SUNNYSIDE YARD FEASIBILITY STUDY Sunnyside Yard Feasibility Study Sunnyside Yard Feasibility Study comprehensive and detailed assessment of the and detailed comprehensive and financial considerations technical, planning, Sunnyside Yard. of building atop thank the many community members, elected We other stakeholders leaders, public agencies, and to forward look We who informed this study. an to explore continuing our work together York New to prepare opportunity with the potential City for the next century. Sincerely, Alicia Glen Deputy Mayor for Housing and Economic Development New York City is in the midst of a period of City is in the midst of a period New York has Our population growth. unprecedented 8.5 million, and current a record reached an estimate that it will reach projections growth 2040. That astonishing 9 million before dynamic even more has helped make the City an but it has also place to work, learn,and play, infrastructure on the core placed new stress serving the City and the region. increasingly At the same time, land has become Opportunities to expand the scarce. to move we need transportation infrastructure necessary and the housing stock our workforce few and far between. are to shelter our residents and for new The public sector must reach needs. innovative solutions to meet our one of New remains Queens, there In Western opportunities to solve many last great City’s York Sunnyside of these challenges in one place. site that houses essential is a 180-acre Yard and NJ rail operations for Amtrak, the MTA, It has also divided communities in Transit. Queens for decades. In early 2015, Mayor de Blasio announced that the City would analyze the feasibility of taking on the mammoth task of fully to build a new, decking over Sunnyside Yard planned neighborhood in the heart of Queens – all while allowing rail operations to continue announcement, underneath. Since the Mayor’s the City has worked with Amtrak to study the This study is the of Sunnyside Yard. future a of that collaboration and represents result February 6, 2017 Acknowledgements Sunnyside Yard Feasibility Study Sunnyside Yard Feasibility Study i CONSULTANTS - Urban Design FX FOWLE Architects/Lead HR&A Advisors/Economic Planning Planning Parsons Brinckerhoff/Transportation BJH Advisors/Economic Consultant Housing Architects/Affordable Curtis + Ginsberg Architect James Corner Field Operations/Landscape Architect JCMS/Cost Estimating Planning McKissack & McKissack/Construction NAIK Consulting Group/Surveying Consulting Rolf Jensen & Associates/Code WSP USA/Structural Engineering Acknowledgements Acknowledgements Department of Cultural Affairs (DCLA) Department of Cultural Affairs Department of City Planning (DCP) Protection Department of Environmental (DEP) Department of Education (DOE) Hygiene Department of Health & Mental (DOHMH) (DOT) Department of Transportation Department of Parks and Recreation (DPR) Department of Housing Preservation and Development (HPD) (NYPD) City Police Department New York Office of Management and Budget (OMB) LEAD AGENCIES City Economic Development New York Corporation (NYCEDC) Amtrak AGENCIES CONSULTED City Agencies New York Authority (MTA) Transportation Metropolitan Authority (NYCT) City Transit New York (LIRR) Long Island Railroad

Chapter 1: Executive Summary

Table of Contents

A. Introduction...... 3

B. The Study...... 4

C. Context...... 6

D. Key Considerations and Planning Principles...... 8

E. Development Feasibility...... 12

F. Conclusion...... 14

1 ExecutiveChapter 5: Summary Development Considerations Sunnyside Yard Feasibility Study | Executive Summary

FIGURE 1.1: SUNNYSIDE YARD IN CONTEXT The Pennsylvania Railroad first opened Sunnyside Yard in 1910. It now covers approximately 180 acres, is over 8,000’ long, and varies in width from 400’ to 1,500’. It is a key train storage yard and maintenance hub for Amtrak’s Northeast Corridor, and serves New Jersey Transit and Long Island Rail Road, which is developing storage tracks and maintenance facilities there as part of its East Side Access Project.

