Indirect and Cumulative Effects

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1 Chapter 19: Indirect and Cumulative Effects A. INTRODUCTION The federal Council on Environmental Quality s regulations implementing the procedural provisions of the National Environmental Policy Act, set forth at 40 CFR Part , require federal agencies to consider the environmental consequences of their actions, including not only direct effects, but also indirect and cumulative effects. Indirect impacts are those that are caused by an action and are later in time or farther removed in distance, but are still reasonably foreseeable (40 CFR ). Generally, these impacts are induced by the proposed project. Indirect effects can occur within the full range of impact types, such as changes in land use; economic vitality; neighborhood character; traffic congestion; air quality; noise; vibration; and water and natural resources. Examples of indirect effects can include growth-inducing effects and other effects related to induced changes in land use patterns, population density, and growth rates, and related effects on air and water and other natural systems. Cumulative impacts result from the incremental consequences of an action (the project) when added to other past and reasonably foreseeable future actions (40 CFR ). The cumulative effects of an action may be undetectable when viewed in the individual context of direct and even indirect impacts, but nevertheless when added to other actions can eventually lead to a measurable environmental change. Cumulative impacts are the net result of both the proposed project and the other improvements planned in, near, and around the project. Chapters 5 through 18 of this SDEIS assess the potential direct and indirect effects of the No Build Alternative and Second Avenue Subway for a range of technical areas. This chapter summarizes indirect effects of the project alternatives and addresses cumulative effects of these alternatives in combination with the conditions presented in the Future Conditions Common to All Alternatives sections of the previous chapters. It also considers the potential for cumulative effects from other reasonably foreseeable actions that are not yet developed enough to be included in capital budgets or identified in the long-range plans of transportation agencies. B. INDIRECT EFFECTS By greatly improving subway service on Manhattan s East Side, operation of the Second Avenue Subway would have largely beneficial indirect effects. Most of the adverse impacts associated with the Second Avenue Subway would occur during construction. In contrast, the No Build Alternative would create no construction impacts, but its permanent long-term effects would be adverse, as discussed below. NO BUILD ALTERNATIVE With the No Build Alternative, no subway would operate along Second Avenue south to Water Street or along the Broadway alignment south of 63rd Street. As development continues on the 19-1

2 Second Avenue Subway SDEIS East Side of Manhattan, the rising population, some of whom will use the Lexington Avenue Line, will exacerbate conditions on this currently overcrowded line and East Side bus routes as well as add to vehicular congestion on the East Side s major north-south thoroughfares, with attendant increases in air pollutant emissions and noise. In some locations distant from existing subway stations, growth might occur less quickly without new subway service. SECOND AVENUE SUBWAY TRANSPORTATION As described in Chapter 3, Description of Construction Methods and Activities, several sites are currently under consideration along Second Avenue for use as shaft sites or staging areas, and other sites along Second Avenue north of 125th Street could be affected by cut-and-cover construction activities necessary to create a new underground subway storage yard beneath Second Avenue. As a result of these activities, some areas used for surface parking of NYCT buses could be lost during construction. These include surface parking near 129th Street that currently houses 42 buses, and surface parking between 128th and 126th Streets on the west side of Second Avenue, where 88 buses currently park. Parking on these sites would be displaced if the sites are selected for use as shaft sites or staging areas, or if access to the parking areas must be blocked. If no shaft or staging areas are created there and access can be maintained, the cutand-cover excavation needed to build the yard in this area would affect the eastern portion of these lots, displacing a smaller number of buses. NYCT has plans to construct an enclosure for the existing surface parking area between 128th and 126th Streets on the west side of Second Avenue (which itself would require temporary displacement of bus parking to allow for construction). Development of this facility would be delayed if the cut-and-cover construction required for a new underground storage yard is undertaken. If temporary displacement of bus parking is required to accommodate subway construction activities, the buses would be temporarily relocated to other parking areas within the vicinity. If this were not possible, they would instead be relocated to other locations that have not yet been identified. Communities near the temporary, alternative parking areas would experience increased traffic and noise from the buses during that temporary period. If relocation is necessary, NYCT would seek to locate the buses in existing NYCT parking facilities. If that is not practicable, properties adjacent to existing facilities would be sought, with preference given to properties already owned by NYCT. If a suitable property cannot be found, buses may have to be parked on the street at night temporarily. Also during construction, construction vehicles needed to build the subway have the potential for indirect effects on neighborhoods surrounding the construction zones. As described in Chapter 5D, Vehicular Traffic, the estimated construction truck volume on any one bridge or tunnel would peak at approximately 60 vehicles per hour (vph) per direction and average between 30 and 40 vph per direction. After leaving Manhattan, trucks would likely use a number of different routes, depending on the location of their final destination. It is possible that, for certain activities such as spoils removal, many trucks could head to one point; if so, there could be a localized traffic impact at that location. However, this is not yet possible to determine because neither contractors nor locations for spoils delivery have been identified. Once this information has been determined, an assessment of conditions at these locations would be undertaken as part of the comprehensive areawide traffic management and mitigation plan that will be developed 19-2

