Recommendations for the Transfer of City-Owned Properties Containing Wetlands Prepared by the New York City Wetlands Transfer Task Force September 2007 Recommendations for the Transfer of City-Owned Properties Containing Wetlands Prepared by the Wetlands Transfer Task Force September 2007 Cover Photos: Wetland properties acquired by New York City Department of Parks & Recreation (DPR) and restored by the Natural Resources Group, DPR. Foreground: Before, during and after tidal wetland restoration at an abandoned Concrete Plant along the Bronx River (restoration funded in part by the National Oceanic & Atmospheric Administration). Photographs by David Kaplan. Background: Spartina alterniflora and tidal creek following removal of a dike as part of salt marsh restoration at Udall’s Cove, Queens (restoration funded in part by New York State Department of State). Photograph by Michael Feller. September 2007 Recommendations for the Transfer of City-Owned Properties Containing Wetlands PREFACE The members of the Wetlands Transfer Task Force commend Mayor Michael R. Bloomberg, the New York City Council, the Council’s Environmental Protection Committee and Committee Chair, Councilman James F. Gennaro for recognizing the importance of protecting the City’s remaining wetlands. Wetlands have a tremendous capacity to prevent flooding, reduce storm surges and improve downstream water quality. They protect and nurture our wildlife heritage – including globally significant birds and fisheries. Wetlands are also a vital and often beautiful element of the City’s rivers and estuaries, places for young and old to recreate, experience nature, and relax. Through Local Law 83, the multi-agency Wetlands Transfer Task Force (Task Force) was set up to inventory available City-owned properties containing wetlands and to make recommendations regarding their potential transfer to NYC Department of Parks & Recreation (DPR) or other agencies for protection from urban development. By addressing the future of City-owned wetlands, as well as some broader questions of wetland management and policy, the Task Force hopes to ensure that these often under-appreciated sites become part of efforts to build a more sustainable future for both the City and Region. The Task Force held to an aggressive schedule, in order to review and adopt methodology, compile available information, learn about existing policies, plans and proposals, and make its recommendations. The appointees, who all volunteered their time for the Task Force, represented a wide range of backgrounds and perspectives; however, with professionalism, relevant knowledge, and good humor, open discussions were fostered about the wide range of considerations for the City’s wetland properties. Decisions on the more than 2,000 City-owned wetland properties in the inventory were made by consensus. The focus of this work is a site-by-site review with recommendations for dozens of larger wetlands and wetland assemblages in the City’s portfolio. To the extent that time and resources permitted, the Task Force also addressed hundreds of smaller wetland properties as well. Properties were evaluated on the basis of size, proximity to existing parklands, and other environmental or economic criteria. Recommendations included Transfer to DPR (NYC Department of Parks & Recreation) or other agencies, Special Review (where further investigation was deemed necessary before a decision can be made on the property’s future status), or No Change (where the property did not meet the criteria for transfer). Early on, the Task Force agreed to consider some of the important policies that govern wetlands in New York City. Recommendations on these policy issues are offered as well. In submitting our report to the Mayor and Speaker of the Council, the Task Force looks forward to the City’s comments, as well as continued action and stewardship in protecting and enhancing our remaining wetlands. September 2007 Recommendations for the Transfer of City-Owned Properties Containing Wetlands TABLE OF CONTENTS Table of Contents ...................................................................................................................i Abbreviations and Acronyms ................................................................................................iii Executive Summary ...............................................................................................................ES-1 1.0 Introduction 1.1 Legislative History ........................................................................................1-1 1.2 Task Force Process and Actions ....................................................................1-1 1.3 Importance of Wetlands .................................................................................1-2 1.4 Previous Acquisition of Wetlands by DPR and DEP ...................................1-4 1.5 Regulatory Framework ..................................................................................1-6 1.6 Wetland Trends in New York City ................................................................1-8 2.0 Task Force Assessment Process 2.1 Inventory and Mapping ..................................................................................2-1 2.2 Criteria ...........................................................................................................2-2 2.3 Public Input ....................................................................................................2-3 2.4 Evaluation Process .........................................................................................2-3 2.4.1 High Priority Assessment Areas ........................................................2-4 2.4.2 Other Assessment Areas ....................................................................2-4 2.5 Stewardship Options ......................................................................................2-5 2.5.1 Overview ............................................................................................2-5 2.5.2 Alternative Stewardship Mechanisms................................................2-6 2.5.2.1 Management by Local and/or Civic Organizations ..............2-6 2.5.2.2 DEP Blue Belt Program ........................................................2-6 2.5.2.3 City Lease Obligations ..........................................................2-7 2.5.2.4 Department of Citywide Administrative Services Portfolio. 2-8 3.0 Recommendations: Other Wetland Issues 3.1 Establish a Wetlands Policy for New York City ...........................................3-1 3.2 Establish a Policy for Lands Under Water .....................................................3-2 3.3 Mitigation Opportunities ................................................................................3-3 3.4 Funding for Management of Wetlands ..........................................................3-4 3.5 Wetlands on Mapped Streets and Street Ends ...............................................3-4 4.0 Recommendations for Transfer 4.1 Introduction to Recommendations .................................................................4-1 4.2 Recommendations 4.2.1 Staten Island Assessment Areas.........................................................4-3 4.2.1.1 Arlington Marsh ....................................................................4-3 4.2.1.1.1 Arlington Marsh Bridge Creek ...............................4-5 4.2.1.1.2 Arlington Marsh Cove ............................................4-6 4.2.1.1.3 Arlington Marsh Peninsula .....................................4-8 4.2.1.1.4 Arlington Marsh Small Properties ..........................4-10 4.2.1.2 Fresh Kills ...........................................................................4-11 4.2.1.3 North Shore .........................................................................4-13 4.2.1.4 Saw Mill Creek ...................................................................4-15 4.2.1.5 Arbutus Creek and Wolfe’s Pond .......................................4-16 4.2.1.6 Charleston ...........................................................................4-18 4.2.1.7 Jack’s Pond and Wood Duck Pond .....................................4-19 September 2007 Recommendations for the Transfer of City-Owned Properties Containing Wetlands i 4.2.1.8 Lemon Creek .......................................................................4-21 4.2.1.9 Oakwood Beach ..................................................................4-23 4.2.1.10 Page Avenue .......................................................................4-25 4.2.1.11 South Beach ........................................................................4-27 4.2.1.12 Sweet Brook .......................................................................4-29 4.2.2 Queens Assessment Areas .................................................................4-30 4.2.2.1 Broad Channel .....................................................................4-30 4.2.2.2 Edgemere .............................................................................4-32 4.2.2.2.1 Edgemere 1—Urban Renewal Area (URA) ..........4-32 4.2.2.2.2 Edgemere 2—Norton Basin ..................................4-33 4.2.2.3 Flushing Airport ..................................................................4-34 4.2.2.4 Idlewild Vicinities ...............................................................4-36 4.2.2.4.1 Idlewild Parks .......................................................4-36 4.2.2.4.2 Springfield Boulevard ROW .................................4-37 4.2.2.4.3 Springfield