2 Sunnyside Yard Feasibility Study | Executive Summary 3 years and both Amtrak and the Metropolitan Metropolitan years and both Amtrak and the plan to implement Authority (MTA) Transportation As of tracks and rail operations. reconfigurations they will need progress, these and other projects overbuild to to take into consideration a potential findings This study’s feasibility. project preserve between necessary can aid the initial coordination overbuild a future multiple ownership entities for at Sunnyside Yard. An iterative process, which modified physical which modified An iterative process, response configurations in and programmatic analysis, informed to financial and engineering principles. the development of these planning tested. were Multiple options and scenarios the range narrow Although complex constraints cases presented of alternatives, test the three potential by no means the only in this study are The Yard. overbuild scenarios at Sunnyside a provide principles analysis of data and resulting planning and decision- to inform future resource making. The feasibility of an overbuild at Sunnyside is influenced by several factors that Yard is Yard in Sunnyside in flux. Rail traffic are in coming expected to significantly increase framework for a potential overbuild at Sunnyside framework for a potential overbuild engineering, address that could feasibly Yard public policy economic, urban design, and considerations. has Yard Overbuild development in Sunnyside Studies been discussed for nearly a century. of decades have suggested a range in recent but none potential development opportunities, railroad addressed have comprehensively engineering operation constraints, structural capacity, existing infrastructure requirements, market conditions, and urban design standards This study is the first to in a cohesive manner. assemble the data and analyses necessary to integrate engineering, economics, and urban design into a single, systematic assessment. The Sunnyside Yard Feasibility Study identifies Feasibility The Sunnyside Yard principles to key considerations and planning to decision-making with regard inform future For the purposes overbuild. a Sunnyside Yard feasibility was evaluated under of this study, economics, the perspectives of engineering, development and urban design to inform the in a of planning principles. If implemented fashion, these planning principles coordinated that of a neighborhood would guide the creation urban context, integrates with the surrounding generates substantial public and economic York City (the “City”) at large benefits for New and western Queens, and facilitates unimpeded busiest rail operations of one of the country’s these 1.2) Collectively, 1.1, Figure (Figure yards. a development planning principles provide A. Introduction Executive Summary

B. The Study • Economics - Market demand and Three test cases were developed to explore the • Create housing options for low- and real estate development parameters: feasibility of different programs. All test cases moderate-income New Yorkers, new The goal of this study is to identify a set of Development strategies that leverage value, include a significant proportion of residential use office space to support local and citywide principles to guide feasible development from minimize costs, and generate economic and but vary in focus: employment growth, and venues for the perspectives of engineering, economics, and public benefits for the City and surrounding • Test Case 1 (Residential) community and cultural uses; urban design. For the purposes of this study, neighborhoods. • Test Case 2 (Live/Work/Play) • Serve local neighborhoods and help feasibility was defined as follows: • Urban Design – Surrounding communities accommodate ongoing growth; • Test Case 3 (Destination) • Engineering - Rail operations and and planning standards: A framework • Produce mixed-income, mixed-use structural considerations: A conceptual that complements the existing adjacent While the three test cases varied in mix of uses, communities, including schools, libraries, structural system for overbuild, above an neighborhoods, allows mixed-use districts to program and phasing, each were aligned with the police and fire stations, and other community active and expanding railyard, capable of be phased over time, and meets policy goals following public policy objectives: amenities; supporting development and minimizing across a fully developed project. • Promote significant public parks, open impact on rail operations. spaces, recreational facilities, and a connected network of green streets and pedestrian routes; and • Respect and respond to existing neighborhood contexts and improve physical Sunnyside Yard Feasibility Study | Executive Summary connections between the neighborhoods of western Queens.

