Governors Island Today On October 16, 1995, the United States Coast Guard (USCG) announced that it would close Governors Island by the end of Summer 1997, after 30 years of residency. This event represents a remarkable opportu­ nity to reclaim and reinvigorate one of New York's most promising assets. Because it is an island and was used ex­ clusively as a military post for more than two centuries, Governors Island has existed in splendid isolation. Nevertheless, like its neighbors, the Statue of Liberty and Ellis Is­ land, Governors Island is perceived by the public at large as a national treasure. The is­ land's long service as the sentry of New York Harbor, its magnificent historic structures, views, and parklike setting- all within a five­ minute ferry trip from Manhattan - have captured the public's imagination, as Gover­ Aerial view of Governors Island nors Island faces the next chapter in its il­ lustrious history. for preventing an attack on New York Har­ Disposal Process Governors Island is located in New York bor during the War of 1812. Governors Island is subject to special legisla­ Harbor, one-half mile from the Battery in Under the control of the U.S. Army for tion incorporated as part of the Balanced Lower Manhattan and one-third mile from 172 years, the island was rhe site of a major Budget Act of 1997 {Item 373: (17), Sec. Red Hook, Brooklyn. It contains 172 acres arsenal, a military prison, training can1ps, 9101), as signed by President W illiam J. of land, 225 structures and over 100 acres and a full-scale Army base. Clinton. It directs the General Services Ad­ of open space. On the northern end of the At rhe turn of the century, landfill from miniscration (GSA) ro sell Governors Island island, approximately 92 acres have been N ew York City subway excavations and ar fai r market value no earlier than fiscal year designated as a National Historic Landmark harbor dredging was used ro nearly double 2002. The State ofNew York and the City of and a New York City Historic District, fea­ the island's size to the south. In 1909, New York have the right of first offer to pur­ turing I 8th-century fortifications, pre-Civil Wilbur Wright made rhe first fli ght over chase all or part of the island at fair marker War Arsenal buildings, Victorian housing, American waters from this new fl at land. In value. GSA Property Disposal representatives and early 20th-century neo-classical archi­ 1966, the island was transferred ro rhe are analyzing d1e impact of the legislation and tecrure. With its range of housing types, USCG, which eventually replaced rhe planning fo r its im plementation. community and recreation facilities, tree­ Army's temporary structures on the island's While the preceding describes the dispo­ lined streets, and intimate parks, Governors southern half with a significant number of sition of Governors Island pursuant to the Island has the character of a quiet village, residential, industrial, and community fa­ special legislation, d1e following is a brief syn­ even in the midst of a dynamic world city cili ty buildings. opsis of the standard disposal process based and international port. on the Federal Property Act of 1949 ('49 U.S. Coast Guard Move Act), as amended. History The USCG's decision to close Governors To convey d1e property to new users or Beginning with its purchase from the M an­ Island was made in response ro a Presiden­ owners under the '49 Act, there is a three­ ahatas Indians in 1637 by Wouter Van tial mandate to identify recurring savings as ciered process: Twiller, the island was a r ural sanctuary for part of federal deficit reduction efforts. l. The first priority is screening for reuse of colonial governors of firs t, New Netherland Since that time, Coast Guard units sta­ the island by another federal agency for and later, New York. By the late 1600s, for­ tioned there have been relocated, and the its property needs. tification of New York Harbor was urged by island moved into caretaker status in August 2. In the absence of any federal need for the the colony's English rulers, and Governors 1997. Security, fire protection, and facility properry, GSA must give priority to Island, as it came to be known, was consid­ maintenance is planned w1til the island's specifically legislated public benefit pro­ ered a key strategic point. While British disposal. grams of the srace and local governments, troops were stationed in the harbor in 1775, The Coast Guard units that support eligible institutions or non-profit organi­ American rebels built the fi rst fortifications maritime operations in the Port ofNew York zations. T hese include park and recre­ on the island - the beginning of more than and New Jersey were relocated to Staten Is­ ation, historic monument, education, 200 years as a major military site. Following land and New Jersey; those units having re­ public heald1 and homeless uses. In ad­ rhe Revolutionary War, Governors Island, gional responsibility over the Eastern United dition, cl1e city or state may purcl1ase the though garrisoned, remained inactive until Scares were relocated to the Tidewater Vir­ property (at fai r market value) for public the threat of war with France at the end of ginia area; and the civilian and mili tary per­ purposes not covered by these public the l8rh-centmy. The island was then sub­ sonnel who operated and maintained the benefit programs, sucl1 as fo r economic stantially fortified, an act which is credited island have moved to various locations. developmenr.

2 Governors Island Land Use Study 3. In the absence of the public uses de­ tors. Based on these analyses, a set of com­ dergoing a widespread transformation from scribed above, GSA would then offer the mon planning elements for the island was primarily industrial uses to recreational and property to private individuals and com­ established, which in tum guided the deter­ residential uses. Both New York and New Jer­ panies by competitive sale. mination of six land use options. The find­ sey have proposed greenway plans and new Governors Island will be disposed of accord­ ings of the Land Use Study are embodied in zoning for Manhattan, Staten Island, Brook­ ing to the provisions of the special legislation these six options, which, both as a group and lyn, and the western Hudson River shores. (the Balanced Budget Act of 1997, Item 373: individually, reflect the overall goals of the Governors Island shares New York H arbor [17], Sec. 9101), unless thatlegislacion is oth­ Study. None of th ese options, however, with two of this region's most significant his­ erwise amended, modified, or withdrawn. should be viewed as the preferred alternative. toric sites - Liberty and Ellis Islands - as well as a number of od1er popular tourist spots. Purpose Regional Context Given the continued growth of tourism in the This Land Use Study is not a legally-man­ Since its inception as a fortified site, Gover­ New York area, and the island's proximity to dated part of the disposition process; rather nors Island's location has been a critical fac­ a revitalized Lower Manhattan and Brooklyn, it was commissioned by GSA in recognition tor in its history. Today, the island's harbor Governors Island has great potential to be­ of the uniquely special qualities of Governors setting creates both a physical and cultural come a major destination. It has the promise Island. T his Study, prepared by the Beyer context of considerable importance to its fu­ ro enrich both the local and international Blinder Belle Consortium, is designed to: ture. The regional waterfront is currently un- communities with its remarkable resources. inform the public of the island's resources; guide the Environmental Impact Statement (EIS) by providing a range of possible land use options for analysis; and become a cata­ lyst for ideas on Governors Island's reuse. Plans for the future of Governors Island must be a balance between conservation and new construction; between looking back on history and forward to innovative solutions for the 21st century; between a world-class attraction and local needs; between the ideals of a long range vision and the immediate need to keep the buildings used and maintained; and between maximum public benefit and an economically sustainable reuse program.

