Chapter 7: Visual Character A. INTRODUCTION This chapter presents background information about the visual environment of the Route 9A Project Supplemental Environmental Impact Statement (SEIS), identifies potential visual impacts associated with the alternatives being considered and identifies potential measures to avoid, minimize or mitigate any potential adverse visual impacts and to enhance positive impacts of the various project alternatives. B. EXISTING CONDITIONS: The existing visual environment is described in this section. Pursuant to the Route 9A Reconstruction Project Final EIS (FEIS), the proposed work falls within the area identified as the Battery Park City Visual District. The 1994 FEIS Selected Alternative was constructed and was nearly complete just prior to September 11, 2001. That design featured an eight-lane roadway, and a bikeway and walkway to the west of the roadway. In the area identified in the 1994 FEIS as the Battery Park City Visual District, there are large-scale office and residential buildings on both the east and west sides of the roadway. The area to the west of the roadway and bikeway/walkway is home to Stuyvesant High School, P.S./I.S. 89, the World Financial Center (WFC), and the rest of Battery Park City. The area to the east includes the Borough of Manhattan Community College, the College of Insurance, the Verizon Building, the World Trade Center (WTC) Site and various other buildings. Prior to September 11, 2001, the Route 9A median between Vesey and Liberty Streets included the access ramps to the WTC garage and two ventilation structures approximately 12 feet high each for Port Authority Trans-Hudson (PATH). The median was unable to accommodate significant planting in this limited area due to the location of these infrastructure elements. The attacks of September 11, 2001 modified the physical and visual conditions of Route 9A. The easternmost portion of Route 9A between Vesey and Liberty Streets rested on the basement (east of the slurry wall) of the WTC garage structure that was destroyed on September 11, 2001. That area now falls within the “bathtub” of the WTC site and will be part of the future Memorial. The northbound lanes of the interim six-lane roadway that was constructed to restore traffic service are located where the former median was located. A separate haul road was constructed along the east side of the roadway. Wintergarden at the WFC along the roadway’s west side was damaged in the attacks; and has been restored to include a new major entrance to the roadway’s western edge. A pedestrian bridge, known as the North Bridge (in the vicinity of the Fulton Street corridor,) which connected the WTC with the Wintergarden in Battery Park City was destroyed in the attacks. Route 9A was designed and constructed as an urban boulevard with travel lanes, turning lanes and parking lanes, a continuous bikeway and walkway with planting and pedestrian refuge areas. In March 2002, a temporary, six-lane interim roadway was opened that restored traffic to Route 9A. The interim roadway was constructed with temporary pavement, lighting, no pedestrian 7-1 Route 9A Project DSEIS refuge and no median area. In addition, a temporary pedestrian bridge was constructed by New York State Department of Transportation (NYSDOT) in cooperation with the Lower Manhattan Development Corporation (LMDC) and the Port Authority of New York and New Jersey (PANYNJ) at Vesey Street to facilitate pedestrian crossings in this area. The pedestrian bridge across Route 9A at Liberty Street was damaged in the attacks, but was subsequently restored for usage by pedestrians. A walkway to the east of the bridge was constructed as well. NYSDOT, in cooperation with the Battery Park City Authority (BPCA) constructed a temporary pedestrian bridge across Route 9A just north of Rector Street. Street lighting and traffic signals are standard-type equipment and not decorative. There is no pedestrian access along the east side of the street and a chain link fence with screening slats woven into it prevents physical and visual access to the site from the roadway as well. A short tunnel that begins at West Thames Street and is known as the West Street Tunnel connects southbound Route 9A with the Brooklyn Battery Tunnel. South of Albany Street, the roadway contains numerous concrete barriers, ramps, and turning lanes with limited plantings or street trees. Vehicles on ramp connections prevent at-grade pedestrian crossings. North of Vesey Street, Route 9A is a landscaped boulevard with new concrete pavement, decorative lighting, and a continuous bikeway and walkway along the east side of the roadway. The sidewalk areas on the east side of the roadway are narrow (8-10 feet) in some locations and are bordered by high-rise buildings, including several historic structures. VISUAL DISTRICTS For analysis purposes, the project area was divided into three distinct visual districts. These were established by review of the adjacent/surrounding land uses and buildings. They are the Southern