FIGURE 1.2: SUNNYSIDE YARD: EXISTING CONDITION

4 Sunnyside Yard Feasibility Study | Executive Summary 5 FIGURE 1.3: TEST CASE AREA COMPARISON* All numbers are in total square feet unless otherwise noted. ** Affordable housing follows MIH guidelines ** * Access point and street-grid strategies that that strategies street-grid and Access point and integrate, connect, and support overbuild and neighborhoods; surrounding to respond into take that considerations Phasing absorption and demand market account planned Amtrak’s with coordinate and pursuant to Yard, at Sunnyside improvements Plan. Master 2014 their Overbuild coverage area, building typologies, typologies, area, building coverage Overbuild complex address that systems structural and engineering requirements in the most efficient manner; Potential locations for columns and walls walls and columns for locations Potential of range a full with supportthat an overbuild rail impacting uses and without structures yard activity;

• • • • The evaluation of the three distinct test cases of the three The evaluation framework to test the analytical provides impacts on railroad strategies for minimizing feasibility, financial operations, improving urban design, supporting integrated mixed-used The and achieving public policy objectives. resulted test cases collective analysis of the three and in certain conclusions, considerations, principles such as: A summary of the test case programs is illustrated the test case programs A summary of of the nature preliminary 1.3. Given the in Figure assumptions are program definition, all program as ranges. expressed Executive Summary

C. Context Assessing the feasibility of an overbuild at typically exist in dense residential neighborhoods. Sunnyside Yard requires consideration of The need for schools is increasing, as is the both offsite influences and onsite constraints. community’s desire for parks, public space, and The offsite contextual considerations include retail amenities. adjacent neighborhoods, transportation and utility infrastructure, and market conditions. The onsite Transportation and Utility Infrastructure constraints consider ownership and railroad operations, including the Amtrak Master Plan. A combination of subways, commuter rail, and transit buses are available close to all sections of Adjacent Neighborhoods Sunnyside Yard, with the greatest access provided at the western half of Sunnyside Yard. Key infrastructure elements include: Sunnyside Yard is located at the confluence of four distinct neighborhoods. (Figure 1.4) A wide • Eight MTA subway lines serving approximately range of land use patterns and neighborhood 13 subway stations or complexes are located characteristics comprise the “Study Area,” defined within the study area and walking distance to as a one-mile radius from Sunnyside Yard. These the project site. characteristics include: Sunnyside Yard Feasibility Study | Executive Summary • Many MTA bus routes either stop within or • Rapid transformation from an industrial pass through the Study Area. area to a mixed-use, multi-story residential neighborhood in the areas to the west, • With the exception of subway and parking including Long Island City; capacity, transportation in and around the • A range of multi-story commercial loft Sunnyside Yard Study Area is generally buildings and single-story industrial uses available, accessible, and at or below capacity in Dutch Kills/South Astoria and Greater under current conditions. Sunnyside to the north and southeast of • Pedestrian routes operate effectively, the Sunnyside Yard, respectively; bicycle network is generally well connected, • Traditional office uses clustered around and levels of service for vehicular traffic are Queens Plaza; and generally acceptable. FIGURE 1.4: STUDY AREA • Tracts of low-rise, one- to three-family row • Existing utility infrastructure is well developed houses in many parts of the Study Area. and is generally adequate for current land uses Where development is taking place, new high-rise and new development in areas surrounding towers are altering the built environment and urban Sunnyside Yard; however, some infrastructure, experience. These trends are resulting in new particularly sewer and water supply systems, is demand for the services and conveniences that aging and may not have adequate capacity to meet future demand.

6 Sunnyside Yard Feasibility Study | Executive Summary 7 Privately Owned: Privately 7.4 acres Acreage: Total Firma: 93.1% Terra Firma Spans: Terra MTA/LIRR is currently constructing the East the constructing currently is MTA/LIRR be will and Yard, the at Access project Side maintenance and tracks storage developing facilities. as a primarily Yard uses Sunnyside NJT between trains storing for area lay-up midday services its Northeast Corridor trains, utilizes services utilizes Northeast its trains, Corridor (HSRF) rail maintenance high-speed its a service, operates and Acela for facility onboard preparing for commissary building beverages. and food

• • Amtrak Air Rights Ownership Air Rights Ownership City of New York Private Air Rights Ownership Amtrak Owned: 142.2 acres Acreage: Total Firma: 6.6% Terra Spans: >15 - <150 ft. MTA Owned: MTA 31.2 acres Acreage: Total Firma: 0% Terra Spans: >15 - <100 ft. storage tracks. tracks. storage junction railroad a major Interlocking, Harold routes Yard, the within tracks serving the the either to Station Pennsylvania from trains Line. Main Northeast LIRR the or Corridor Yard, users the of major the of one is Amtrak storage train a key is Yard Sunnyside and Northeast their for hub maintenance and yard Corridor operations. and stores Amtrak Yard, Sunnyside At

