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Sunnyside Yard SUNNYSIDE YARD FEASIBILITY STUDY Sunnyside Yard Feasibility Study February 6, 2017 New York City is in the midst of a period of comprehensive and detailed assessment of the unprecedented growth. Our population has technical, planning, and financial considerations reached a record 8.5 million, and current of building atop Sunnyside Yard. projections estimate that it will reach an astonishing 9 million before 2040. That growth We thank the many community members, elected has helped make the City an even more dynamic leaders, public agencies, and other stakeholders place to work, learn, and play, but it has also who informed this study. We look forward to placed new stress on the core infrastructure continuing our work together to explore an serving the City and the region. opportunity with the potential to prepare New York City for the next century. At the same time, land has become increasingly scarce. Opportunities to expand the transportation infrastructure we need to move Sincerely, our workforce and the housing stock necessary to shelter our residents are few and far between. The public sector must reach for new and innovative solutions to meet our needs. In Western Queens, there remains one of New York City’s last great opportunities to solve many Alicia Glen of these challenges in one place. Sunnyside Feasibility Study Sunnyside Yard Yard is a 180-acre site that houses essential Deputy Mayor for Housing and Economic rail operations for Amtrak, the MTA, and NJ Development Transit. It has also divided communities in Queens for decades. In early 2015, Mayor de Blasio announced that the City would analyze the feasibility of taking on the mammoth task of decking over Sunnyside Yard to build a new, fully planned neighborhood in the heart of Queens – all while allowing rail operations to continue underneath. Since the Mayor’s announcement, the City has worked with Amtrak to study the future of Sunnyside Yard. This study is the result of that collaboration and represents a Acknowledgements Sunnyside Yard Feasibility Study Sunnyside Yard Acknowledgements LEAD AGENCIES CONSULTANTS New York City Economic Development FX FOWLE Architects/Lead - Urban Design Corporation (NYCEDC) HR&A Advisors/Economic Planning Amtrak Parsons Brinckerhoff/Transportation Planning CONSULTED AGENCIES BJH Advisors/Economic Consultant New York City Agencies Curtis + Ginsberg Architects/Affordable Housing Department of Cultural Affairs (DCLA) Architect Department of City Planning (DCP) James Corner Field Operations/Landscape Architect Department of Environmental Protection (DEP) JCMS/Cost Estimating Department of Education (DOE) McKissack & McKissack/Construction Planning Department of Health & Mental Hygiene NAIK Consulting Group/Surveying (DOHMH) Rolf Jensen & Associates/Code Consulting Department of Transportation (DOT) Feasibility Study Sunnyside Yard WSP USA/Structural Engineering Department of Parks and Recreation (DPR) Department of Housing Preservation and Development (HPD) New York City Police Department (NYPD) Office of Management and Budget (OMB) Metropolitan Transportation Authority (MTA) New York City Transit Authority (NYCT) Long Island Railroad (LIRR) i 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 Sunnyside Yard 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 A. Introduction The Sunnyside Yard Feasibility Study identifies framework for a potential overbuild at Sunnyside An iterative process, which modified physical years and both Amtrak and the Metropolitan key considerations and planning principles to Yard that could feasibly address engineering, and programmatic configurations in response Transportation Authority (MTA) plan to implement inform future decision-making with regard to economic, urban design, and public policy to financial and engineering analysis, informed reconfigurations of tracks and rail operations. As Sunnyside Yard Feasibility Study | Executive Summary Sunnyside Yard a Sunnyside Yard overbuild. For the purposes considerations. the development of these planning principles. these and other projects progress, they will need of this study, feasibility was evaluated under Multiple options and scenarios were tested. to take into consideration a potential overbuild to the perspectives of engineering, economics, Overbuild development in Sunnyside Yard has Although complex constraints narrow the range preserve project feasibility. This study’s findings and urban design to inform the development been discussed for nearly a century. Studies of alternatives, the three test cases presented can aid the initial coordination necessary between of planning principles. If implemented in a in recent decades have suggested a range of in this study are by no means the only potential multiple ownership entities for a future overbuild coordinated fashion, these planning principles potential development opportunities, but none overbuild scenarios at Sunnyside Yard. The at Sunnyside Yard. would guide the creation of a neighborhood that have comprehensively addressed railroad analysis of data and resulting principles provide a integrates with the surrounding urban context, operation constraints, structural engineering resource to inform future planning and decision- generates substantial public and economic requirements, existing infrastructure capacity, making. benefits for New York City (the “City”) at large market conditions, and urban design standards and western Queens, and facilitates unimpeded in a cohesive manner. This study is the first to The feasibility of an overbuild at Sunnyside operations of one of the country’s busiest rail assemble the data and analyses necessary to Yard is influenced by several factors that yards. (Figure 1.1, Figure 1.2) Collectively, these integrate engineering, economics, and urban are in flux. Rail traffic in Sunnyside Yard is planning principles provide a development design into a single, systematic assessment. expected to significantly increase in coming 3 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 Sunnyside Yard connections between the neighborhoods of western Queens. FIGURE 1.2: SUNNYSIDE YARD: EXISTING CONDITION 4 A summary of the test case programs is illustrated in Figure 1.3. Given the preliminary nature of the program definition, all program assumptions are expressed as ranges. The evaluation of the three distinct test cases provides the analytical framework to test strategies for minimizing impacts on railroad operations, improving financial feasibility, supporting integrated mixed-used urban design, and achieving public policy objectives. The collective analysis of the three test cases resulted in certain conclusions, considerations,
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