on November 18th to gather responses mapping tool, which can be accessed from a link allows other planning communities to view ideas to the Concept Plan. A third meeting will focus on on the NYRCR Community Reconstruction Program and will facilitate regional Jamaica Bay planning reviewing proposed strategies and projects, while Howard Beach page: http://nyrisingmap.org/. discussions. The tool will be available through the the fourth will entail a review of the Community The online maps were developed by OpenPlans, duration of the program. Reconstruction Plan. a non-profit organization with extensive experience building technology and tools to facilitate public Compiled public input has been included Additional Opportunities for Public input and community engagement. The team and in the Conceptual Plan, which will be posted Input Planning Committee plan to use this tool to solicit online. Feedback on the plan can be given via The NYRCR homepage for each community is broad public feedback and to provide another way [email protected], as well as at the public also a valuable online resource and is located at for community members to supply information and meeting. http://stormrecovery.ny.gov/community- ideas for this planning process. The online map will reconstruction-program. It includes links for allow users to click on assets in the community and visitors to review information about the program, to give three forms of input: directly contact the NYRCR staff, and to visit the • Confirm important community assets and program’s Facebook page. Comments provided information gathered about them via the website are combined with other feedback • Identify storm recovery and resiliency needs from the public and incorporated into the plan in associated with assets or the community as progress. a whole • Provide ideas for rebuilding and resiliency associated with assets or the community as a whole

10 | Introduction Howard Beach Conceptual Plan

Team referencing map of Howard Beach during site visit Introduction | 11 NYRCR Program

II. Community Context Geographic Scope

The Howard Beach planning area was physical / infrastructural boundaries and has limited Howard Beach is a true waterfront community defined by the Planning Committee and the access points to surrounding communities. The with many residences built directly on the water state according to multiple factors: data on Belt Parkway forms a strong dividing line between and a variety of public and private access to the damage resulting from Superstorm Sandy, local Lindenwood and the other neighborhoods within canals that network the community. Much of the understanding of community boundaries, areas Howard Beach while Shellbank Basin and Crossbay community is built on land that was historically inundated by Superstorm Sandy and where assets Boulevard separate Old and New Howard Beach. marshland, which was filled in the 1920s-1940s (as are most at risk, where residents and populations illustrated in the historical aerial images below). are at risk, and where key investments to improve Key connections between Howard Beach and the local economy and infrastructure can be made. surrounding communities include the Howard The map on the following page indicates the Beach / JFK subway station as well as key road planning area designated by the Howard Beach Howard Beach is located on the North East corridors. Cross Bay Boulevard, which runs north- Planning Committee. The committee will focus coast of Jamaica Bay. Bounded by Spring south through the community, connects Howard on assets, needs, opportunities, and strategies Creek and the former Pennsylvania and Fountain Beach to the communities of Broad Channel and for the community within this planning area. It will Avenue Landfill to the west, the right-of-way for the the Rockaway Peninsula to the south as well as also consider broader regional issues facing other Metropolitan Transportation Authority’s A train line to the rest of Queens to the north. In the east-west Jamaica Bay communities. the east, Conduit Avenue to the north, and Jamaica direction, the Belt Parkway and Conduit Avenue / Bay to the south, the area is strongly defined by its Nassau Expressway are the major thoroughfares.

Howard Beach 1924 Howard Beach 1951 Howard Beach 1996

12 | Introduction Howard Beach Conceptual Plan

Rockwood Park Jewish Center

Typical Street View-Old Howard Beach

Con Edison substation-New Howard Beach Howard Beach Planning Area and Neighborhoods

Introduction | 13 NYRCR Program

Community Overview

The Howard Beach planning area is made The population contains large percentages While predominantly residential, Howard up of four communities: Lindenwood, (New) of all age groups with a high concentration Beach includes small pockets of other uses, Howard Beach/Rockwood Park, Old Howard of baby boomer residents. The median age in including a collection of commercial and retail uses Beach/(Original) Howard Beach, and Hamilton Howard Beach is 44.7 years, as compared to 35.5 along Cross Bay Boulevard. The area is zoned as a Beach. While each of these individual communities in New York City as a whole and 37.2 for Queens. “lower-density residential district,” with 40 percent has its own distinct character and even smaller This suggests a large elderly population in the of the building stock comprising 2–4 family homes, communities within them, this overview provides coming years and may require special consideration and a further 38 percent made up of single-family a summary-level context and demographics. In of accessibility challenges related to rebuilding and detached houses. The majority (70 percent) of 2010, the area was home to 21,020 residents, resiliency planning. these homes are owner-occupied. Howard Beach representing 7,893 households. also contains important recreational amenities, with While lower than the citywide average, residents owning boats docked in Shellbank Basin While incomes vary, the Howard Beach 88 percent of homes were built before 1960 or Hawtree Basin, and flanked by Spring Creek planning area is home to communities with a and many are constructed of combustible Park and Charles Memorial Park. Because it is higher-than-average income when compared materials. These characteristics were associated predominantly residential, Howard Beach residents to Queens or New York City. The median with greater damage from Superstorm Sandy’s frequently rely on retail amenities and other services household income in the area in 2012 was $63,228, impacts; the NYC Mayor’s Office’s Special Initiative outside of the community. which was higher than Queens and New York City for Rebuilding and Resiliency (SIRR) report found as a whole. that 95 percent of buildings throughout New York While limited in number, the community City tagged by the NYC Department of Buildings as amenities and services available within red (for structural damage) or destroyed were built Howard Beach are critical, especially in an Sources: U.S. Census 2010; American Community before 1961. emergency. This includes a volunteer firehouse, Survey 2005-2009; ESRI 2012 Population three Con Edison facilities, and several religious Estimates; NYC Mayor’s Office SIRR Report institutions, which were used as recovery centers after Superstorm Sandy.

% Housing Units by Housing Type Median Household Income (2012) % Owner-Occupied Housing (2010) $70,000 $63,228 $60,000 $53,421 New York City 10% 7% 23% 13% 47% New York City 31% 1, detatched $50,000 $47,223

1, attached $40,000 2-4 Queens County 43% Queens County 20% 9% 32% 9% 30% $30,000 5-19

20+ $20,000

$10,000 Howard Beach 70% Howard Beach 38% 2% 40% 3% 18%

$- Howard Beach Queens County NYC 0% 20% 40% 60% 80% 100% 0% 20% 40% 60% 80% 100% 14 | Introduction Howard Beach Conceptual Plan

View of Downtown Coleman Square Rileys Yacht Club-Hamilton Beach

Gateway National Recreation Area parkland-Old Howard Beach Retail along Cross Bay Boulevard