Amtrak Land Ownership Land Ownership MTA Private Land Ownership • • • FIGURE 1.5: SUNNYSIDE YARD OVERBUILD: LAND AND AIR RIGHTS OWNERSHIP LAND AND OVERBUILD: YARD FIGURE 1.5: SUNNYSIDE Currently, Sunnyside Yard has 32 active active 32 has Yard Sunnyside Currently, Yard ownership is spilt among parties: four Yard Sunnyside of most owns which Amtrak, northern the and owns which MTA Yard, the owns City which the parcels, western properties, MTA-owned the above rights air facility its owns which Generaland Motors the of section southeastern the in located (Figure 1.5) Yard. Sunnyside above an overbuild constructed, If complex most and largest be the would Yard City. York New in site development urban Sunnyside Yard is more than six times the Yard Sunnyside the of size twice the Yards, Hudson of size than larger 30 acres and Battery City, Park Island. Roosevelt NortheastThe Amtrak the and Corridor Line Main (“LIRR”) Railroad Island Long are and Yard the of spine the through run times. all at operational

• • • • • Railroad Operations and Amtrak Master Plan Master Amtrak and Operations Railroad one of the country’s is currently Sunnyside Yard entities actively Multiple railroad busiest rail yards. use the space for operations, storage, and Amtrak, plans by MTA/LIRR, maintenance. Future (“NJT”) to upgrade and New Jersey Transit Key the rail facilities will intensify this activity. operations: considerations influencing railroad Size and Ownership and Size focuses Feasibility Study Yard The Sunnyside which includes Study Area, on the identified Yard of Sunnyside 180 acres approximately Key features of 47th Avenue. located to the east of the Yard: Since 2002, employment has increased by by increased has employment 2002, Since of as one recognized is area the and 25% most significant non-Manhattan City’s the centers. employment Waterfront LIC the in retail Neighborhood other with competitive generally is submarket Brooklyn-Queens the along submarkets district shopping minimal and waterfront Queens or Western either in exists retail North Brooklyn. The current base of 9,000 units built since since built units 9,000 of base The current an by increase to forecasted is and 1999 eight next the over units 14,500 additional years. Much of the population surrounding surrounding population the of Much principally in concentrated is Yard Sunnyside east of the to submarkets residential nearly with half residing in Yard, Sunnyside Sunnyside and Astoria Kills/South Dutch the submarkets.

• • • • The Study Area is home to approximately 5% to approximately is home The Study Area the largest population, of Queens’ residential in westernemployment hub and Queens, industrial economy. City’s an anchor of the the west of Sunnyside Yard Submarkets to residential new experiencing significant are Area, in the Study development, while elsewhere estate development has real little new residential increased properties, taken place. For commercial a range of industries across is spread job growth newly-constructed and building types, including reused space. space and adaptively Class A office of the Study Key factors driving the development include: Area Market Conditions Market Executive Summary

morning and evening rush hours. project could be influenced by several onsite minimizing disruptions to railroad operations. Residential Tower • The Amtrak Yard Expansion project, and offsite factors. A project of this nature faces • Whenever possible, overbuild construction as detailed in its Master Plan, would risks due to shifting political priorities, as well should be performed concurrently with enable Sunnyside Yard to accommodate as changes in expected revenue and/or cost other planned construction of railroad approximately double the number of trains assumptions. Modifications of density or the infrastructure. that it does today. planned program could alter feasibility, as well as impact existing transportation networks and other • Overhead wires that supply electrical • Amtrak is planning to rehabilitate East River offsite considerations. Multiple railroads, complex power for trains will need to be lowered and Tunnels damaged during Hurricane Sandy. infrastructure, and the sheer scale of such an supported under the deck. Other overhead 5 Story Podium • Amtrak is planning to complete ongoing overbuild project would require exceptional wires may need to be rerouted or buried. state-of-good repair work (maintenance coordination and a long-term perspective from all • Required railroad clearances above the tracks Mega Transfer Truss and equipment upgrades) as well as other involved parties. affect the height of the deck, limiting the Podium miscellaneous projects around Sunnyside vehicular access to only the existing roads Mega Transfer Truss Yard. With these caveats, the following considerations and bridges and inflating building heights. Footprint and planning principles are identified to inform • The MTA has at least six known projects that Some variances should be required from future decision making in regards to a Sunnyside standard track clearances to locally reduce are either under construction, planned, or Yard overbuild. envisioned over the next 15 years and beyond deck height.