3 Chapter 19: Indirect and Cumulative Effects by NYCT and reviewed by the Traffic Task Force described in Chapter 5D. As part of the traffic monitoring program, the Traffic Task Force would ensure the concentrations of truck traffic do not cause significant impacts at these locations or that appropriate mitigation measures are implemented. SOCIAL AND ECONOMIC CONDITIONS Impacts During Construction As described earlier (see Chapter 8, Displacement and Relocation ), construction activities associated with building a new subway line could require temporary disruptions to some buildings occupants, for safety reasons and in instances when construction activities would occur too close to the buildings to allow the entrance to be accessible. This is most likely to occur where extensive underpinning is required, where settlement could occur, or when cut-andcover excavation would occur very close to the building line. In most locations, this disruption would be short-term, and would not affect neighborhood character. As described in previous chapters, the Shallow Chrystie Option is no longer under consideration because it would have resulted in more significant adverse impacts than either the Deep Chrystie or Forsyth Street Option. With respect to indirect impacts, with the Shallow Chrystie Option, access to buildings on Chrystie Street between Houston and Canal Streets would be curtailed for several periods of up to a month at a time. It is possible that the buildings in the area might also have to be demolished. If the buildings remain in place, they would return to active use after construction is complete, but the residents and businesses would not be the same as those there today. If the buildings are demolished, new buildings would be constructed after completion of the construction. Either of these scenarios in the Shallow Chrystie Option would likely result in substantial changes to the neighborhood character of the area along and near Chrystie Street between Houston and Canal Streets. This direct effect of the project s construction could in turn induce a secondary effect: an adverse impact to the neighborhood character of a wider area than that immediately affected by the displacement. As described in Chapter 6, Social and Economic Conditions, many of the businesses that might be affected cater to particular communities, including the Chinatown community and those in the restaurant and kitchen supply business. The loss of these businesses with the Shallow Chrystie Option could affect the larger business community adversely. Another indirect effect of the project s construction would be changes to development trends in the surrounding areas as a result of the disruption associated with construction. As noted in Chapter 6, it is possible that developers of new buildings located close to the construction areas on Second Avenue would delay their development proposals to avoid conflicts with construction for the new subway. This could temporarily delay or even alter land use trends, particularly in East Harlem and the East Village/Lower East Side/Chinatown where there is significant remaining development potential. Further, because some of the construction activities would temporarily reduce the desirability of some locations nearby, there is potential for a market decrease in rents for some properties. However, upon completion of the subway, these properties would benefit most from its construction, thereby alleviating any long-term hardships to building owners. Within the New York area, the subway s construction would result in economic benefits. It is expected that the project would attract specialized tradespeople to the city during the construction period. The expenditures of these workers and their families would support local businesses. Some of these benefits would be expected in the vicinity of the subway s alignment, 19-3