Introduction | 15 NYRCR Program

III. Storm Impacts and Risk Shellbank and Hawtree Basins and flooding of Summary of Storm Impacts Spring Creek, with the surge far exceeding any Recovering from the Storm previously recorded flooding in Howard Beach Local Impact* In the days following the storm, the community and reaching entire neighborhoods outside the The community of Howard Beach began feeling the realized that there was neither a real plan for recovery Federal Emergency Management Agency 500-year effects of Superstorm Sandy well before the surge nor a specific plan of action in place specifying a floodplain. While the entire community experienced hit the Gateway National Recreational Area (GNRA), community gathering place for those in need after flooding, the impact from floating debris was less which rings the water side of the community. As the storm. Without power and without a community severe than with beachfront communities, although a community that is prone to flooding even during gathering place, the local religious community, in it is unclear whether this was due to the fact that moon-tide conditions, both flooding and sewer addition to the local volunteer firehouse and youth Howard Beach lies at the far interior of Jamaica Bay backup problems began well in advance of the center, stepped in and provided refuge and relief for or whether gateway lands contributed to this result. surge. the community. As the surge hit, the greatest flooding came from the rise within the basins and not from the surge as A major problem in Howard Beach was the Lingering Effects it crossed the GNRA waterfront. Much of this area loss of power. There are three local Con Edison The lasting damage of Superstorm Sandy continues is left as wild and natural and presents a significant substations servicing Howard Beach. Two of these in Howard Beach. Many homes and businesses took physical separation along the southern edge of facilities were knocked out by the storm, rendering several months to clean up, become habitable, and Howard Beach from the water. Downed power almost all of Howard Beach without power for the reopen. Many are still rebuilding. Water in the gas lines also represented a significant challenge as the duration of the storm and for up to two weeks lines continues to be a problem for many residents, threat of electrocution slowed and stopped rescue after the storm. When the surge hit, the greatest which could affect their ability to effectively heat and recovery efforts. impact to the community came from the rising of their homes this winter.

*Summary based on "A Stronger, More Resilient New York" Damage to home in Hamilton Beach Community meeting during recovery effort (SIRR Report) and interactions with the community. Photo sources: Flickr, Pam Andrade 16 | Storm Impacts and Risk Howard Beach Conceptual Plan

Sandy Inundation Map Storm Impacts and Risk | 17 NYRCR Program

Future Risk

The physical factors that led to the tremendous NY Department of State Risk Areas • High: Areas outside the Extreme Risk Area damage caused by Superstorm Sandy remain that are currently at risk of frequent inundation vulnerabilities in the community, and risks may While FEMA’s flood insurance rate maps incorporate (in the 100 year floodplain, the FEMA A-Zone) increase in the future due to sea level rise. detailed analysis of possible storm scenarios, they or at future risk of shallow coastal flooding do not consider future factors such as sea level rise. with sea level rise (assumption of 3 feet). The majority of the Howard Beach planning In order to map and assess risk, taking into account • Moderate: Areas outside the Extreme and area lies in high risk zones, with most of sea level rise and differences in exposure of the High Risk Areas but currently at moderate Hamilton Beach and portions of Old Howard landscape, NYS Department of State developed its risk of inundation from infrequent events (in Beach in extreme risk zones according to own Risk Assessment Area Mapping which takes the 500 year floodplain) or at risk of being NYS DOS risk analysis. Located on a peninsula additional factors into account. This includes a sea in the 100 year floodplain with sea level constructed from landfill, Howard Beach is a low- level rise estimate of three feet, areas expected rise (assumption of 3 feet), and any areas lying community exposed to flooding from Jamaica to be inundated by a category 3 hurricane, areas expected to be inundated by a category 3 Bay and the multiple channels that frame the subject to shallow coastal flooding, and areas of hurricane. neighborhoods. The natural area of Spring Creek the coast subject to shoreline erosion. Considering Park which frames New Howard Beach is slightly these factors, as well as the FEMA flood zones, the elevated and has the potential to provide some state established three risk assessment areas: A more detailed description of the State’s Risk protection from flooding and wave action from • Extreme: Areas currently at risk of frequent Assessment Area Mapping Methodology can be future storms. inundation and vulnerable to erosion and found on the NYRCR website, as can a link to on heavy wave action (in the FEMA V-zone), online viewer for the risk assessment area maps, subject to shallow coastal flooding, or likely at http://stormrecovery.ny.gov/community- to be inundated in the future due to sea level reconstruction-program rise (assumption of 3 feet).

18 | Storm Impacts and Risk Howard Beach Conceptual Plan

Howard Beach Tudor Park

Planning Area Aqueduct Racetrack NYS DOS Risk Zones Extreme High Moderate

Spring Creek Park

Bergen Basin

Shellbank Basin

Fountain Avenue Landfill Hawtree Basin

Feet 0 1,000 2,000 4,000 ¯ NY Department of State Risk Zone Storm Impacts and Risk | 19 NYRCR Program

IV. Rebuilding and Resiliency Planning Process Overview

As previously mentioned, the NYRCR Program community that residents value and/or deem • Established a vision for resiliency and contains 5 key steps for rebuilding and at risk. recovery in Howard Beach. resiliency planning. This section summarizes the • Defined community needs and outcomes of the two steps of the NYRCR Process opportunities by evaluating the issues The results of this collective work will support the that have been completed thus far: Identifying and challenges as well as the resources next steps in the rebuilding and resiliency planning Assets, Needs and Opportunities, and Defining presented by the unique landscape, housing, process, starting with drafting strategies and Community Goals and Vision. economies, demographics, and services identifying potential projects in November 2013. within the community. These recovery and Content completed in the first two steps will evolve Through a series of Planning Committee and Public resiliency needs and opportunities may be through the process and revised content will be meetings, the community: associated with a specific asset or apply to a presented in the Final Community Reconstruction • Identified community assets and risks, community as a whole. Plan delivered at the end of March 2014. noting places or resources within the

Photo credit: Chris Sanchez, NYC sharpshooter

20 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Community Asset Overview

Assets include a variety of places and resources the Planning Committee and the public. The first defined in the NYRCR guidance. The maps were within a community. They may facilitate economic draft of an asset inventory was presented at the then refined by input from the committee. and social activities in a community or may refer first Planning Committee meeting.The inventory to critical infrastructure required to support those was organized in line with the six recovery The maps were subsequently presented to the activities. Assets may also be part of the built or the functions framing the NYRCR Program: public at the first public meeting, where community natural environment. Community Planning and Capacity Building, residents identified any missing assets and identified Economic Development, Health and Social priorities. The Planning Committee then reviewed The goal of the asset inventory process is Services, Housing, Infrastructure, and Natural/ and confirmed the inventory. to assemble a complete description of the Cultural Resources. assets located within a community, targeting Additional public input on assets was captured assets whose loss or impairment due to flood and The inventory and associated maps were initially through an online community asset map located at storm events would compromise essential social, generated using publicly available land use and http://nyrisingmap.org/. economic, or environmental functions or critical infrastructure data to identify assets within the facilities of a community. The inventory aims to planning study area. (The primary data source This interactive map will be available as on online include sufficient information to assess risk to the used was the New York City Department of City reference throughout the NYRCR process. assets under current and future conditions. Planning’s MapPluto data, release 13v1.) The building class values in the MapPluto data were The asset inventory has been developed based assigned to the appropriate asset class categories on a combination of public data and input from