that will impact the Yard. • It is assumed that the existing bridges cannot Deck Surface Sunnyside Yard Feasibility Study | Executive Summary Engineering be replaced. Combined, those physical, operational, structural, Deck and economic conditions will impact overbuild The existing and future railroad operations will • Certain areas of the Yard, particularly above development at Sunnyside Yard. While these impose significant constraints for overbuild the Main Line tracks, are exceptionally Concrete structural development conditions are challenging and feasibility. Assumptions involving Amtrak’s encumbered by heavy rail traffic and physical walls/columns continuously evolving, they frame a set of Sunnyside Yard Master Plan are predicated on infrastructure. These areas were determined principles that can be used to guide development its 2014 vision of its 2030 operations. As the to be infeasible for decking as they exist of a future overbuild. Master Plan implementation progresses over time, today. assumptions may need to be reconsidered and D. Key Considerations and Planning the plan for the overbuild adjusted accordingly. Principles Key considerations and planning principles with respect to rail operations include: Existing and future conditions were used to • Detailed cooperation will be necessary at all evaluate the three test cases and to inform a set levels between the railroad companies, the of planning principles. Given the complexity and City, any development entity, and developers. scale of this project, the findings of this study • Track outages, work hours, and construction are subject to inherent risks that are beyond the Tracks work zones should be streamlined to control of any single entity. The success of this maximize contiguity and continuity, while

FIGURE 1.6: TOWER AND TRACK STRUCTURE RELATIONSHIP

8 • Overbuild poses some safety considerations -Need to be oriented with their long axis -Must span three to four lines of columns -Require a substantial steel truss (a “mega Residential Tower such as adequate exhaust of heat and diesel perpendicular to the direction of the tracks, (depending on tower length/height). (Figure transfer truss”) in the building podium to fumes generated by stored trains, fire and life with support walls running between tracks, 1.7) transfer the loads to support walls. The size safety ventilation, standpipes, and egress. in order to provide adequate resistance to of the transfer truss varies depending on wind loads. span and tower height. Structural systems will need to accommodate the constraints imposed by railroad operations, the restrictions dictated by yard geometry, and the structural requirements for a substantial overbuild. 5 Story Podium (Figure 1.6) Key considerations and planning principles with respect to structural constraints Mega Transfer Truss include: Podium • Structural steel construction is preferred for Mega Transfer Truss Footprint the deck, as it is lighter than precast concrete and therefore easier to maneuver and install in congested areas. • Structural support walls or columns must be located outside of required railroad track

clearances. Sunnyside Yard Feasibility Study | Executive Summary • Deck/platform depth (vertical thickness between upper surface and underside) Concrete structural will vary between 9’ and 16’. Deck depth walls/columns increases with span length and may be adjusted to accommodate urban design considerations. • Deck spans would vary across Sunnyside Yard. Shorter spans between support walls or columns would allow for taller structures above. • Buildings under 60’ tall, roads, and open space can generally be supported by support columns at track level. • In general, buildings and towers over 60’ tall: -Require full support walls at track level. FIGURE 1.7: RAILROAD OPERATIONS AND TOWER LOCATIONS

Structures and infrastructure which Future Track Alignment interact with proposed deck Optimized Tower Locations Tower Footprints Studied Boulevard Alignment 9 Executive Summary