4 Second Avenue Subway SDEIS where construction workers would support local retail businesses. In addition, the construction of a Second Avenue Subway would require materials produced outside the metropolitan area. Structural steel, railroad ties, concrete, train cars, and other procurements may be manufactured in communities in Upstate New York or elsewhere in the United States. The demand for infrastructure and materials associated with the subway would likely spur jobs and other economic benefits in these communities. Finally, as described in detail elsewhere in this SDEIS (see Chapter 7, Public Open Space ), construction of the project would require use of several parks along the alignment for construction staging and shaft sites. To mitigate the impacts of the loss of those parks during construction, NYCT would work with the New York City Department of Parks and Recreation (NYCDPR) to identify suitable locations for replacement facilities. Although the potential locations for those new facilities have not yet been identified, any new facilities would in turn result in positive changes to the neighborhood character of the areas where they are created. New outdoor facilities in particular would change the appearance of the nearby area, as well as increasing pedestrian activity and noise levels within the immediate surroundings. However, the areas where such facilities are placed would be noisier than they currently are, and would also experience increased pedestrian traffic. Permanent Impacts As described in other chapters of this SDEIS, the Second Avenue Subway would relieve congestion on the Lexington Avenue Line, making transportation more convenient for travelers in the Bronx, Manhattan, and Brooklyn who use that service. The Second Avenue Subway would also greatly improve transit access for communities on the far East Side, connecting them from East Harlem to Lower Manhattan, and would create for the first time a one-seat ride from East Harlem and the Upper East Side to West Midtown. In addition, the new subway would create a direct connection from the Metro-North Harlem-125th Street Station down the East Side to the Midtown and Lower Manhattan Central Business Districts, and the neighborhoods in between. The ability of New York s transit system to conveniently serve major residential and employment centers is an essential component in the region s economic growth and productivity. The new subway would play a key role in helping the city sustain and improve its economic vitality, facilitating retention of jobs, expansion of existing businesses, and development of new businesses. Existing congestion and access problems within the subway network would be substantially reduced, and new capacity would be provided to support future economic growth. By improving the transportation infrastructure, the proposed Second Avenue Subway would help maintain the city s competitive edge nationally. Furthermore, since the city contributes greatly to the economy of the tri-state metropolitan region and New York State as a whole, areas outside the five boroughs would also benefit from the project. The direct effects of the new subway service would also result in indirect effects on land use patterns and development in the nearby communities. The substantial improvement to transit service overall would greatly support study area neighborhoods by adding travel options for residents, workers, and visitors in these communities; by improving access to important land uses, such as hospitals, museums, schools, parks and other regional destinations; and by helping to relieve traffic congestion. In some neighborhoods particularly East Harlem and the East Village/Lower East Side/Chinatown the improved access would make development of vacant or underutilized lots in the area more likely by attracting new investment to the area. In Lower Manhattan, the new access would support existing commercial uses and make the area more 19-4

5 Chapter 19: Indirect and Cumulative Effects attractive for prospective retail and residential uses. In other neighborhoods (e.g., the Upper East Side and East Midtown), the new subway could accelerate existing development trends, but would be unlikely to change them. New transit connections to and from other parts of the city and region would also extend the project s economic benefits outside of Manhattan. The Second Avenue Subway would alter travel patterns within and near Manhattan s East Side. Commuters, residents, and visitors who previously used the Lexington Avenue Line or a local bus route may alter their trip to use the Second Avenue Subway. In most cases, the origin and destination of these trips is not expected to change, but the intermediate use of transit and pedestrian facilities could be considerably different. Thus, businesses en route, particularly those near stations, may experience increased patronage. Those adjacent to certain Lexington Avenue Line stations or major bus stops may experience a reduction in patronage. However, the Lexington Avenue Line would continue to be well-used, and these businesses would not likely be significantly affected. In general, restaurants, fast-food stores, supermarkets and grocers, dry cleaners, and other convenience-related retail businesses and neighborhood services adjacent to or near proposed subway station entrances would benefit from increased pedestrian traffic as riders come and go to their homes and jobs. In areas where there is currently a considerable rate of retail vacancy, the stations may attract new commercial development and the vacant spaces would be reoccupied. Moreover, the stations would support other forms of development in the future, such as the publicly sponsored housing and retail businesses planned for the Houston Street area. These represent positive secondary economic effects, which could strengthen the overall character of the neighborhood and its retail environment. In areas where transit-related pedestrian activity already occurs (e.g., 125th Street), higher pedestrian volumes would reinforce the local retail environment. With a new major means of access to the East Side, market rents may increase in certain areas in response to new or expanded demand. In other areas, the subway may spur new development to accommodate increased desires for residential, office, or retail space. However, considering the density and vitality that already exists in most of the East Side, these new developments would not be expected to fundamentally alter the character or quality of these communities. NATURAL RESOURCES If the Coney Island Yard expansion site is selected for use as a new subway storage yard, this would require construction activities in a wetland. NYCT would be required to mitigate this impact, if feasible. Such mitigation could consist of identifying a suitable site in which to replace this wetland, and implementing the replacement, in compliance with state and federal environmental standards. As the potential yard expansion site is currently the subject of an ongoing remediation program required by two New York State Department of Environmental Conservation (NYSDEC) Records of Decision (RODs) dated March 2001 and March 2002, any construction activities at the yard site would have to be coordinated with the approved remediation plans and any ongoing monitoring activities occurring on site at the time of Second Avenue Subway construction. Review and approval of proposed Second Avenue Subway plans would also be required by NYSDEC. 19-5