Rebuilding and Resiliency Planning | 21 NYRCR Program

Economic year floodplain due to its location to the north of the Bay Boulevard, and West Hamilton Beach Economic assets are concentrated in three waterways that weave into the community from Old Volunteer Fire Department were identified as primary locations across the Howard Beach Mill Basin and Spring Creek. While the hub did flood critical assets. Both fire departments are located planning area: Coleman Square; along 153rd during Superstorm Sandy, it was one of the only in high-risk areas and efforts should be made to Avenue in Lindenwood; and most significantly, areas that did not fully lose power, and as a result, enhance their resiliency. along the length of Cross Bay Boulevard. All it served as a critical location for residents to get three were deemed important community assets. emergency supplies and food and even power after There are a large number of houses of worship the storm. Given its location, this commercial area throughout the community that serve as important Coleman Square, the smallest commercial is least vulnerable and important to sustain through community gathering places on a regular basis as hub in the planning area is vulnerable. While an emergency. well as in an emergency. Additionally, there are a the area is in Zone A by FEMA designation, New number of schools, organizationally owned facilities, York State’s risk analysis deems it as an extreme The long strip of retail along Cross Bay and community centers throughout the planning risk area. It is located on the eastern edge of Old Boulevard that runs through the middle of areas as well as the office of Senator Addabbo in Howard Beach, just at the main artery that leads Howard Beach serves as the commercial Howard Beach, which served a vital role in recovery into Hamilton Beach, behind the tip of the Hawtree lifeline for the community. There is an abundance after Sandy. Basin and not far from other inlets in the basin. The of shops, restaurants, banks, community facilities, area surrounding Coleman Square floods regularly and other businesses on both sides of the With its rich set of community and social service on moon tides and flooded significantly during boulevard, with the businesses to the east abutting assets, Howard Beach was served during the Superstorm Sandy. Though small, it serves as an Shellbank Basin. Some of the businesses along the recovery from Superstorm Sandy by its strong social important local point for basic goods and services, basin have taken advantage of waterfront access. networks and various common spaces, enabling along with containing a war memorial of historical In addition to the economic assets, the boulevard it to informally organize around both physical and importance to community residents. The Square itself is a critical connector between Howard Beach social structures. However, more formal, protected remains an important resource for the residents of and the rest of Queens, especially because the centers need to be developed to better serve all Old Howard Beach and the surrounding blocks of Belt Parkway forms a barrier within Howard Beach of the communities during and after an emergency. Hamilton Beach. that separates Lindenwood from the New Howard Beach community. The boulevard represents the Housing The commercial hub in Lindenwood sits at a less only access point for Broad Channel, and only Much like many other communities hard hit vulnerable location and has served as a critical one of two roadways across Jamaica Bay to the by Superstorm Sandy, housing was deemed gathering place during emergency events. It is Rockaways. All of the businesses along Cross Bay more critical than any other asset in the located in the middle of Lindenwood, between Boulevard are at high risk due to their proximity to community by both the Planning Committee largely single-family residential neighborhoods to Shellbank Basin. and the public. the west and large multifamily co-op apartments to the east. The area includes a grocery store, banks, Health and Social Services The majority of the residential neighborhoods restaurants, and medical offices. This commercial The New York Fire Department and New York across Old Howard Beach, New Howard area is partially in Zone A, and all of it is in the 500- Police Department Harbor Unit on Cross Beach, Hamilton Beach and Lindenwood were

22 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Health and Social Services

ID asset name B 1 PS 232 Lindenwood B 2 Urology Office (Private) B 3 Catholic Charities Senior Housing B 4 Queens Public Library Howard Beach B 5 St. Helen School B 6 Rockwood Park Jewish Center B 7 Roman Catholic Church of St. Helen B 8 PS 207 Rockwood Park B 9 Howard Beach Judea Center B 10 Ave Maria Catholic Academy & Our Lady of Grace Church B 11 Howard Beach Assembly of God B 12 United States Post Office Station B B 13 B J Coleman Post # 2565 B 14 S.T.A.R.S. Youth Center B 15 St. Barnabas Lutheran Catholic Church B 16 FDNY: Engine 311, Ladder 173, Harbor Unit B 17 PS 146 B 18 West Hamilton Beach Volunteer Fire Department B 19 New York Families For Autism Children B 20 Howard Beach Chabad B 21 United States Post Office Station B 22 Reaching For The Stars Day Care

Economic, health & social services and housing asset map Rebuilding and Resiliency Planning | 23 NYRCR Program

severely flooded. While Spring Creek Park and In addition, the community highlighted the the GNRA lands at the southern edge of Howard footbridge on 163rd Avenue, which provides an Beach helped to stem much of the direct surge east-west connect to Hamilton Beach as well as of water, significant amounts of water pushed the Howard Beach/JFK Airport station, as the through the channels and basins surrounding these only subway station in the community. parklands and water flooded through all of the streets, in some cases coming from multiple sides. Natural and Cultural The communities surrounding Shellbank Basin and The Howard Beach community has a number especially Hawtree Basin experienced the greatest of natural resources, such as Spring Creek inundation from the storm. Additionally, many of the Park, Gemini Fields, and Gateway National single-family homes were built before 1960, which Recreation Area. There are two recreational are at greater risk of structural damage. facilities located within the Gateway National Recreation Area, Charles Memorial Park The Howard Beach planning area is made and Hamilton Beach Park. The residents have up of largely single-family residences, with expressed concern about the lack of maintenance the exception of a cluster of large multifamily co- in the parks in Gateway National Recreational Area. operative buildings on the east side of Lindenwood. Hamilton Beach Park was damaged during Sandy During Superstorm Sandy, these large multifamily and the residents have not been allowed to make buildings did not flood and were able to maintain the necessary repairs. The community highly values power. They are only partially in the 500-year these assets and would like to protect them as part floodplain. As such, they have been excluded from of larger asset and community resiliency projects, in the NYRCR Program planning area. addition to the parks that provide a natural barrier against future storm surge. Infrastructure Cross Bay Boulevard is the main access Shellbank and Hawtree Basins are also critical route to Queens, and 104th Street is the only natural assets to the community, providing access to north-south road in Hamilton Beach; both of boating, fishing and other water-based recreational these assets were deemed critical and both were activities. compromised in Superstorm Sandy.

Three Con Edison substations in the community and a NYC Department of Environmental Protection pumping station were also deemed critical and at high risk.