Public Participation Governors Island's future is a matter of great public interest. A key component of the Land Use Study was the public participation program, designed ro keep all interested par­ ties informed of the Study's progress, and provide mechanisms for receiving and in­ corporating public comment. T hree public fo rums were held over a six-month period; summaries of the commentary from these meetings are available by request. Bi-weekly working meetings between the Beyer Blind­ er Belle Consortium and city, state and fed­ eral agencies guided the planning process. Focus groups and personal interviews were conducted with representatives of a range of N / potential user groups, such as housing groups, schools and universities, parks and BEYER BLI NDER BELLE CONS~ Atlantic Ocean recreation groups, developers, retailers, and 0 Sml. civic and other non-profit organizations. Legend Methodology Staten Island Ferry In order ro provide a range of planning op­ Major Highways tions for consideration in the Environmen­ , Governors Island tal Impact Statement, this Study consisted of D Major Public Parks an assessment and analysis of all relevant is­ Regional Context @ Major Airports land conditions and a range of planning fac-

Executive Summary 3 BUILDING ASSESSMENT

Building 550, a recently renovated health services clinic.

Legend Former Building Use

D Residential T he buildings on Governors Island are characterized by a wide range D Community of uses, styles, heights and ages, not unlike what might be found in Facilities a small town. The most significant fo rmer building use was resi­ D Administrative dential, consisri ng of over 1. 7 million square feet and 62% of the total Offices building area. A variety of housing types include individual houses, D Parking Structures townhouses, apartment buildings and barracks. Under the USCG, • Storage/ a large portion of the Historic District was devoted to single- and rwo­ lndustrial/MEP family houses, with enclosed parking garages nearby. The District also CJ Medical concains multi-fumily apartments and barracks rooms. On the south­ Iii Retail ern portion of the island, the residential accommodations include: D Motel townhouses, garden and high-rise apartments and barracks. Former Community faci lities were located throughout, including religious Building Use chapels, a public elementary school, a day care center, medical and dental clinics, a firehouse, and dining, entertainment and recreational faci lities. Office space was located in the Historic District near the 50()' 1000' ferry landing, and most industrial and storage facil ities were located BEYeR 8UNO~A Bel.LE CONSORTIUM on the southeastern portion of the island, near Lima Pier. Other mis­ cellaneous structures include maintenance sheds, recreation shelters, monuments, and navigational towers.

Building Conditions The majority of the island's buildings have been well maintained. Some 90% are in excellent to good condition and need only minor repairs. ln particular, many of the residential buildings in the His­ toric District have undergone substantial renovations over the past ren years, and are in excellent condition due to high levels of main­ tenance provided by the U.S. Coast Guard.

Building Code and Zoning Compliance As federal property, the buildings on Governors Island were not sub­ ject to state and local codes. Therefore, many may not be complianr with the New York C iry Building Code. Also, many buildings were built prior to the passage of the American Disabilities Act and are non­ com pliant with this law. Based on prelimina.iy site observations, ap­ proximately 68% of the buildings may have code infractions related to Legend access a.i1d egress requirements: entry steps with no ramps and insuffi- c::J Excellent A renovated house D Good interior on Colonel's D Fair Row. • Poor

Building Condition

500' 1000'

8fYU 8UNOU Hllf C:ON'°fiHllJM

4 Governors !slnnd Land Use Swdy BUILDING ASSESSMENT

Building 877, an eleven story 'ski,:r stop· apartment building

cient exit stairs. Many buildings may continue to be exempt if their uses remain the same and if no major renovations are proposed, pro­ vided a certificate of occupancy is obtained by the island's new owner. Under the current New York C iry Zoning Resolution, Governors Island is zoned entirely as R3-2, a low densiry residential district. However, many existing srrucrures do not meet the existing require­ ments, particularly in rerms of use or height. lf the island comes wider New York C iry regulations, it would likely be rezoned. Legend Historic Preservation liil Compliant The Governors lsland Historic District encompasses approximately • Non-compliant 92 acres norrh of Division Road. T his area was designated a Narional Building Code Historic Landmark in 1985 and as a New York C iry Historic Dis­ Compliance trict in 1996. Casclc Williams, Forr Jay (and its fo ur barracks), and Buildings: 1 - The Admiral's Ho use, 2 -T he Governor's House and 9 - T he Blockhouse arc individual landmarks. These designations rec­ ~ 1000' ognize Governors Island's prominent role in the history of our na­ BEYCR BLINDER DHU CONSORllUM tional defense as well as the architectural significance of its structures. T he historic strucrures and open spaces must be preserved and maintained in accordance with the Governors lsland Preservation & Design Manual {scheduled for completion early in 1998) and feder­ al, stare, and ciry landmark laws. Complementary to rhe legal pro­ tection provided by these designations, a key emphasis of chis Study is a long-term respect fo r the island's cultural resources. Thus, the modern buildings within the District cliac are considered to be non­ conrribucing may be el igible for demolition as a way of restoring orig­ inal relationships between cl1e historic landscape and forrifications. New development within the Historic District should nor detract from its character and should con form to its scale. Reuse alternatives should capiralize on the island's unique location, architecture and en­ vironment by virtue of high q uali ry design and by the sensitive place­ menr of new scrucrures and programs of new activities. Legend Nowhere in the metropolitan area does there exist a communiry -- Historic District ofs uch authentic and well preserved amiquiry. T he preservation and Boundary reuse of these historic resources w ill greacly benefit any future eco­ National nomic and cultural program for che island. Registry Bldg. • Contributes to Building 1, the Historic District historic Admiral's • Does Not House. Contribute to Historic District