6 Second Avenue Subway SDEIS C. CUMULATIVE EFFECTS OVERVIEW The Council on Environmental Quality s (CEQ s) Considering Cumulative Effects Under the National Environmental Policy Act (January 1997) offers a framework for examining cumulative impacts of a proposed action. Overall, this guidance is clear that an EIS under NEPA must consider that the effect of a project, in combination with other conditions and potential actions, may have an impact that could not be identified in an examination of impacts from the project alone. To this end, the CEQ outlines a process for the identification and evaluation of cumulative effects. It includes the following: Scoping, in which the cumulative effects issues are determined, geographic scope and time frame for the analysis are established, and other actions affecting the issues and areas of concern are identified. Analysis of the affected environment, in which the resources of concern identified in scoping are characterized in terms of their response to change. The stresses affecting these resources are also characterized, and a baseline condition for the resources is defined. Determination of environmental consequences, in which cause-and-effect relationships between the types of actions being taken and the stresses on resources are defined, the magnitude of impacts are determined, alternatives or mitigation to avoid adverse cumulative impacts are proposed, and the cumulative effects of the selected alternative are monitored. Those steps were followed in preparation of this SDEIS for the Second Avenue Subway. Following CEQ guidelines, an analysis of cumulative impacts considers resources, ecosystems, and human communities that could be potentially affected by the action and whether those could also be affected cumulatively by the action in combination with other reasonably foreseeable actions. To this end, this SDEIS considers as the future baseline condition the combination of existing conditions together with known development plans, public policies, projected population and employment growth, and other general background growth. The Second Avenue Subway Alternative is then compared with this future baseline condition. CONSTRUCTION PHASE As described previously, the construction phase of the proposed project could span some 12 to 16 years. During that period, the various means of construction would affect land use, economic conditions, visual and neighborhood character, historic and archaeological resources, transportation, air quality, and noise and vibration. Temporary cumulative effects could occur when other projects in the vicinity of the Second Avenue Subway alignment would be built at the same time, or in close time, to subway construction. This may increase the intensity or duration of certain construction-related impacts. TRANSPORTATION AND INFRASTRUCTURE IMPROVEMENTS Several transportation improvements are planned in and near the proposed alignment of the Second Avenue Subway that will, during their construction phase, result in on- and off-site traffic detours, potential air quality and noise impacts, and possible effects to neighborhood character. 19-6

7 Chapter 19: Indirect and Cumulative Effects Bridge and Highway Reconstruction Projects The New York City Department of Transportation (NYCDOT) and New York State Department of Transportation (NYSDOT) are planning bridge and highway reconstruction projects along the East Side of Manhattan that may affect traffic flows in the same areas that would be affected by construction work for the Second Avenue Subway. These projects are described below. In East Harlem, four major construction projects along the Harlem River near Second Avenue are being planned: rehabilitation of the Third Avenue and Willis Avenue Bridges, which link Upper Manhattan and the Bronx; reconstruction of the Harlem River Drive in this area (known as the 127th Street viaduct); and reconfiguration of certain aspects of the Triborough Bridge. During the bridge construction projects, there will be detours in East Harlem to facilitate the closure of traffic lanes on the bridges. As a result, certain intersections will experience increased traffic and the potential effects to air quality and noise. Based on information currently available, NYCDOT plans to complete the Third Avenue Bridge project in 2005 and then commence with the Willis Avenue Bridge project. It is possible that detours associated with these bridge reconstruction projects would overlap with diversions from the construction of the Second Avenue Subway. The cumulative effect may result in congestion on certain streets in East Harlem and restricted access to certain businesses in the area. In addition, both the Willis Avenue and Third Avenue Bridge projects will use the Harlem River waterfront alongside the Harlem River Drive, in the area between the two bridges, for staging and lay-down areas as well as for the delivery of construction materials by barge. This area could overlap with the Harlem River waterfront area being considered for use as a staging and barge site for the Second Avenue Subway. Further, those bridge reconstruction projects may require restrictions to access to the Harlem River for waterborne traffic, particularly during bridge demolition and materials removal. This may result in the limited use of the waterway for the removal of spoils from the Second Avenue Subway. The reconstruction of the 127th Street viaduct of the Harlem River Drive would also involve use of the Harlem River waterfront between the Third Avenue and Willis Avenue Bridges. To maintain roadway capacity and traffic flow, a temporary replacement roadway will be constructed in this area for use during the reconstruction of the viaduct. This project is scheduled to start in 2006 and be completed in In addition, the Triborough Bridge and Tunnel Authority is proposing to reconfigure the Triborough Bridge in the future. This will include changes to certain bridge elements, including some of the toll plaza areas and ramps. The most noticeable changes will occur to the ramps on Randalls Island. This construction work could again result in some delays on the bridge while construction is under way, which could in turn affect traffic near 125th Street and Second Avenue. Farther south, NYSDOT is planning major reconstruction work on the FDR Drive along much of the East Side of Manhattan. The work in the area between Montgomery and 15th Streets, where the construction schedule is unlikely to overlap with work on the Second Avenue Subway. From 23rd Street to 42nd Street, the FDR Drive will be reconstructed, most likely beginning in A temporary viaduct will be constructed to maintain three lanes, so that traffic would not divert to local streets. This work is planned to improve the infrastructure, traffic operations, and safety conditions on the roadway, and would provide additional pedestrian access to the waterfront, a two-way bike lane, and an esplanade park. During the construction of these projects, it is expected that modest roadway capacity would be retained to minimize potential detours. It is 19-7