24 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Infrastructure

ID asset name D 1 Howard Beach-JFK Airport Station D 2 NYC Transit-A Line D 3 NYC MTA Power Station D 4 Foot Bridge D 5 Consolidated Edison Substation D 6 Consolidated Edison Substation D 7 Consolidated Edison Substation D 8 DEP Pumping Station D 9 Canal Aerator Pump D 10 Gas Stations D 11 Airtrain JFK D Buckeye Pipeline (not shown)

Natural and Cultural

ID asset name E 1 Spring Creek Park Addition E 2 Gemini Fields E 3 Gateway Nat. Rec. Area - Charles Memorial Park E 4 Gateway Nat. Rec. Area - Hamilton Beach Park E 5 Gateway National Recreation Area E 6 Gemini Fields/Cedar Lane Stables

Infrastructure systems and natural & cultural asset map Rebuilding and Resiliency Planning | 25 NYRCR Program

Needs and Opportunities

Needs and opportunities represent what a • Surge and flooding – The surge extended of Needs and Opportunities is sorted by the community needs to be safe and sustainable deep into the community, extending up and NYRCR recovery functions in the following through both weather-related events as well as out from the two basins that are so important order: economic, health and social services, impacts from ongoing climate change and/or to the character, daily life, and quality of the housing, infrastructure systems, and natural what opportunities that exist within a community area, as well as through the flooding of Spring and cultural resources. that could be taken advantage of or more fully Creek, which pushed water into Lindenwood developed to better address the community’s and flooded the Belt Parkway from the north. Economic resiliency goals, such as underutilized assets, land • Power outages – Most of the community There is a need to protect the businesses or other resources. lost power, and power was not restored for along Cross Bay Boulevard; further protection weeks after the storm. of the Boulevard itself is critical to ensuring Identifying these needs and opportunities is an • Sewer back-up – Much of the community access in and out of the community, especially in important part of the NYRCR process because suffered from sewer backups as a result of an emergency. To this end, the Shellbank Basin the list reflects the community’s opinion Superstorm Sandy. bulkhead, which protects Cross Bay Boulevard, regarding known or discovered risks, issues needs to be evaluated and methods of flood or challenges, unmet demands, as well as protection improved. It is currently uneven in height untapped potential or opportunity across the The community then determined three and quality, and standards or codes are not in neighborhoods and networks of the community. overarching needs: place to ensure maintenance of the wall. Different sections are owned by a mix of businesses and The Planning Committee drafted an initial • Protect homes, businesses, and critical individuals, resulting in inconsistent protection and list of needs and opportunities based on infrastructure from surge. high-risk points where the bulkhead is weaker or risks, the asset inventory, and the first-hand • Create a resilient power supply for the absent. Depending on the options and methods for experiences of living in the community. The community. building up the bulkhead, there may also be a need list, categorized by the six recovery functions, • Prevent sewer backups. to create a barrier at the mouth of the basin where was vetted and updated by residents at the public it meets the bay. Finally, the individual businesses meeting. These needs and opportunities will form may need to take steps to strengthen their buildings the basis for structuring project proposals designed Beyond this initial focus, a more detailed analysis to become more resilient. to fulfill community needs and to build upon and showed many significant local and specific needs take advantage of opportunities that exist within the that the community is hoping to address through Coleman Square also needs to be strengthened. community. this plan. A needs and opportunity assessment Larger-scale infrastructure projects that block was conducted for both the committee and for or manage the incoming water of Hawtree Basin In determining their needs, the community first the public meeting, which helped to draw out may provide sufficient protection; however, due to identified three major issues: a wide range of both physical and community its extreme vulnerability, the commercial area may capacity building needs. The following listing have additional needs and may need to consider

26 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Community marked up infrastructure systems and natural & cultural asset map identifying need and opportunities Rebuilding and Resiliency Planning | 27 NYRCR Program

solutions that do not fully attempt to keep the water With a high proportion of seniors in the area, during and after emergency events. There is out, but adapt to occasional inundation. senior health and social services in the area an opportunity to create a dual- or multi-purpose especially need to be expanded. This population service center(s) in the underdeveloped spaces at Health and Social Services may require additional assistance in the event of the top of Cross Bay Boulevard, between 155th Overall, the Howard Beach planning area has an emergency. A large baby boomer population in Ave and South Conduit, as well as around the bend a diverse set of community and social service the area also indicates that senior healthcare and at the end of the block where 155th meets 102nd assets, but it is lacking in healthcare facilities. social service infrastructure is important to have and 101st streets. FEMA, Red Cross and the City What is now a senior-living facility at the top of Cross in-place for years to come. used the open spaces at the top of the Cross Bay Bay Boulevard was once a hospital and healthcare as a staging area during Superstorm Sandy, which facility, and there are few health facilities beyond Existing facilities that provide emergency served as a critical hub not just for the Howard some private practices scattered throughout the services need to be made more resilient. The Beach communities, but also for Broad Channel community. Many residents need to leave the area New York Fire Department and New York Police and all of the Rockaways. There is also a need and to access health services. During Superstorm Department Harbor Unit on Cross Bay Boulevard, opportunity to create a new multi-purpose center Sandy, emergency health services were provided along with the West Hamilton Beach Volunteer at the southern end of New Howard Beach along mostly by outside assistance. Furthermore, the Fire Department are located in high-risk areas and Spring Creek Park. According to the Planning majority of health and social assets are located need to be made more flood-proof, as well as have Committee, the Community Board, on behalf of the upland in the community, so residents living closer a reliable power supply and emergency supplies. community, has requested the city create such a to Spring Creek Park and Jamaica Bay do not The same applies to the large number of houses facility. There is a strong desire in the community have the same access to those services. To ensure of worship in the area that served as important to continue to pursue plans for a community facility sufficient emergency care during a life-threatening gathering places during Superstorm Sandy. that could double as a safe, resilient building for weather-related event, health services in the area emergency and post-storm needs in all sections of need to be expanded. Undeveloped land at higher Community members also expressed a need the planning area. elevation, such as in Lindenwood, may serve as a for additional resilient community centers that good location for such facilities. could function as shelters or service centers

28 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

House under renovation-Old Howard Beach Ballfield at Gateway National Recreation Area

View of Howard Beach JFK Airtrain and Subway Station St. Helen's Church and School Rebuilding and Resiliency Planning | 29 NYRCR Program

Housing is extremely high—due to their concentration, of green and grey solutions, utilization of the broad There is a lack of clear information and training diversity of services offered, location, and economic stretch of open space along its edge, and rethinking around how to rebuild damaged homes. The contribution to the community—and they need to the drainage strategy for its streets may all play Planning Committee has expressed confusion and be better protected. Because of its less at-risk a role in mitigating some flood activity. However, frustration around understanding building code location and the important role it played during Howard Beach cannot change the fact that it is a changes and the financial implications of raising Superstorm Sandy, the Lindenwood commercial flat, low-lying community that sits along the edge or not raising homes within the boundaries of the area needs to be bolstered to ensure even better of a large water body that lets out into the Atlantic FEMA flood map. The community needs help service provision during an emergency. In addition Ocean. better understanding the issues and implications to maintaining the existing economic assets, it is associated with flood insurance. There is an worth evaluating what else the commercial hub The community must be strengthened at the opportunity to create training and communication needs to expand its value in an emergency, such as edge. Indications from the storm are that the programs to help individuals understand and make backup generators, emergency medical supplies, surge manifested itself through water rising out decisions about their homes. or additional food. There is an opportunity to make of Shellbank and Hawtree Basins. Once topped, this a stronger economic anchor for the community. the floodwaters flowed out across this mostly flat Given the dense residential fabric across community. Additional flooding back-ended into the the blocks of Howard Beach, the community Infrastructure Systems community through Spring Creek, which lies at the needs to better protect its housing assets. The Planning Committee noted that much of far western edge of the community. Protecting homes can be achieved in numerous the Howard Beach planning area was built on ways, ranging from large infrastructure projects to low-lying marshland, and the area has been There are some areas within the community flood-proofing first floors, to, in some cases, raising experiencing minor flooding problems for several where houses are set right on the water, without homes to a higher elevation. All options should be years as a result. Howard Beach is a mostly basements, where elevating the homes may in the explored and evaluated as part of the next steps in established community, much of its housing having short-term or long-term pose the most resilient local the NYRCR Program. been built prior to the 1980s, with infill individual solution. However, much of the community consists tear-downs and upgrades making for most of the of traditional single and two family wood frame Finally, there is a need for no-cost or low-cost recent development activity. The supporting storm and brick constructed homes with basements, financing to help people fund housing resiliency and sanitary systems for development were built typologies that do not lend themselves to being improvements. The sources of this financing out as the development expanded south from the elevated. For this reason, a more formal edge could come in the form of low-cost loans from Belt Parkway towards the waterfront. Superstorm strategy for protection against surge is warranted. community banks, or tax-incentive programs from Sandy brought into sharp focus the challenges this the government. community faces from rising waters and flooding. There is a need for storm-resistant power Solutions to the flooding problem will need to stations and a resilient power supply. The Distributed across the planning area, commercial focus on the streets and the storm and sanitary power went out on Howard Beach as local electrical hubs serve as important service centers for infrastructure and will likely require both short-term, power stations that had previously seemed safe surrounding residents, and require bolstering in small-scale and potentially long-term larger-scale from flooding were in the path of the flooding in some way. The value of these economic assets interventions. The opportunity for a combination Howard Beach. There are three power substations