Historic District & Landmarks

0 1000'

llE'f(A DllNDCR l[LLC COfrril SOJUIU~

Execmive Summnry 5 TRANSPORTATION & INFRASTRUCTURE ASSESSMENT

Transportation & Waterfront Structures The limited accessibility of Governors Island, reached only by boat, has played a key role in the development of its infrastructure. Under the USCG, the island was served by passenger and vehicle ferry ser­ vice from two sups in the Battery Maritime Building (owned by the City) in Lower Manhattan, and two slips on the island. The island's two slips, racks, and transfer bridges are in good structural condition. Alternative access could be provided via a new bridge or tunnel, but this scenario is likely to be prohibitively expensive and could nega­ tively impact the island's historic character. Roads and parking lots comprise 29% of the total land area. The island's street network is made up of a perimeter loop road, two in­ ternal loops, and small connector roads. The roads are in fair condi­ tion, with only a few repairs needed at the perimeter where wave and Legend tidal action has eroded some of the subsoil through the seawall, caus­ D Parking ing sinkholes. Parking was primarily off-street in parking lots or ~ Direction of garages, with limited areas for curbside parking. Under the USCG, Traffic daily use of automobiles was discouraged and frequent bus service was = Major Road provided on the island. """' Secondary Road The entire island is accessible by foot, with an established network 0 Shuttle Bus of paths and sidewalks, particularly in the Historic District. On the Stop southern portion, a few pedestrian zones exist within the housing complexes, but on the whole, the area is not a comfortable pedestri­ Existing Roads & Waterfront an environment. Sidewalks throughout are generally in good condi­ Structures tion and street lighting is provided for most of the road system. Waterfront structures include the seawall, two ferry slips, a break­ 500' 1000' water, two small piers, a dock, and three large piers on Buttermilk BLYER BLINDER SELLE CONSORTIUM Channel. The seawall is in excellent condition, having received reg­ ular maintenance over the years. The three Buttermilk Channel piers are in good structural condition and are connected to sewage lines, water supply mains, and electric power. The Oma.ha Dock, on the north end of the island, is condemned due to structural deficiencies.

Utilities The utility systems for Governors Island are in good condition and have sufficient capacity so that only minor improvements are required to support a wide range of reuse options. Water is supplied by the City via mains from either Brooklyn or Manhattan; gas recently replaced oil heating and is supplied from Brooklyn; electricity is supplied by Con Edison via Brooklyn; and the telephone system is provided by Legend Bell Atlantic. Under the USCG, a sanitary sewer system was main­ Electrical tained on the island, with sewage delivered to the Red Hook Waste­ - Electrical Lines water Treatment Plant and solid waste removed by a contracted carting • • Manhole company. The storm sewer system is independent of the sanitary sewer, with outfalls leading directly into the Harbor and the Channel. Gas - Main o Boiler Room Population Capacities of Existing Utility Systems ... Partial P.O.E. (/) 20 .------, "O Serv=98·1" c: High Pressure :ll 15,000 14,000 15,000 P.E. 71 ~ 15 13,000 " >- ~ .£ 10 Electric & Gas Jg 1---'----Pe-a~k-C-oa~s-tG_u_a-rd_P_o~pu-la~t-i o-n :-5-,-00-0~--8~.o-o_o_ __.--i Distribution g_ro 5f--,....---....,---,.---r-.....--...:...... --,--,.----,--t Systems c.0 OL---'--W-at-er--'--'--se_w_e_r--1...._.i._G_a_s__,L__...... ,E-le-c~tri-c _,_~ 500· 1000·

OCYl!R OLINOCR O(LL[ CON SOR flU~1 D Population Utility

6 Governors Island Land Use Study LANDSCAPE ASSESSMENT

Colonel's Row Park

Open Space The landscape and its open space is a defining characteristic of Gov­ ernors Island accouncing for 58% of che total land area. The land­ scape reflects the island's geological and topological history, from early fortifications through ongoing land expansion and building de­ Legend velopments, and today encompasses a range of passive and active recreational uses. The island's spectacular views of New York and che D Building Coverage 13% Harbor intensify its unique setting and, along with view corridors O Open within the island's interior, are a critical open space feacure. Space 58% T he quiet parks, intimate courtyards, and historic Parade D Paved Grounds of the Historic District are among the region's most pic­ Area 29% curesque open spaces, made all the more striking by their proximi­ Land Use ty and contrast co Man haccan. T he chick tree canopies, lush lawns Patterns and gencly changing topography make an inviting landscape. By contrast, the southern portion of the island consists of a flat expanse of open space devoted primarily to active recreational use. 500' 1000' The major open space is located in the center of the island, provid­ DEVER OLINOER DELLE CONSORTIUM ing soccer and softball fields as well as a pool and bowling alley. The vegetation is sparse and windswept. Rows of street trees, along Gre­ sham Road and Craig Road South, provide che only scale and struc­ cure to the landscape. Unlike the civic ambiance of the Hisroric District, che south landscape lacks scale and spacial definition. Reuse recommendations for the island's distinctive open spaces focus on emphasizing che hisroric character, augmenting successful elements, and removing non-contributing landscape elements.

