Executive Summary Es.1 Introduction
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MTA New York City Transit Fulton Street Transit Center FEIS and Section 4(f) Evaluation EXECUTIVE SUMMARY ES.1 INTRODUCTION The Federal Transit Administration (FTA), in cooperation with the Metropolitan Transportation Authority (MTA), MTA Capital Construction (MTACC) and New York City Transit (NYCT), proposes the construction and operation of the Fulton Street Transit Center (FSTC) to improve access to, from and within Lower Manhattan—the area south of Chambers Street in Manhattan. The Proposed Action consists of the construction and operation of a rehabilitated, reconfigured and enhanced multi-level, street-level, and subsurface station complex in Lower Manhattan that would serve 12 NYCT subway lines. The complex would extend from Church Street in the west to William Street in the east. The entry facility (“Entry Facility”) to the FSTC would be located on Broadway between Fulton and John Streets with a subsurface pedestrian passageway extending on Dey Street west to Church Street. The FSTC would include improvements to the following four (4) existing connected subway stations that comprise the existing Fulton Street – Broadway Nassau Subway Station Complex (Existing Complex): • 45 Fulton Street; • AC Broadway-Nassau; • 23 Fulton Street; and, • JMZ Fulton Street. In addition to the four (4) existing connected subway stations, the Proposed Action would also include improvements to the RW Cortlandt Street Station and the E World Trade Center (WTC) Station. In aggregate, the Proposed Action involves six (6) principal elements: 1. A new prominent Entry Facility at street-level, with a subsurface level passenger concourse (i.e. the Central Station Concourse), centrally located on Broadway between Fulton and John Streets that: integrates horizontal connectivity between the AC and 45 service with vertical connectivity between the street and different levels; and, provides improved street-level access and visibility. 2. Rehabilitation of the 45 line Fulton Street Station and the 23 line Fulton Street Station. 3. A subsurface pedestrian passageway (i.e. the Dey Street Passageway), beneath Dey Street between Broadway and Church Street connecting the Entry Facility to the WTC site with an access structure on the south side of Dey Street at Broadway (i.e. the Dey Street Access Plaza). 4. Improvements to the mezzanines and platform access at the AC line Fulton Street Station and JMZ line Fulton Street Station, improving circulation and reducing overcrowding conditions. 5. A pedestrian and passenger connection between the RW and E service. 6. Improved street access to the subway, including wider and more direct stairways, access for disabled customers, and new street entrances. The FSTC would provide direct access to the future concourse at the WTC site, from which access to a variety of transit options similar to those existing prior to September 11 is anticipated to be available, including: • The reconstructed 19 line Cortlandt Street Station; • The reconstructed Permanent WTC Port Authority Trans-Hudson (PATH) Terminal to the west; and, • The ferry terminal at the World Financial Center (WFC) further to the west. October 2004 Executive Summary ES-1 MTA New York City Transit Fulton Street Transit Center FEIS and Section 4(f) Evaluation Improvements to transit facilities, particularly to the existing complex of stations encompassed by the Proposed Action, are not only needed to restore transportation functionality in support of the revitalization of Lower Manhattan, but to accommodate the range of changes that September 11 has triggered in the broader context of Lower Manhattan’s recovery. This includes the redevelopment of the WTC site, changes in the uses of certain buildings from commercial to residential, and anticipated substantial increases in visitor activity. Improvements to Lower Manhattan’s existing transportation facilities would substantially improve the quality of daily life for the area’s residents and workers and improve visitor experiences. These advances are important in retaining and developing Lower Manhattan’s commercial base. The FSTC is one (1) of three (3) currently identified priority transit projects meant to address the urgent need for comprehensive transit improvements in Lower Manhattan in response to the events of September 11. The two (2) other priority projects are the WTC Transportation Hub (also referred to as the Permanent WTC PATH Terminal), sponsored by the Port Authority of New York New Jersey (PANYNJ), and the South Ferry Subway Terminal Project, sponsored by the MTA and NYCT. These priority projects were formally identified by New York Governor George Pataki as the “Lower Manhattan Transportation Recovery Projects” through a coordinated process