Urban Design • Each development phase should strive to • A system of connected parks and open spaces create complete neighborhoods with a balance with a variety of scales and uses should be Urban design considerations aim to create of uses to meet a broad range of needs. integrated with new development. balanced, vibrant, and well-connected urban neighborhoods within operational, structural, • New development should respond to the and financial constraints. (Figure 1.8) Key surrounding context. Transitions and buffers considerations and planning principles with should be used to negotiate differences in respect to urban design include: scale, elevation, and use. • A strong but flexible vision for development is necessary for a successful long-term and SELF-CONTAINED phased buildout. PORTION OF THE YARD

• The deck generally sits 20-40’ above INFORMED BY CENTRAL surrounding streets. Vehicular connections BUSINESS DISTRICT to the deck should be adjacent to existing bridges wherever possible, where the elevation of the deck will be close to the elevation of the bridge. The existing bridges at 39th Street,

Sunnyside Yard Feasibility Study | Executive Summary Honeywell Street, and Queens Boulevard should be utilized as the primary north-south vehicular connectors. • A central, roughly east-west-oriented boulevard along the length of Sunnyside Yard should be established to link different phases of development. INFORMED BY LOW-RISE • Pedestrian connections should be established CONTEXT over un-decked open areas, at surrounding INFORMED BY IBZ dead-end streets, and along Skillman Avenue. AND CIVIC ZONE The pedestrian network should be integrated with offsite and onsite open spaces. • Transit use should be encouraged by providing easy access to existing transit and incorporating new transit, such as the proposed LIRR Sunnyside Station. • New neighborhood districts should have a FIGURE 1.8: SUNNYSIDE YARD: NEIGHBORHOOD CHARACTER clear identity and organization.

10 Sunnyside Yard Feasibility Study | Executive Summary 11

Tower Zones Tower Outline of Non-Decked Areas Public Open Space Footprints Tower FIGURE 1.9: OPTIMIZED DECK COVERAGE, OPEN SPACE AND TOWER FOOTPRINTS AND TOWER OPEN SPACE FIGURE 1.9: OPTIMIZED DECK COVERAGE,

oad disruption, less-accr outages, minimize railr -Capitalize on the mix of uses to allow non-competitive uses to be absorbed etive usestolaterphases. simultaneously. potential duplication of rail and reduce work. reconstruction -Leverage time value of money by delaying -Coordinate as closely as possible with as closely as possible with -Coordinate track Master Plan to synchronize Amtrak’s Construction should be phased to: Construction should be phased Areas that are most difficult to build over most difficult that are Areas of 80-85% should be left un-decked. A target Yard given overall deck coverage is appropriate 1.9) constraints. (Figure Buildings should be located where they are are they Buildings should be located where cost-effective, most structurally feasible and overall site with heights, footprint size, and appropriate. density maximized where be and open space should Parks, roads, structurally overbuild is more located where complex and/or costly.

• • • • An overbuild development at Sunnyside Yard at Sunnyside Yard An overbuild development strategic placement and phasing depends on the mitigate building typologies to of different for the economic and provide construction costs critical public infrastructure, capacity to support Key space, schools, and roads. including open with considerations and planning principles to economics include: respect Economics Executive Summary

E. Development Feasibility grid and connections, tower placement, land uses, and open spaces. Each of the three test cases evaluated contained a specific programmatic and public policy focus To estimate project-wide feasibility, a number of - Residential, Live/Work/Play, and Destination. financial analyses were completed to measure Each test case was evaluated based on the total project costs against total potential project same assumptions regarding railroad operations, revenues. The horizontal elements outside structural system strategies, and planning of the building footprints including utilities, principles, and each test case varied in its mix certain decking, mechanical and public safety of uses, program and phasing. Multiple options infrastructure, roads, and open space were and scenarios were tested as part of this study, analyzed together. The mega transfer truss and the three test cases are by no means the and deck costs below a building footprint were only solution for the development challenges analyzed separately. The mid-point of each presented. Other configurations – both of program vertical program range was assumed for purposes and physical form – are possible. More detailed of these analyses. The financial measurements study and planning of Sunnyside Yard and the used to evaluate financial feasibility include: Study Area may result in better solutions. • Total Development Costs: All of the horizontal An overbuild development of Sunnyside Yard as costs (both in and outside of building prints)