Geology, Climate & Flooding Uncil 1902, when the landfi ll expansion began on Governors Island, it was a rocky prominence at the mouth of the Hudson River, with its base rock Manhaccan schist and its highest poinr 25 feet above sea level (at the hill of Fort Jay). Today, approximately 60% of the land mass is comprised of fill materials, with a depth range from Legend 25 to 40 fee t. D Flood Zone A6 General climatic conditions and the island's own micro-climate D Flood Zone B are signifi canr planning fac tors for Governors Island. In particular, D Flood Zone C che effect of westerly winds is profound, as demonstrated by twisted D Flood Zone V7 and stunted trees along che windward shore. From April through Sep­ • Areas Subject to Flooding tember there is only a 3% co 4% chance of calm days, and in cl1e EL12 FEMA Base winter the western perimeter is often liccered wi ch flocsam delivered Flood Elevation over the seawall by waves. T he windswept character of che western in Feet shore makes it a harsh winter environment. Flood Zones The island contains fo ur flood zones, as per che FEMA Flood In­ surance Race Map, with nearly che entire perimeter within che I 00- year fl ood zo ne. Zone V7, along the western shore, is also subject to wave action, prohibiting construction in this zone except landward 0 500' 1000' of mean high tide (the seawall). DIVER ALINOfR l!ElU CONSORTIUM

Executive Summary 7 MARKET FACTORS & FINANCIAL ANALYSIS

Market Factors region provide strong support for develop­ the region, interviews wich tl1e developer In order to determine the market and eco­ ment of residential, retail and hospitality uses. community, and me preparation ofa 10-year nomic feasibility of potential reuse options, The strength of the market has also led to in­ cash flow analysis for each land use option. the national and regional socio-economic, creasing demand for recreational uses, such as In the cash flow analysis, the general fea­ market and financial context was assessed, marinas, golf, and health club facilities, as well sibility ofeach option was determined by tl1e relevant to Governors Island. In addition, as cautious exploration of conference and spe­ excenc co which net operating income does analyses of comparable projects were con­ cialty uses, including assisted living, large­ or does not exceed the Total Island-Wide ducted, as were interviews with members of scale urban retail, and restaurants. Operating and Capital Development Coses. the real estate development community. In New York City, unemployment has de­ The cash flow ana!Jsis is not a valuation. It does In general, the future ofGovernors Island clined significantly from its 1992 high of not attempt to determine feasibility in terms of can be considered within the context of a di­ 11 % to 8.9% in November 1997, but is still returns, profitability or residual land values. verse and growing economy. Broad changes higher than the national average of 4.7%. Of The methodology and assu mptions used in the natuJe of doing business should be con­ particular importance to Governors Island, in the cash flow analysis are as fo llows. Nee sidered in planning for the island. National che strength of Wall Street markers in recent Operating Income was derived by applying trends ofs ignificance include the continuing years has meant new money available fo r real market rate lease and sale prices to each in­ shift from a manufacturing to a service and estate development and different criteria come-generating use to determine gross rev­ information-based economy, the restructur­ being utilized for real estate financing. enues. Market based absorption, vacancy, ing of major corporations, a maturing popu­ New York C ity is clearly a cultural center, rollover, operating costs, and cost of fl nanc­ lation, and growth in domestic tourism. witl1 the highest concentration of cul rural in­ ing were applied co gross revenues to come The region, including the metropolitan stitutions in the world. T he estimated eco­ up with nee operating income. Additional­ New York-New Jersey-Connecticut area, has nomic impact of these institutions is over ly, the capital costs associated with project competitive strengths identified as: financial, $1 0 billion annually, and they are a major development of income-generating uses are business, and media services; arcs, culture draw for millions of domestic and interna­ assumed to be 100% financed wich markec­ and tourism; bio-medicine; advanced ma­ tional visitors each yea r. Governors Island race interest only over the 10-year cime ch inery and systems; and fashion; wich the shares New York H arbor with two of the fran1e used for me cash flows. No escala­ best growth prospects in the finan cial and City's top tourist destinations, the Statue of tions, real estate taxes, mu nicipal service business services clusters. Liberty and Ellis Island. costs, land costs, or developer profits were Population, househo ld, and income Governors Island is well-positioned to used in preparing me cash flows. trends arc positive. T he region's population is take advantage of generally positive market Capital Costs used construction costs maturing and household incomes arc grow­ indicators and a growth cycle fo r real estate witl1 a 15% premium for tl1e island location. ing, which is consistent with national trends. development an d fi nancing. H owever, the The costs were phased in at various times de­ From a regional perspective, key demographic scale and long-term nature of the island's pending on when tl1ey would be required co factors support demand for nearly all real es­ reuse suggests tl1at riming and phasing of in­ support development and marketing of the tate uses. Current and projected real estate vestment will be critical to success. income-generating uses. Additionally, the market conditions in New York City and the capital costs associated witl1 project devel­ Financial Analysis opment oflsland-Wide Uses are assumed to The goal of the financial analysis was to de­ be 100% ftnanced wim market-race interest termine from a fin ancial scandpoinr tl1e rea­ only over che 10-year time frame used fo r sonableness of the Land Use Options being the cash flows. considered for the Environmental Impact Operating Costs for Island-Wide Uses re­ Statement. Six land use options, each with flect New York C ity and more speci fi cally a 10-year fin ancial analysis summary, are de­ Manhattan cosc estimates. scri bed on the following pages. Capital and Operating Cosrs fo r Island­ The financial analysis included an in-depth W ide Uses have not been allocated to either survey of the property, market overviews of me state, city, or private sector use r. Addition­ Soissons Dock, North Ferry Landing. current and projected real estate trends in ally, land coses, fo r the Island or related Off­ Island facilities, are not included. Major NYC Tourist Many assumptions were made in devel­ Destinations Annual Visitors oping me financial analysis, erring 0 11 tl1e Times Square 20.0 mi llion conservative side, including: 100% financ­ Broadway Attendance 9.8 million ing, me use of a static model with no dis­ Metropolitan Museum of Art 4.9 million counts, and a high level of public amenities. Liberty and Ellis Island 4.2 million However, small changes in interest races, fi ­ Empire State Building 2.5 million nancing packages, build-out and absorp­ World Trade Center 1.8 million tion races, market fluctuations, or public United Nations 0.4 million sector investment could change tl1e financial Statue of Uberty. numbers dramatically.