Route 9A Visual District (West Thames Street to south of Albany Street), the World Financial Center (WFC)/World Trade Center (WTC) Site Visual District (Albany Street to Murray Street), and the Northern Route 9A Visual District (north of Murray Street to Chambers Street) (see Figure 7-1). Photos of existing conditions are shown in Figures 7-2 through 7-11. VIEWER GROUPS Many people utilize the area under consideration in this SEIS. Viewer groups include workers (including students), residents, motorists, visitors, pedestrians, and bicyclists. C. VISUAL IMPACTS OF THE PROJECT ALTERNATIVES There are three project alternatives being considered: the No-Action Alternative, the At-Grade Alternative and the Short Bypass Alternative with a Cedar Street or Liberty Street Portal. Concepts, principles and design elements associated with context sensitive design solutions would be applied under all alternatives. It should be noted that both the Vesey Street and the Rector Street temporary pedestrian bridges would be removed with all of the project alternatives. Plans for the WTC Memorial, the Freedom Tower, and the redevelopment of the WTC site area and lower Manhattan redevelopment efforts will also have an effect on the visual environment in this area. 7-2 Chapter 7: Visual Character IMPACTS OF THE NO-ACTION ALTERNATIVE The roadway would be rebuilt in its current location using permanent paving materials . There would be limited ability and space for urban design and aesthetic improvements although some limited landscaping and urban design improvements would be included. Permanent decorative light poles would be installed. This alternative will include three lanes in each direction. IMPACTS COMMON TO THE AT-GRADE AND SHORT BYPASS ALTERNATIVES Both the At-Grade and Short Bypass Alternatives would result in substantial improvement to the visual quality of the project area by incorporating features that would enhance the urban design quality of the area and improve upon the urban design environment that was constructed pursuant to the 1994 FEIS (see Figures 7-12 through 7-17). Adjacent to the WTC site, the roadway would be rebuilt with a wide sidewalk to help provide an appropriate and respectful setting for the future Memorial. A promenade would be created that would enhance the pedestrian spaces both adjacent to the planned Memorial and along the entire project’s length. The promenade would strengthen pedestrian connections among the WTC Site, the WFC, Battery Park City, and areas to the north. The design would enhance both east west and north south pedestrian crossings. With both the At-Grade and Short Bypass Alternatives, a promenade would be created on both the east and west sides of the street. The existing bikeway and walkway area on the west side of the road would remain a continuous element of the Route 9A Project and would be rebuilt as required. A major, wide crosswalk across Route 9A would be provided at the extension of Fulton Street. The project would have significant positive impacts for pedestrians from the implementation of these context-sensitive urban design concepts. The At-Grade and Short Bypass Alternatives would help provide an environment that would allow for active pedestrian uses at the ground level along both the east and west sides of the roadway and enhance connectivity in both the north-south and east-west directions. The At-Grade and Short Bypass Alternatives would include a comprehensive landscaping plan including street tree planting, decorative street lighting and appurtenances, decorative pavement and other amenities. On the west side of the roadway between Albany and West Thames Street, such active uses as playground areas and multi-use lawn spaces would be accommodated. Both the At-Grade and the Short Bypass Alternatives would provide enhanced pedestrian crossings. In the area south of Vesey Street, the existing sidewalk would be widened from its current 8-10 foot width along the east side of the roadway to one that varies from approximately 15 feet at its narrowest to approximately 40 feet at its widest. The widened sidewalk would provide opportunities for lively pedestrian-oriented ground-level uses. Along the west side of the roadway, plans for both a promenade and programmed recreational uses would be developed in conjunction with BPCA and the Hudson River Park Trust (HRPT). VISUAL IMPACTS OF THE AT-GRADE ALTERNATIVE In addition to the visual impacts described above, the At-Grade Alternative would not require the accommodation of the access ramps required under the Short Bypass Alternative, as described below. The At-Grade Alternative provides four lanes at the surface in each direction with additional turning lanes and therefore the amount of vehicular traffic and its effects would be similar to the level present prior to September 11, 2001. The At-Grade Alternative provides a more limited area on the surface to accommodate pedestrians, enhance greenspace and open 7-3 Route 9A Project DSEIS space than is provided under the Short Bypass Alternative.