Sunnyside Yard Feasibility Study | Executive Summary measured by the three test cases could bring and all vertical costs associated with the substantial benefit to the City, including between development of the overbuild. 14,000 and 24,000 total new housing units, 31 to 52 acres of open space, and new schools, • Gross Land Proceeds: Value a developer •FIGURE 1.10: SUNNYSIDE YARD ZONE BOUNDARIES community facilities, and retail amenities to serve would pay for the land and development new residents and surrounding communities. rights, considering normal development costs • Residual Land Value: Gross land proceeds, estimated to cost between $2.38 billion and Development at Sunnyside Yard could create at if this were a typical development on terra less overbuild premium and onsite and offsite $3.38 billion. Onsite and offsite horizontal costs least 4,200 to 7,200 new permanently affordable firma. horizontal costs. are between approximately $2.93 billion and housing units, helping to meet City policy goals. $3.43 billion and result in between -$3.48 billion • Overbuild Premium: Cost premium for the Financial feasibility is strongly influenced by and -$1.73 billion in residual land value. While a This study follows MIH guidelines as a minimum deck and mega transfer truss within the use mix, density, number of roads, amount of standard of affordability. negative residual land value suggests that public building footprint(s). open space, and share of affordable housing. investment is necessary to facilitate development, Following the development of the test cases, Horizontal project costs are generally consistent significant public benefits in the form of new • Onsite and Offsite Horizontal Costs: between test cases and vary only modestly due to the full overbuild was divided into seven zones, Costs for horizontal development outside of public facilities such as schools and open space “A” through “G”. (Figure 1.10) The development differences in phasing and the number of roads, would be delivered because of this project. In a building footprint including railroad force size of open space, and other horizontal program zones were defined based on ownership, railroad accounts and other site-wide systems such as addition, the project would unlock potential future operations, physical landmarks and barriers, elements. Total development cost is estimated to tax revenue, including but not limited to real estate streets, open space, municipal buildings, and range from approximately $16 billion to $19 billion and construction constraints. Each zone was utilities, and costs related to offsite utilities to taxes. The magnitude of public benefits and taxes independently evaluated for the feasibility of in 2017 dollars. The test cases generate between is significant. For example, the total onsite real support density and capacity on Sunnyside approximately $3.33 billion and $3.98 billion in development based on a number of factors, Yard. property tax generated by the test cases over 40 including ownership, planning parameters, street gross land proceeds. Overbuild premiums are years could be between $1.31 billion and $1.53 billion.

12 Sunnyside Yard Feasibility Study | Executive Summary 13 is comparable to other major infrastructure to other major infrastructure is comparable developments led by scale large investments and could generate Yard the Core Moreover, the City. taxes property real The proceeds. significant tax million over 40 years) $934 alone (approximately total cost of investment. could exceed the Landscape Buffer Parking Facilities Railroad School/Community Public Open Space Public Open Space million. A negative residual land value indicates residual million. A negative in the will be required that public investment was of the project The financial feasibility project. tax the public goods and evaluated by analyzing generated by this potential that would be proceeds could deliver housing, Yard Core investment. The benefits in the form of affordable substantial public public facilities at a cost that open space, and Office Podium Office Tower Office Mixed-Use Residential Podium Residential Tower office Creative FIGURE 1.11: CORE YARD LAND USE FIGURE 1.11: CORE YARD development cost is approximately $10 billion is approximately development cost Using the mid-point of a refined in 2017 dollars. generate could project the program, Yard Core land proceeds. in gross $2.84 billion approximately $1.81 billion in for approximately After accounting $1.84 billion approximately and overbuild premium Yard costs, the Core horizontal in onsite and offsite land value of -$798 residual can have an estimated The development of the Core Yard could Yard The development of the Core including City, bring substantial benefit to the 11,000 to 15,000 total new approximately of open space, housing units, 15 to 20 acres and new schools, community facilities, and retail communities and amenities to serve surrounding at could create Yard The Core new residents. least 3,300 to 4,500 new permanently affordable housing units, helping to meet City policy goals. produces Yard the test cases, the Core Across By evaluating similar levels of financial feasibility. the impacts of the range of uses, number of program Yard and open space, the Core roads Total financial feasibility. to improve was refined Based on railroad operations and the future future operations and the Based on railroad support a high could Yard track layout, the Core of the uses. The majority density of residential is under Amtrak ownership and overlaps area Plan requiring with elements of the Amtrak Master in the Development immediate coordination. block would encourage consistent Yard Core of a grid formation and the creation and street future to facilitate central east-west boulevard is connected area phases of development. The and is and bridge network to the existing road and enough to accommodate a complete large 1.11) (Figure economically feasible neighborhood. Based on an understanding of the technical of the technical Based on an understanding the lessons learnedconstraints and by optimizing case scenarios, the test three feasibility for the as Zones D, C, and B-South defined Yard, Core has been 70 acres, covering approximately viable for development, most area identified as an likely early phase of the total and would be a overbuild project. Core Yard Executive Summary