8 Covernon lsla11d land Use Study COMMON PLANNING ELEMENTS

Common Planning Elements Legend T his Study has devised a group of planning el­ ements which recognizes the significant role [}] Waterfront Esplanade the island's tmique resources have on its future (l] Upgraded Ferry Service !]] Use Existing Piers for reuse. The Common Planning Elements are Marina intended to: protect the island's historic re­ @] Maintain Key View sources and views; to augment its extensive Corridors open spaces; to improve access and links to the [fil Restoration & Interpretation of 2 region; ro exploit the potential for water-re­ Forts & Parade Ground lated activities; and to advocate appropriate [§_'] Reuse of Nolan Park and practical reuse. The Common Planning and Houses Elements are broadly organized un der: public [l] Reuse of Colonel's access; transportation and infrastructure; open Row Houses and Park space and views; North Island (the Historic [§] Reuse of Arsenal Area for Retail, Restaurants District) and South Island issues. and Other Island Access to and within the island is a major Support Uses factor in its reuse. While the existing trans­ []] Reuse of Historic Apartment Buildings portation systems and infrastructure are im­ for Permanent or mediately usable, the island would benefit Transient Housing from improvements to create a more publicly­ Q;Q] Reuse of Chapels, Daycare Center, accessible and pedestrian-oriented place. Cinema, South Battery The island's open spaces, particularly the Club, and YMCA as Community Facilities historic grounds and the nearly continuous [TI] Reuse of Buildings waterfront esplanade, are assets to be retained 333,400,515,and and improved. Sensitivity to the views to, 550 for New Uses from, and within the island is considered ~ Provision of Open Space on South Island; firndamental in any scheme. Creation of South Point T he Hisroric District's character should Park also be preserved and enhanced to retain the island's value and identity. New uses for rhe Common Planning historic buildings will add vitality to the Dis­ Elements trict, while appropriate and mod est modifi­ cations, additions, demolition, and new ,__.. construction can improve irs integrity. 0 400' 800' The South Island has potential fo r the BEYER BLINDER BELLE CO NSORTIUM reuse of existing facilities, new development, and significant open space with a marina. By identifying the key assets that deserve consideration under any reuse scenario, the Common Planning Elements guided the creation ofs ix land use options, described on the following pages. These planning options studied development themes that are reason­ able, generally feas ible, and highly flexible. Their programs can be mixed and marched. They are not proposals or recommendations by the GSA, but are meant as catalysts for ideas on rhe island's reuse potential. Historic District near Buttermilk Channel. Castle Williams.

North Elevation of Building 400

Executive Summary 9 REUSE OPTION

Reuse Option This oprion is based on reusing as many buildings as is feasible and marketable for their former use, while expanding and up­ grading the open space for public recreation. Because most of the buildings on the island

Ferry Office ------z<::~ were used for residences and residential sup­ & Restaurant port functio ns, this option has a residential theme, and includes approximately 1, I 00

Rental housing units. Apartments The North Island Historic D istrict is Rental Apts. the focal point of the Reuse Option, fe a­ turing interpretive museum uses of the

Motel historic fores, permanent and transient residences in and around Nolan Park and Colonel's Row, and the reuse of the many fl'l..-~:H-- Retai l/ community facilities. T he Arsenal District Restaurant ar the north end of the island becomes a mixed-use area, ro borh support the per­ manent population and attract a significant visitor population. The South Island remams residential wirh an active recreational public park. The industrial complex would be removed and rhe South Park expanded and improved. Youth Hostel T he Reuse Option requires minimal changes to rhe island's infrascructure. Park­ ing and ferry service capacities are relatively unchanged, with island residents allowed ro park on the island and to bring vehicles on and off via rhe ferry. A new jitney system 2.2 mile -----i"lt.i with a fleer of I 0 buses would provide fre­ Public Waterfront quent island-wide service. Esplanade Marker fucrors support this option. There is a strong demand for housing; neighbor­ hood supportive retail is especially strong throughout the region; and there is inreresr from developers and investors in a full range ofhospiralicy uses, including hostels and bed & breakfast facil ities. This option's extensive reuse of existing facilities will mean lower development coses and a shorter implementation schedule, re­ l!Yl!R BLINDER 1£Ll( CONSORTIUM sulting in an economically viable scenario. 0 400' 800' Reuse Option Highlights Residential 1,618,000 SF Legend 10-Year Financial Analysis Mixed Use 143,000 SF Permanent Residential Capital Costs (in millions) CJ Hospitality 224,000 SF Total to build Income Generating Uses • Mixed Use: Community Facilities 118,500 SF Ret ail, Restaurant, Fitness and Transportation Facilities $125 Museum Facilities D Hospitality: Total to Build Common Area Uses $70 Castle Williams 65,000 SF Hotel, Bed & Breakfast, Fort Jay (outdoor only) 286,200 SF Net Operating Income & Common Area Operating Cost s Conference Center, Building 515 53,200 SF Transient Housing Net Pre-Tax Income from Income Generating Open Space & Recreation Uses and Transportation Facilities $183 • Community Facility: South Park 46 acres Church, Fire. Police, School, Total Common Area Operating Costs S158 Esplanade 8.5 acres Post Office, Medical Offices Marina 440 slips Difference Between Net Pre-Tax Income • Museum & Interpretive Center Golf 18-hole pitch & putt course & Common Area Operating Costs s25