30 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan in Howard Beach, and it appears that all were Natural & Cultural Resources managed by the National Park Service in Howard completely or partially compromised during the Open space in the community was more Beach. This will be especially important if park storm. These three locations could be the focus of successful than other areas at guarding space is expanded as part of the protection effort. specific short-term local protection interventions to against inundation and provides an opportunity ensure that power is maintained. for surge protection. It is important to note that Coordination with other communities is needed while any strategy to protect against flooding to develop a regional strategy for protection of An effective strategy to mitigate against sewer at Shellbank and Hawtree Basins and Spring Jamaica Bay. As the Howard Beach community back-up is needed. There is a need to understand Creek will be challenging, the large tracts of open thinks about local protection strategies, there is a how the community is impacted by sewer back- space, primarily within the National Park Services’ recognition that a more regional protection strategy up. A continual problem for some residents, sewer Gateway National Recreation Area, were much should be considered. Coordinating the approach back-up was a widespread problem during Sandy. more successful in holding back the surge waters. between local and regional strategies will be very important to the community. The active recreational park space in Howard Beach needs a better maintenance regime. Multiple agencies at the local, state, and federal As the community addresses coastal resilience level are already working on solutions for making strategies, there is a need to form a more effective Jamaica Bay more resilient. These efforts will be ongoing maintenance strategy in the parks that are watched closely as this project progresses.

Rebuilding and Resiliency Planning | 31 NYRCR Program

Public Meeting 1: Needs and Opportunities Comments*

Overall Infrastructure Housing Neighborhood quality Protect Streets Help understanding/complying “sidewalks are cracked” “Raise streets max 1ft in Hamilton Beach” with new regulations “Road raised on 102nd St and 160th Ave going out of “Aid in helping raise home to meet new FEMA flood Overall community” map” Improve street tree maintenance “raise boardwalk along Gateway Park” “Not a lot of the houses can be raised” “Remove over grown trees” “Tell is what can we do to reduce flood insurance “Cutting trees/maintenance creates probs. in storms if Infrastructure cost. High cost will kill the area” not cut back” Improve mass transit “Improve transportation system” Housing “Better transportation system” Continue/complete Recovery Infrastructure “Homes are not fixed yet” Provide storm surge protection Health and Social Services: “Demolish home that are no longer habitable in “Prevent surge and future flooding - sewer drainage” Support Community resources Hamilton Beach, etc.” “Build a seawall around Charles Park” “Churches very imp. for information” “Levy’s on dams on 95th & 99th Str & Hamilton” “Protect and preserve community organization (Our Housing Lady of Grace)” Assist vulnerable populations Infrastructure “need a better handle where vulnerable population are Improve water drainage Health and Social Services: & where mobility-impaired are” “clean out storm sewers before a storm” Improve communications “Fix-sewers (near 95th st)” “where to go, what info on help; communication “Stop flooding on 99th St” resources” “Close off sewer into canal. Duck flap.” “communication sources - something set up ahead of “stop flooding in Coleman Square” time so people know where to go”

*Representative list of needs and opportunities provided by the community at Public Meeting 1.

32 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Community Vision

The Howard Beach community is a grouping of In response to the devastating impacts of Superstorm looking to more effectively manage and activate its primarily residential neighborhoods, consisting of Sandy, preservation of the area’s physical assets open spaces and community assets to enhance young people, families and senior citizens living in a is critical, but the vision for this community quality-of-life while providing a resilient place for waterfront setting on the northern edge of Jamaica extends to the social, cultural, and demographic future generations to live, work and enjoy the truly Bay. The four neighborhoods of Lindenwood, New characteristics that define this particular place and unique and beautiful assets available to this place. Howard Beach (Rockwood Park/Spring Park), Old make it a special home to its inhabitants. The vision Howard Beach and Hamilton Beach (Ramblersville) for resilience focuses on protecting its homes, The committee has documented a preliminary have united to work together towards a coordinated businesses, and critical infrastructural systems vision statement to capture the essence of this set of community goals that benefit the greater against future storm events and safeguarding its philosophy: good of the community. commercial core, which provides for its senior and other vulnerable populations. Howard Beach is also

“To be a vibrant and sustainable community that enables residents and visitors to enjoy the bounty of its commercial strip and the natural beauty of Jamaica Bay.”