conducted in late 2002 and early 2003 by the Transportation Working Group, a group of decision-makers including the State of New York, the City of New York, MTA, PANYNJ and the Lower Manhattan Development Corporation (LMDC). On February 27, 2003, U.S. Transportation Secretary Norman Y. Mineta announced the selection of these projects as a group of nationally recognized transportation projects designated to receive high-level attention under President Bush’s September 18, 2002 Executive Order 13274, Environmental Stewardship and Transportation Infrastructure Project Review. This designation is intended to help expedite the rebuilding of the transit system damaged in the terrorist attacks as the projects advance through the National Environmental Policy Act (NEPA) review process. The Proposed Action represents a much-needed enhancement of the transit facilities in key Lower Manhattan locations and also forms an essential node within the larger context of the regeneration of Lower Manhattan. As such, the Proposed Action would continue to be developed in close consultation with the other planning entities in Lower Manhattan. ES.2 PROJECT PURPOSE AND NEED The events of September 11 destroyed critical portions of the Lower Manhattan transportation system, compounding existing deficiencies and jeopardizing the area’s sustainability as a Central Business District, emerging residential area, and key tourist destination. Rebuilding the Lower Manhattan transportation network— restoring service, eliminating deficiencies and anticipating future needs—is a critical basis for the successful revitalization of Lower Manhattan. The New York City’s Vision for Lower Manhattan (the Mayor’s Vision) outlines the transportation needs of Lower Manhattan as well as the importance of connecting Lower Manhattan to the rest of the Tri-State area as part of the revitalization process. The concentration of subway lines at the centrally located Existing Complex makes it integral to this revitalization process. In order for the Existing Complex to realize its potential for contributing to the revitalization of Lower Manhattan and the region, its existing and anticipated operational deficiencies need to be addressed and its connectivity with other transit services and the street network needs to be improved. The Existing Complex is critical to the restoration and revitalization of the local and regional economy for the following reasons: • The Existing Complex houses the largest concentration of subway services in Lower Manhattan; • The Existing Complex is located in close proximity to other transit services (such as the PATH service) and to existing and future centers of activity, including the redeveloped WTC site and Memorial; and, • The Existing Complex is located centrally within the Lower Manhattan street network. October 2004 Executive Summary ES-2 MTA New York City Transit Fulton Street Transit Center FEIS and Section 4(f) Evaluation In order for the Existing Complex to maximize its contribution to the economic recovery of Lower Manhattan and the region, and meet the increased transportation demand anticipated with the regeneration and growth in Lower Manhattan, substantial improvements are needed, including: • Improved connectivity of the Existing Complex with the WTC site and Memorial, WFC and PATH service; • Elimination of existing operational problems of the Existing Complex (including resolution of congestion); and, • Enhanced street-level wayfinding and access to the subway system. The proposed FSTC would be able to adequately accommodate present customer demands and anticipated year 2025 levels of demand for movement to, from, and within the FSTC. ES.3 ANALYSIS FRAMEWORK This FEIS has been prepared pursuant to NEPA, 42 U.S.C. Section 4321 et seq., and the New York State Environmental Quality Act (SEQRA), Article 8 of the New York Environmental Conservation Law, Section 8-0101 et seq., and their implementing regulations, to assist decision-makers in evaluating the environmental consequences of the Proposed Action and its alternatives, and to identify feasible measures to mitigate any adverse environmental impacts. The application of NEPA to mass transportation projects is reinforced in the Federal surface transportation statutes (23 U.S.C. Highways and 49 U.S.C. Transportation) that require the Secretary of Transportation to ensure NEPA mandates have been met before approving applications for Federal financial assistance. NEPA and SEQRA requirements necessitate a comparison between future conditions without the project (No Action Alternative) and future conditions with the project fully constructed and operational (Build Alternative). The incremental difference between these two (2) conditions is then considered to be the impact of the Proposed Action. The No Action Alternative