10 Governors Island Land Use Swdy ACADEMIC OPTION

Academic Option T his option assumes the island's use by an academic institution of approximately 4,000 students, and creates a collegiate environment Museum by raking advantage of the defined sub-areas of the island, the architecture of the hiscoric buildings, the large quantities of open space, Ferry Office ------,:71elt> Faculty and the many residential units. & Restaurant Housing T his option particularly benefits from the campus-like serring of the North Island Faculty Housing Hiscoric District. Faculty housing would be located in the hiscoric homes a nd apart­ ments. Classroom and library facilities would be centrally located in Bu ildings 400, 333, Motel 550, and 515. Administrative offices and stu­ Arts & dent services are located in the Arsenal Dis­ Theatre trict. Castle W ill iams and Fort Jay would be museum facilities. lncome-generating devel­ opment would incl ude the existing morel, golf course, museum, retail and restaurants. Student H ousing -----+~ O n South Island, the existing housing would be reused as dormitories. Research labs and athletic facili ties would be accommodat­ CNewlass~rooms ~B~~~7 ed in mostly new construction. A major new & Library indoor spores center would be adjacent ro ball­ fields, courts and an open landscape setting. 2.2 Mile Public --\~~~~~'1~ T he regular use of passenger cars on rhe is­ Waterfront land would be restricted. Two ferries operating Esplanade every 15 minutes would be proposed with a jitney bus system which includes eight buses. Whi le Governors Island readily lends it­ self to the needs of a college, marker support would be a function of the needs of a major New York State/City institution ro expand, move, or create a new campus. Initial mar­ ker research indicates interest by a number of educational institutions. w::=::::rn.:~--~~ New Science Center & Labs Although the capital costs have been esti­ mated, the potential revenues (tuition, grants, ere.) which would offset these costs have not been determined. Therefore, the difference be­ tween income and costs appears negative. It is significanc char chis option incl ud es income­ BEYER BLtNOER BELLE CONSORTI UM producing uses of$25 million over ten years. 0 400' 800" Note: Heavy lines denote new construction Academic Option Highlights 10-Year Financial Analysis Legend Student Housing 810,500 SF Capital Costs (in millions ) CJ Dormitory, Faculty Housing Classroom/Library 971,800 SF Total to build Income Generating Uses D Hotel, Bed & Breakfast Laboratory SF and Transportation Facilities 280,800 • Academic Administration Athletic Facilities SF Total to Build Common Area Uses 221,600 Classrooms & Library Recreation Fields D Net Operating Income & Common Area Operating Costs 28 acres c;;J Academic Laboratory Museum Facilities Net Pre-Tax Income from Income Generating Castle Williams Uses and Transportation Facilities s25 65,000 SF • Museum Fort Jay (indoor & 340,127 SF • Student Activities Total Common Area Operating Costs s55 outdoor exhibits) Athletic Facility Difference Between Net Pre-Tax Income Open Space Cl & Common Area Operating Costs S(31) Esplanade 8.5 acres • Mixed Use (Retail, Restaurant)

Executive Summnry JJ RECREATION OPTION

Recreation Option Arsenal District: T his option is the fi rst of three variations of Retail, Q Restaurants, a concept which proposes extensive demo­ Small Hotels lition and/or new development on South lsland. In response to widespread interest in publicly accessible open space on Gover­ nors Island, this option's predominant use for South Island is a public park, incorpo­ rating passive and active recreation. O n North Island, the existing buildings are reused for public-oriented facilities such Rental as a major conference center, hospi tality fa­ Apts. cilities, retail and restaurants. Some caretaker housing would be provided in the existing apartment buildings and most community faci lities wi ll continue their fo rmer uses. T he new South Park encompasses the entire island south of Division Road. Its 70

Youth Hostel/ acres, excluding roadways and the water­ Student fro nt esplanade, would include numerous Housing ----ltl\H~ bal l fields and courts, an 18-hole pitch & putt golf course, an indoor pool, a skating rink, marina and trails and interpretive salt marsh and tidal basin. M inimal improvements to the island's infrasn:uctu re are requi red with this option. Two ferries at fifteen minute headways at peak hours are proposed with a four-bus

2.2 Mile Public ---ll.l.J~ 1\ jitney system on island. waterfront T his option is consistenc with the need Esplanade fo r public park space in New York City and the regional marker demand for active recre­ ation, such as marinas, golf, and healthclub facil ities. T he confe rence center has a less identifiable market demand, but the island's setting and ameni ties make it an arrractive Fire House ------\ll~~"'"" site for this type of use. Ferry Interpretive Salt Marsh ~~:!~~~~(?\~~~~,.._-:·..__South The fi nancial analysis reAects the ex­ & Tidal Basin ---- Landing ceptional costs associated with building for Special Events and operating a major new public park. However, the considerable revenues fro m

Tidal Bridge at income-generating uses could be applied in Promenade part to offset the Common Area Operat­ BEYER BLINDER BELL( CONSORTIUM ing Costs. 0 400' eoo· Recreation Option Highlights