View of Joseph P. Addabbo Memorial Bridge from Gateway National Recreation Area

Rebuilding and Resiliency Planning | 33 NYRCR Program

V. Additional Considerations Regional Perspectives

Jamaica Bay and Rockaway of flooding in addition to posing serious risk during All of the Jamaica Bay communities suffered Peninsula Overview elevated tides and emergencies. Sheepshead Bay significantly during Superstorm Sandy, some Connected hydrologically and ecologically, and channels bordering Gerritsen Beach were also from flooding or surge and some from wave Jamaica Bay is a unifying feature tying sources of flooding during the storm. action damage. According to an assessment together six NYRCR community planning conducted by NYC Department of Buildings, 37 areas: Breezy Point, Rockaway West, Rockaway Communities along the bay side of the 11-mile- percent of the buildings destroyed during Hurricane East, Broad Channel, New and Old Howard long Rockaway Peninsula are also at risk. Sandy were located in this region. Homes, Beach, and Gerritsen Beach/Sheepshead Bay. Some communities sit directly on open beaches and businesses, beaches and parklands, schools, A seventh planning area, Brighton Beach, Coney others are buffered by open space and marshland, roadways, and mass transit were all damaged; the Island, Manhattan Beach, and Sea Gate, is also but the bulk of the bayside is protected by a seawall area also endured one of the most extensive and in close proximity at the mouth of the bay. With which was overtopped during Sandy. Many natural long-lasting power outages in the City. their shared shoreline, these communities share and constructed protective features around the bay climate change-related risks, and collaboration are insufficient, aging, or inadequately maintained, Flooding risks are likely to be exacerbated can produce solutions that address recovery and leaving significant flooding risk for all of these throughout the bay by projected sea level rise resiliency needs affecting the bay as a whole. communities. associated with climate change. According to FEMA’s Preliminary Work Maps, the 100-year Regional Resiliency Issues On the ocean side, the Rockaway Peninsula floodplain in the area has expanded for the borough Situated on land that originally made up a faces risks due to its extensive unobstructed of Queens by 40 percent since 1983, and floodplain series of barrier islands and marshland, these coastline. While much of the coastline contains expansion has been especially dramatic for the Jamaica Bay communities have a similar beaches, many lack extensive protective features Jamaica Bay/South Queens area. geomorphology and feature soft, marshy soil. and experience regular erosion. At the same At the lowest elevation of any area in New York time, the Rockaway Peninsula provides valuable Many Jamaica Bay communities also face City, many of them are located at sea level, making protection to communities within the bay, acting insufficient emergency access. Single access some vulnerable to flooding even during normal as a barrier island and reducing surge and wave routes to communities such as Breezy Point and high tides. Broad Channel, New and Old Howard heights within the bay itself. The beach nourishment Broad Channel and certain parts of Old Howard Beach, and Hamilton Beach feature housing and and dune-building efforts being undertaken by the Beach, including bridges and roadways that were important commercial corridors adjacent to the United States Army Corps of Engineers (USACE) on damaged or flooded, also constrained emergency waterways or on piers and are protected by varying the Rockaway Peninsula therefore have potential response and hindered evacuation. types of built bulkheads, barrier walls, and stilts. risk-reducing impacts for all communities on the The bay feeds into inlets and basins in New and bay. There are also ecological factors to consider: Old Howard Beach that can be a regular source Jamaica Bay is a tidal estuary. Though severely

34 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Red Hook Howard Beach

Broad Channel Sheepshead Bay Jamaica Bay

Rockaway Gerritsen Beach Community Park

Rockaway East Jacob Riis Rockaway Inlet Park

Brighton Beach Rockaway West Coney Island Manhattan Beach & Sea Gate Breezy Point Atlantic Ocean

Feet 0 4,500 9,000 18,000 ¯

Rebuilding and Resiliency Planning | 35 NYRCR Program

degraded over the 19th and 20th centuries, it is and Federal agencies active within the bay and a variety of ecological improvements and pilot still a dynamic ecosystem providing critical habitat will be needed. The newly formed Jamaica Bay projects. to a variety of species, including a number of Resiliency Institute, established through an initiative protected and threatened birds and other species to be led by CUNY in partnership with NYC, the Gateway National Park General Management who inhabit both the beach and bay. Habitat loss National Parks Service (NPS), and Trust for Public Plan. The majority of the undeveloped land in and degradation of the bay’s chemical, physical Land, among other organizations, is a potential and around the bay is part of Gateway National and biological environment has largely been due to partner and presents an opportunity for NYRCR Recreation Area, one of the nation’s few urban human activities, although by the city and federal communities in Jamaica Bay to collaborate with national parks, encompassing 26,607 acres in agencies over the last two decades have yielded other organizations and agencies. Brooklyn, Queens, Staten Island and New Jersey. dramatic improvements in the bay’s water and Given this large presence, the National Parks Service habitat quality. Existing Plans, Studies, and will be an important player in resiliency efforts in Projects the bay. The park is currently updating the General In this hydrologically connected system, Management Plan, which has been prepared over projects and interventions in one area of the In order to avoid duplication of plans and to the last four years and will guide future management bay can have ecological and coastal protection best identify how the NYRCR Program may of the park. The public comment period for the ramifications across the estuary. The cumulative fill existing gaps, the consulting team has Plan's EIS concluded on October 22, 2013. impact of individual projects implemented in different reviewed past and ongoing plans, studies, and locations around the bay can be greater than the projects in Howard Beach and surrounding USACE Efforts. The USACE is also a major sum of their individual impacts. At the same time, areas. Major existing plans, studies, and projects player in both coastal protection and ecological interactions between projects can sometimes have in Jamaica Bay and citywide are described below. restoration efforts within Jamaica Bay. In addition negative effects including, though rarely, induced Relevant plans and projects specific to Howard to the emergency beach nourishment and dune wave or surge activity. Beach are also described in more detail in the construction projects completed and ongoing matrix that follows. on the Rockaway Peninsula, the USACE has a Because of these interdependencies, the number of ongoing studies and projects in the bay six NYRCR bay communities will form a Jamaica Bay Initiatives which could provide resiliency benefits for NYRCR Jamaica Bay NYRCR Working Group. The NYC Department of Environmental communities. These include studies that pre-dated group will review respective Conceptual Plans Protection’s Jamaica Bay Watershed Superstorm Sandy as well as post-Sandy updates and assess opportunities to strategically protect Protection Plan. Authorized in 2005 and initially to the previous plans and studies. their communities in concert. These regional published in 2007, the plan is intended to support strategies will be included in the Final Community restoring and maintaining the water quality and Hudson Raritan Estuary (HER) Comprehensive Reconstruction Plans. ecological integrity of the bay. A number of ongoing Restoration Plan (CRP). Adopted in 2009, the initiatives driven by this plan include wastewater HER-CRP was developed in collaboration with To maximize benefits and minimize risk, treatment upgrades, green infrastructure and federal, state, municipal, and non-governmental coordination among efforts by NYRCR other stormwater management improvements organizations as well as other regional stakeholders. communities as well as the various City, State It sets forth a consensus vision, master plan and