Finally this investment would leverage substantial private investment to catalyze economic impacts at a regional scale. Considering this combination of factors, the Core Yard is financially feasible.

31st St. Northern Blvd. F. Conclusion This Feasibility Study describes engineering, urban design, and economic parameters for a feasible overbuild approach at Sunnyside Yard. Some key issues that influence feasibility are

beyond the scope of this study, including potential St. 39th Honeywell St. modifications to Amtrak’s Master Plan and the Northern Blvd. related incremental construction costs, offsite improvements to transportation infrastructure, and the specific financing, contractual, and/or governing structures that would be created to Queens Blvd. support development. (Figure 1.12, Figure 1.13) Skillman Ave.

Sunnyside Yard Feasibility Study | Executive Summary Sunnyside Yard is an active railyard situated

within a dynamic urban environment. As Thompson Ave. Amtrak progresses on its Master Plan, and as the economic and urban environment evolves, Jackson Ave. variations from the studied test cases may be warranted, resulting in changes to specific feasibility findings. Should the project move on to ILLUSTRATIVE PURPOSES ONLY

a next stage of planning, more detailed study and 47th Ave. design development should be undertaken, with a focus on a more discrete section of Sunnyside 0’ 50’ 100’ 500’ 1,000’ Yard—the Core Yard. A comprehensive program of public outreach and engagement would be FIGURE 1.12: POTENTIAL SITE PLAN BASED ON TECHNICAL FINDINGS integrated with additional planning. In tandem, significant coordination between multiple land and air rights owners, careful sequencing of A future overbuild development plan would also of an overbuild will include large up-front alter the key considerations and planning investments, and development of thoughtful value have to respond to significant uncertainties. A expenditures that may not see returns for many principles of this study and impact project creation strategies each need to occur to support project of this scale would span several political decades. Changes to the development program, feasibility. This feasibility study is only the first a feasible project. administrations, multiple economic cycles, and density, open space, value creation, ownership stage in a multi-step, multi-year design process changes to the City’s employment base. Cost- coordination, technology advancements, railroad needed to realize a project of this scale and effective and operationally-efficient construction requirements, and adjacent development may complexity.

14 Sunnyside Yard Feasibility Study | Executive Summary 15 Section Cut KEY PLAN FIGURE 1.13: SECTION RENDERING: AMTRAK HIGH SPEED RAIL SHOP AND STORAGE AND STORAGE FIGURE 1.13: SECTION RENDERING: AMTRAK HIGH SPEED RAIL SHOP ‘All renderings, illustrations, and plans in this study are intended for illustrative purposes only. ‘All renderings, illustrations, and plans in this study arefor illustrative purposes only. intended There are a variety of potential design solutions and these renderings, illustrations, and plans shall not be construed to be a representation solution’ of an intended design