Note: Heavy lines denote new construction Permanent Residential 179,800 SF Legend Mixed Use 189,700 SF 10-Year Financial Analysis Hospitality (incl. conference ctr.) 623,500 SF Permanent Residential Capital Costs (In millions) D Transient Housing 438,000 SF Mixed Use: Total to build Income Generating Uses Community Facilities 90,500 SF Retail, Restaurant, Fitness and Transportation Facilities Museum Facilities D Hospitality: Total to Build Common Area Uses Castle Williams 65,000 SF Hotel, Bed & Breakfast, Fort Jay (outdoor only) 286,200 SF Net Operating Income & Common Area Operating Costs Conference Center, Building 515 (plus addition 74,700 SF Transient Housing Net Pre-Tax Income from Income Generating Open Space & Recreation Uses and Transportation Facilities $154 • Community Facility: South Park 70 acres Church, Fire, Police, School, Total Common Area Operating Costs $206 Esplanade 8.5 acres Post Office, Medical Offices Marina 440 slips Difference Between Net Pre-Tax Income • Museum & Interpretive Center Golf 18-hole pitch & putt course & Common Area Operating Costs S(52)

12 Governors Island Land Use Study MIXED USE OPTION

Mixed Use Option New Infill This option creates a balance becween new Construction development and a public park on South Is­ land. The result is a low-rise, 2,100-unit res­ Museum and Bed & idential neighborhood and a 42-acre public Breakfast park with recreational fields and courts. Within the North Island, a mix of pub­ lic and private uses are proposed to create a lively and viable cown center in the hiscoric district. The uses include a conference cen­ ter, hospitality facili ties and some retail uses. Rental O n South Island, a new permanenr resi­ Apts. dential development is provided in 12 blocks on the northern half of South Island. The New Hotel height of the new buildings would be limit­ Cons tr. ed to the center roof ridge line of Building 400, or approximately 80 feet. Some ground floor retail is proposed on rhe eastern side of the new neighborhood, providing an oppor­ tunity for increased pedestrian activity at a Medical Offices ---Tel-Mt+•) second (east) ferry landing. This option brings a significant increase in parking demands, which cannot be accom­ Conference Center Youth modated on Governors Island. T herefore, a Hostel larger parking garage and feny fuci lity to serve the island from the Brooklyn waterfront is proposed, requiring the consa·ucrion of a dock, transfer bridge, slip, terminal building and parking faci lities. Passenger feny service 2.2 Mile Public wouJd continue from the Battery Maritime Waterfront Esplanade Feny Building in Manhattan. The island jit­ ney system would include 17 buses. The suength of the residential, retail, .hos­ pitality and recreation markers in the city and region supports the uses. The 2, l 00 residen­ tial units are consistent with projected demand. The financial analysis here underscores the high initial costs for building and financing South Ferry major new residential development, confer­ Landing for Special Events ence facilities, and infrastructure within a ren­ year period. Careful phasing, to account for marker-based absorption and resultant rev­ enues, will be needed for a project of this size IS[YfJt ILINOCR 11£1.U: CONSORTIUM and complexity to be successful Mixed Use Option Highlights 0 400" 800" Permanent Residential 2,997,640 SF Note: Heavy lines denote new construction 10-Year Financial Analysis Mixed Use 298,600 SF Legend Hospitality (Incl. conference ctr.) 798,300 SF Capital Costs (in millions ) D Permanent Residential Student Housing 62,300 SF Total to build Income Generating Uses • Mixed Use: Community Facilities 111,300 SF and Transportation Facilities 5660 Retail, Restaurant, Fitness Museum Facilities Total to Build Common Area Uses 5117 c:J Hospitality: Castle Williams 65,000 SF Hotel, Bed & Breakfast, Net Operating Income & Common Area Operating Cost s Fort Jay (outdoor only) 286,200 SF Conference Center, Building 515 plus addition 74,700 SF Net Pre-Tax Income from Income Generating Transient Housing Uses and Transportation Facilities 5165 Open Space & Recreation • Community Facility: South Park 34.5 acres Total Common Area Operating Costs 5206 Church, Fire, Police, School, Esplanade 8.5 acres Post Office, Medical Offices Difference Between Net Pre-Tax Income Marina 440 slips & Common Area Operating Costs S(40) Golf 18-hole pitch/putt course • Museum & Interpretive Center

Executive Summary 13 MAXIMUM DEVELOPMENT OPTION

Maximum Development Option Arsenal New Infill District: Construction This opcion is in tended co creace che greac­ Retail, Restaurants, esc number of new residential unics wichouc Museum Small Hotels Marina and Bed & Suppart sacrificing a public park. The result is a Breakfast 4,000-unic development and a 20-acre park on Souch Island. Similar ro che previously described Mixed­ Use Option, the North Island contains a mix of publ ic and private uses co create a lively

Transient --.c-__,~,.<::: and viable Historic Districc. The uses include Housing a conference center, hospical icy facilities, and Rental Apts. mixed-use development. On che Souch Island, the new develop­ New menc encompasses 20 blocks wich buildings. Hotel Cons tr. New retail would occu r near che new east fe rry landing marina. A public park wraps arou nd the southern and western edge of che island co buffer che strong westerly winds. .C:~~~~ New Due co che higher residential density of Retail Medical Cons tr. chis option, a new parking and ferry facilicy Offices ----¥~W6•) in Brooklyn, as described in che Mixed-Use Opcion, is required, plus an additional ease Conference island fe rry dock along Buccermilk Channel. Center Two veh icular and rwo passenger fe rries will be needed co be operating. Based on a 24 passenger jitney, 42 buses are needed during peak hours on the island. Neighborhood ---l'it\f--rnH---t-\tf--lit'--.:""-­ Park T he strength of the residential, recai l, hospitalicy, and recreation markers in New York Cicy and the region support chese proposed uses. However, although che res­ idential marker is strong, an absorption race 2.2 Mile Public - ----= / '"11'1-----New Residential of 200 units per year was escimaced. Waterfront Construction Esplanade The cash Aow resulcs are similar co che Mixed-Use Option except for C\vo irnporcanc differences. Firsc, the absorption race of 200 unics per year used resulcs in a 20-year build­ out period. Therefore, only half of the income­ generating residential w1ics are available in che l 0-year analysis, lowering che income and cap­ ital coses. Second, che smaller public park re­ sults in lower capical costs to build and operate