36 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

strategy for ecosystem future restoration in the New draft report is expected in October of 2015, will states of review by the council, but five initiatives York/New Jersey Harbor. In Jamaica Bay, the plan investigate flooding on the Jamaica Bay side of the have been passed. In addition, the Department identified 39 potential restoration sites. Some of peninsula and evaluate potential coastal storm risk of City Planning's Flood Resilience Zoning Text these restoration projects have been acted upon, management reduction measures. Amendment was approved by city council on but most have not. October 9th. The report and latest updates on Additional Citywide Initiatives implementation can be found on the SIRR website: Jamaica Bay, Marine Park and Plumb Beach, Special Initiative for Rebuilding and Resiliency. http://www.nyc.gov/html/sirr/. New York Ecosystem Restoration Feasibility On June 11th, Mayor Michael Bloomberg announced Study. The study is a joint undertaking of the the release of “A Stronger, More Resilient New NYC Recovery Program. In addition to resiliency, USACE and the NYCDEP and is intended to York,” (SIRR Report) forming New York City’s plan the City has launched several initiatives to help provide an expedited limited reevaluation of USACE for rebuilding post Sandy and ensuring resiliency residents across the five boroughs recover from restoration projects in the bay to address post- into the future. The plan contains actionable the damaged caused by Sandy. The City’s “Build Sandy changes. The interim draft report identified recommendations both for rebuilding communities It Back” program seeks to assist homeowners, 8 priority restoration sites (550 acres) from the in the City impacted by Sandy and for increasing landlords, and tenants whose homes were HRE-CRP recommendations, 6 of which are in the resiliency of buildings and infrastructure city- damaged by Sandy. The NYC Recovery Program NYRCR Communities: Dead Horse Bay, Paerdegat wide. All NYRCR communities within the city will is also offering business loans and grants to Basin, Fresh Creek, Spring Creek, Hawtree Point, need to coordinate their proposed projects with small business owners damaged by Sandy. Most Bayswater State Park, Dubos Point, and Brant the initiatives proposed in the City’s Plan. Specific of these recovery programs support resiliency Point. In addition, the feasibility study will look at initiatives for Howard Beach proposed in the SIRR investments and will help improve individual Marsh Island Restoration Projects and two other Report are summarized in the “Existing Plans and homes and businesses in the communities restoration projects being undertaken under Projects” table at the end of this section. More surrounding Jamaica Bay. More information on the USACE’s Continuing Authorities Program – broadly, the plan lays out numerous city-wide the NYC Recovery program can be found here: Gerritsen Creek and Upper Spring Creek, as well initiatives to improve resiliency for systems including http://www.nyc.gov/html/recovery/. as ongoing USACE Storm Reduction Studies and coastal protection, buildings, insurance, utilities, Navigation projects in area. liquid fuels, healthcare, telecommunications, FEMA Flood Maps and Flood Risk Assessment. transportation, parks, water and wastewater and FEMA describes its assessment of flood risk East Rockaway Inlet to Rockaway Inlet other critical networks which NYRCR communities through flood maps referred to as Flood Insurance (Rockaway Beach). This project is a reevaluation will need to coordinate with their own proposals. Rate Maps (FIRMs). These maps are used by the of the recommendations of the existing USACE National Flood Insurance Program (NFIP) to set plan for the area in light of the impacts of Sandy. Particularly relevant to NYRCR communities flood insurance rates. When Superstorm Sandy hit Phase 1, for which the draft report should be are ongoing and potential future updates New York City, the FIRMs in use were based on completed this Fall, looks at Beach Nourishment to the building and zoning code. The City’s information from 1983. Sandy inundation extended and additional erosion control and/or storm Building Resiliency Task Force identified 33 well beyond what these maps estimated would be damage risk reduction measures on the ocean side recommendations to the City Council. Many the 100 year floodplain, calling attention to the fact of the Rockaway Peninsula. Phase 2, for which the of these recommendations are still in various that an update to these maps was needed. In fact,

Rebuilding and Resiliency Planning | 37 NYRCR Program

before Hurricane Sandy, FEMA had begun a coastal level rise. The New York City Panel on Climate Based on review of existing plans and initial flood study to update FIRMs for portions of New Change (NPCC) is continuing to analyze potential engagement, existing gaps in planning include: York and New Jersey using improved methods and climate change impacts on New York City, namely data to better reflect coastal flood risk. sea level rise. The NPCC released a report “Climate • Surge protection for the Shellbank and Risk Information 2013: Observations, Climate Hawtree Basins, and Spring Creek. After Sandy, FEMA first released Advisory Base Change Projections, and Maps” in conjunction • Resiliency of the commercial corridors Flood Elevation (ABFE) maps based on the partially with the SIRR Report and provides New York City’s including Cross Bay Boulevard and Coleman completed flood study for certain communities which estimates for sea level rise over various time frames. Square. were designed to help in rebuilding and recovery They are expected to update these estimates in the • Hardening of community social services and efforts. In June of 2013, FEMA released preliminary near future. In addition, New York City has hired the evacuation plans for disabled and senior work maps for New York City, including the full Steven’s Institute of Technology to map flood zones populations. results of the coastal flood study. The preliminary with added sea level rise for future decades. This is • Determining funding and priority of Jamaica work maps are based on the same underlying data being done within the NPCC framework and will be Bay resilience restoration projects. as the earlier ABFE maps, but include the results reported and released through NPCC this winter. of a more refined analysis of shoreline conditions, including the effects of erosion and wave runup. In summary Existing plans, studies, and projects are summarized The maps are a “draft” product that FEMA shared Key takeaways from review of existing plans, in the below matrix indicating the organization in advance of the preliminary FIRMs, which are studies, and projects that specifically address leading the planning process, key analysis and expected to be released by the end of 2013. The Howard Beach include: proposed initiatives, the Recovery Functions these final updated FIRMs are anticipated to be released initiatives address, and the status of the plan, study, in 2015. These final FIRMs will guide new Flood • Planning for Jamaica Bay restoration and or project. Insurance rates for homeowners and businesses in resilience is already being carried out, led by the floodplain. USACE. • Infrastructure projects – including roadway, FEMA’s flood maps do not take into account future transit, sewer, and bulkhead – are in design conditions and thus do not factor in potential sea or under construction.

38 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Detailed List of Plans and Projects

Plan/Project Name Initiative Description 6 Recovery Functions Sub-Category Status (Pre-Planning, (Pre-Planning, Planning, Under Planning, Under Construction, Complete/In Operation) Construction, Complete/In Operation) Lead Organization(s) Community Planning & Capacity Building Economic Development Health & Social Services Housing Infrastructure Natural & Cultural Resources A Stronger More OLTPS Call for USACE to develop an X Coastal Resilient New York (SIRR implementation plan to mitigate Protection Report) inundation risks through Rockaway Inlet, exploring a surge barrier and alternative measures A Stronger More OLTPS Raise bulkheads in low-lying X Coastal Resilient New York (SIRR neighborhoods across the city to Protection Report) minimize inland tidal flooding A Stronger More NYCEDC Develop an implementation plan to X Coastal Resilient New York (SIRR / OLTPS address frequent tidal inundation Protection Report) in Broad Channel and Hamilton Beach, incorporating international best practices Comprehensive USACE CRP SITE 104. Spring Creek X Ecological Southern portion has been funded Restoration Plan (CRP) Restoration, for restudy/reformulation by USACE for the Hudson Raritain Coastal as part of the Jamaica Bay Feasibility Estuary protection Study. Comprehensive USACE CRP SITE 160. BERGEN BASIN X Ecological Restoration Plan for the Restoration Hudson Raritain Estuary Comprehensive USACE CRP SITE 161. HAWTREE POINT X Ecological This site has been funded for restudy/ Restoration Plan for the Restoration reformulation by USACE as part of Hudson Raritain Estuary the Jamaica Bay Feasibility Study.

Rebuilding and Resiliency Planning | 39 NYRCR Program

Lead organizations referenced in chart: OLTPS - NYC Office of Long-Term Planning and Sustainability NYCEDC - NYC Economic Development Corporation USACE - U.S Army Corps of Engineers NYCDDC - NYC Department of Design and Construction NYCDOT - NYC Department of Transportation

40 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

VI. Preliminary Projects and Strategies and Next Steps out by floodwaters. All three now sit within the community leaders note that many streets are set The Howard Beach community has already high-risk zone in Howard Beach. Either through well below the intended elevation and that there identified a number of critical needs, focused both protection of these facilities or through the possible may be opportunity to raise low-lying streets to on physical infrastructure and community capacity relocation of one or more facilities to higher ground, protect against flooding. building. Keeping with their vision of solving critical a much more resilient power infrastructure can be needs with a combination of short- and long- achieved. Natural and Cultural term strategies, the initial project opportunities Protect the edge. involve both shorter-term actions and longer-term Increase access to isolated sections of interventions. The over $18 million in CDBG- The entire edge of Howard Beach consists of the community – especially Hamilton DR funds available for the community will help to parkland (either natural area or beach) or water Beach. support the short-term strategy that the community basins. When Superstorm Sandy struck, the main is formulating. The long basins that stretch deep into Howard flooding came in through the basins and not over Beach reduce the ability for automobiles and the coastal edge. There is significant room between While the community planning process is focused pedestrians to move laterally—east to west through where housing ends and the coastal edge where on fully fleshing out needs and opportunities, even the community. The lack of mobility is a concern on-land protection strategies can be integrated into at this early stage, the needs suggest a number of during evacuation and in general when considering the park space. The community has noted that they project proposals that warrant further review and the need to build for resilience. The issue is would like a better long-term park maintenance refinement. particularly acute in Hamilton Beach, where the strategy, and this strategy could be incorporated Hawtree Basin extends inward as a creek, leaving into a coastal protection strategy to both protect The following proposed projects are set forth in no a single means of egress out of this residential area the edge and greatly enhance the park amenity that particular order. along 104th Street. can be such a value to the community. However, the critical protection point lies at the water line Preliminary Projects If this road becomes impassable, Hamilton Beach along the Shellbank and Hawtree Basins and along will be cut off. The only other means of egress is Spring Creek. It was along these waterways where Infrastructure a pedestrian bridge at 163rd Avenue. Building the water poured into the community. Protection to Develop a protection strategy for local additional egress into and out of this community hold back the water along these basins will be vital power stations. should be a priority. New egress could also be to any coastal protection strategy. One additional One clear need is to keep the lights on throughout combined with protection strategies if set along the consideration to support a coastal protection future storm events. During Sandy, and for weeks coastal edge of the community. strategy is that there is height along both edges after, the power was knocked out and took of the community. On the west is the Penn and significant time to get back on line. Although more Raise low-lying streets. Fountain landfill, the highest point in this mostly low- research is needed, the opportunity to solve this Much of Howard Beach was built on former lying region. On the east is the right-of-way for the problem locally exists. There are three substations marshland. Over the years, the marshland has A subway line. Between these edges lie the three in Howard Beach, at least two of which were taken settled, making a low-lying area even lower. The

Rebuilding and Resiliency Planning | 41 NYRCR Program

waterways and an extensive length of beachfront supplies. Additionally, there is community demand Bay Boulevard, must be improved and its height and wetland property. for a new multi-purpose center at the southern made more consistent. Depending on the options end of New Howard Beach along Spring Creek and methods for building up the bulkhead, other Health and Social Services Park, which could double as a resilient shelter and potential projects may include creating a barrier Expand healthcare and social infrastruc- gathering place both during and after emergency at the mouth of Shellbank Basin where it meets ture to support the community’s senior events. Jamaica Bay. population. The community has noted that there is a significant Enhance the resiliency of the New York Surge protection for Coleman Square. senior population in Howard Beach. During and Fire Department and NYPD Harbor Unit Protecting this commercial and transportation hub after the storm, when the community realized the facility on Cross Bay Blvd. and the West may entail larger-scale infrastructure projects that extent of the damage and destruction, it became Hamilton Beach Volunteer Fire Depart- block or manage the incoming water of Hawtree apparent that very little information about the ment. Basin. Due to the area’s extreme vulnerability, location and needs of the senior community was Both fire departments and police departments were however, projects that adapt to some level of available. Coupled with the lack of infrastructure to identified as critical assets by community members inundation should also be considered. support the senior population in Howard Beach, the and are located in high-risk areas. Making these community wants to first understand the needs of buildings more resilient could include strengthening Training and communication programs its senior population and then develop strategies the buildings themselves to ensuring sufficient around rebuilding program and financing and infrastructure to support that community. For emergency supplies and backup generators. options. example, there may exist an opportunity to expand The Planning Committee expressed confusion and the health services already provided by the senior- Economic frustration around understanding building code housing development in the area to serve a larger Protect commercial areas and corridors, changes and the financial implications of raising population, either through enlarging the existing such as Cross Bay Boulevard and or not raising homes within the boundaries of the facility or building new facilities in the underbuilt Lindenwood commercial area. FEMA flood map. There is an opportunity to create space surround the housing. This should entail efforts to make buildings in training and communication programs to help these areas more resilient, including flood-proofing individuals understand the issues and implications Build dual- or multi-purpose service ground floors, in addition to ensuring power, around flood insurance and making improvements center(s). medical, and food supply for the area through to their homes. There may also be an opportunity There is a need for additional community centers backup generators, emergency medical supplies, to create an assessment and appraisal program to that can double as gathering and food distribution or additional food. Cross Bay Boulevard, as the help residents gain access to experts who can help centers during the event of an emergency. road that serves as the primary access point into them understand the real physical risks and needs Permanent, resilient structures could be built out in and out of the community, particularly needs to for their homes. identified open spaces or they could simply be used be strengthened and protected. To this end, the as storage spaces for emergency equipment and Shellbank Basin bulkhead, which protects Cross

42 | Rebuilding and Resiliency Planning Howard Beach Conceptual Plan

Housing projects. The Community Reconstruction Plan will • Target goals, timelines and project budget for Project: Low-cost financing to help resi- be completed on March 31st of 2014. each responsible party dents fund housing resiliency improve- • Process for amending the work plan should ments. Implementation Planning timeline lapse or costs exceed projected Financing could come in the form of low-cost After defining priority projects and actions, budgets loans from community banks or the government or the Committee will utilize the expertise of through tax-incentive programs. its planning team to identify a path towards To accomplish certain infrastructure projects, implementation. regulatory and legislative changes may be Next Steps required. In these instances, the plan will include The goal for the implementation plan will be to the process for which these changes can be The Conceptual Plan is the first critical milestone achieve actionable results for the community which achieved. Regulatory and legislative changes could in the NYRCR effort. The next step in the plan will focuses on four core components: regulation, include changes to current zoning and/or permitted be to evaluate these proposal concepts and any funding, complementary programs, and uses in a specific area. The implementation plan others brought forth by the community through building capacity to implement. will identify the regulatory and legislative entities our next public meeting. These proposals will be that will be engaged to initiate the changes as researched to understand their ability to reduce risk, The plan will identify: well as the community representative who will whether they are technically feasible, their order-of- • Order-of-magnitude project costs associated champion and push for the appropriate regulatory magnitude cost, whether there is a funding source with implementing resiliency projects or legislative change. The implementation plan will and/or funds available, and what co-benefits can • Potential funding sources for projects consider Howard Beach's resources and identify be achieved. if implementation can be achieved with existing • Detailed work plan outlining activities to resources or if additional staff will be required, and if implement proposed actions including Short-term and long-term projects will then be so, the mechanisms for securing and managing the regulatory actions and program development coordinated to formulate an overall plan of action additional resources. as well as infrastructure investment for resilience for the community. There will be three additional public meetings to refine the plan and the • Responsible parties for each of the activities to be conducted in accordance with the recommended project

Rebuilding and Resiliency Planning | 43