IUE'R au r.o(R 1£ll( CONSORTIUM the Common Area components. These faccors will impact any financial analysis undercaken. 0 400' Maximum Development Highllghts Note: Heavy lines denote new construction Permanent Residential 4,537 ,600 SF Legend Mixed Use 297,242 SF 10-Year Financial Analysis Hospitality (incl. conference ctr.) 852,500 SF Permanent Residential Capital Costs lin millions ) D Student Housing 62,300 SF Total to build Income Generating Uses • Mixed Use: Community Facilities 111,300 SF Retail, Restaurant, Fitness and Transportation Facilities S544 Museum Facilities D Hospitality: Total to Build Common Area Uses s110 Castle Williams 65,000 SF Hotel, Bed & Breakfast, Fort Jay (outdoor only) 286,200 SF Net Operat ing Income & Common Area Operating Costs Conference Center, Building 515 plus addition 74,700 SF Transient Housing Net Pre-Tax Income from Income Generating Open Space & Recreation Uses and Transportation Facilities S188 Community Facility: South Park & neighborhood parks 20 acres Church, Fire, Police, School, Total Common Area Operating Costs S183 Esplanade 8.5 acres Post Office, Medical Offices Marina 440 slips Difference Between Net Pre-Tax Income • Museum & Interpretive Center Golf 18-hole pitch & putt course & Common Area Operating Costs s5

14 Covemors ls/and land Use Study PHASE-IN OPTION

Phase-In Option Information This option envisions a transitional use for Post Office Police & the existing structures while long-term plans Exhibits for the island are being processed. It makes use of many of the buildings without pre­ Ferry Office & Restaurant cluding other permanent options to occur. It allows the buildings to be quickly occupied and maintained during the interim period Administration Leasing & between disposal and new development. It is Marketing assumed that during a phase-in period there \\"I:~-- Apts. with could be approximately 800 residential units, Parking 350 hostel or hotel units, and basic com­ munity services. In buildings where the proposed use is the same as the former use, minimum rehabili­ tation is necessary for immediate occupancy. Church T his category includes most of the single family homes and multi-family apartments, as well as many of the administrative offices in the Historic District. Moderate rehabili­ Apartments -+-ti,., ~ 1 tation is necessary in buildings where a with Parking change of use is desired - predominantly an issue with regard to retail facilities. Many buildings not suited for immediate occu­ pancy would be motl1balled, or sealed off. with only basic maintenance and upkeep for weather protection and security. A few se­ lected structures would be demolished due to Apartments with ---i--H:--c::-:!Y9',"\o their limited reuse potential. Parking Lots For the most part, residential buildings are reused as housing. The houses on Nolan Rehabilitation of --...... -~--~...... -=-_,_. Park and Colonel's Row are used as single Ballfields & Courts family houses with limited leases, based on the presumption that tl1e uses will change depending on the island's future. Reuse of the existing buildings will per­ mit overall costs for rehabilitation robe kept at a level at which marker pricing will be competitive. As with the Reuse Option, em­ Apartments with -----4-.,,...,,"lr

Capital Costs lin millions) Residential 1,350,100 SF Minor Rehabllltatlon Student Housing 281,600 SF Total to build Income Generating Uses D Residential and Transportation Facilities $46 Mixed Use 140,700 SF D Motel Total to Build Common Area Uses $13 Hospitality 27,000 SF D Community Facility Net Operating Income & Common Area Operating Costs Community Facilities 104,850 SF Net Pre-Tax Income from Income Generating "Mothball" Buildings 773.400 SF Moderate Rehabilitation $131 Uses and Transportation Facilities Open Space & Recreation Retail Total Common Area Operating Costs $66 South Park and Existing Ballfields 20 acres Mothball Building Difference Between Net Pre-Tax Income D & Common Area Operating Costs $65 • Demolish Building

Executive Summary 15 Summary Credits Further Information The future reuse of Governors Island has For further information on Governors U.S. General Services Administration great potential to significantly and positively Island, you may visit the GSA web site at: impact the State and C ity of New York on a United States Coast Guard http://www.gsa.gov/pbs/pr/govisland.htm long-term basis. The challenge will be to bal­ Or you may call or write: ance the needs and desires of national, state Prepared by the: General Services Administration and city interests whi le respecting the island's Room 16-100, 26 Federal Plaza Beyer Blinder Belle Consortium venerable history and incomparable setting. New York, NY 10278 The Governors Island Land Use Study rep­ • Beyer Blinder Belle, (2 12) 264-3596 resents the collaborative efforts of the GSA, Architects & Planners LLP : USCG, and the Beyer Blinder Belle Consor­ Planning, Urban Design, Historic tium to produce a document that: provides Preservation & Project Management an informative land and facility assessment; • Arthur Andersen & Co.: incorporates a wide range of public perspec­ Marketing & Financial Feasibility tives; and creates a flexible planning frame­ work fo r reasonable reuse options. • Sasaki Associates, Inc.: The Land Use Study is available to in­ Open Space & Recreation Design form an d guide the many participants in the • Voll mer Associates LLP : on-going disposal process. Transportation & Infrastructure Acknowledgements • Rosenman & Colin LLP: A great number of elected officials, govem­ Land Use Law & Implementation mem agencies, organizations and individuals The Kreisberg Group Ltd.: contributed to the Land Use Study, includ­ Community Relations ing New York State and New York City pub­ lic officials; over 13 Federal, State and City • Howard/Stein-Hudson Associates: agencies; over 30 national and local educa­ Public Forum Recording tional, civic and planning organizations; and • Milligan Consulting: well over 300 individual participants. T his list Governors Island Specialist will be made available.

Sketch of Governors Island as it is today

16 Governors !sland Land Use Study