8 Second Avenue Subway SDEIS possible that congestion during certain periods of the day would result in vehicle diversions to local streets, thereby increasing congestion near the construction alignment of the Second Avenue Subway. Another reconstruction project will be undertaken farther north, from 58th to 63rd Street. This work will also involve building a temporary roadway to maintain lanes and traffic flow on the FDR Drive. In addition, a smaller construction project to create an extended auxiliary lane is planned between 116th and 125th Streets. On the Lower East Side, NYCDOT is in the process of rehabilitating the Williamsburg and Manhattan Bridges, which link Lower Manhattan with Brooklyn. The major work on both projects is expected to be complete in It is anticipated that this schedule would precede major construction efforts associated with the Second Avenue Subway. Therefore, there would be no cumulative impacts. As noted elsewhere in this document, the ongoing construction on the Manhattan Bridge is currently affecting subway service at Grand Street, in the same area that would be affected by construction of a new Grand Street Station for the Second Avenue Subway. Because of the work being done on the Manhattan Bridge, through subway service between Brooklyn to the Sixth Avenue Line in Manhattan has been affected, and normal through service to the Grand Street Station has been temporarily replaced by a Shuttle service between West 4th Street and Grand Street. service will be restored upon completion of the current phase of the Manhattan Bridge rehabilitation in 2004, and normal service would continue at this station until Second Avenue Subway construction begins in the Grand Street vicinity. While access to the existing Grand Street Station would be maintained throughout construction of the Second Avenue Subway, the platforms would need to be widened to accommodate the larger number of passengers that would use this station as a result on the Second Avenue Subway s operation. Consequently, service disruptions at the existing Grand Street Station could occur at night and on weekends during subway construction. This impact is considered a direct result of the Second Avenue Subway project, but not a cumulative impact because the service disruptions currently being experienced by station users would cease years before any Second Avenue Subway construction would occur. Finally, in Lower Manhattan, the reconstruction work associated with the World Trade Center site includes a proposed reconstruction of West Street as well as work on other roadways nearby. While much of this work would be west of the Second Avenue alignment, traffic flows could be affected throughout the area. NYCT will coordinate extensively with NYSDOT, NYCDOT, MTA Bridges and Tunnels, and any other involved state and local agencies to minimize potential conflicts between these construction projects and to coordinate the use of the Harlem River waterfront and any other areas where multiple construction projects may occur simultaneously. This coordination has already begun, and will continue throughout the duration of the Second Avenue Subway project. LIRR East Side Access The LIRR East Side Access Project is scheduled for completion in In Manhattan, construction work will involve excavation of tunnels extending from the existing lower level of the 63rd Street Tunnel under 63rd Street, then curving south and west to Park Avenue and continuing southward under Park Avenue to beneath the lower level of Grand Central Terminal. The new tunnels will be constructed using a combination of boring (using a tunnel boring machine) and controlled drilling and blasting. As noted in Chapter 3, the Second Avenue 19-8

9 Chapter 19: Indirect and Cumulative Effects Subway would also require some limited drilling and blasting near 63rd Street to connect to the 63rd Street Tunnel bellmouths. The two projects would coordinate to avoid conflicts and overlapping activities in the same locations. Generally, construction for the East Side Access Project will result in limited surface-level disturbance. However the construction of support systems including ventilation structures will require cut-and-cover construction at limited locations, generally between 55th and 44th Streets at or near Park Avenue. These activities could result in the closure of a sidewalk and curbside lane on each affected street for one to two years. In addition, East Side Access would require limited construction work at 63rd Street and Second Avenue to install additional ventilation equipment for the 63rd Street Tunnel. The two projects would coordinate to avoid conflicts and overlapping construction activities in the same locations. As a result of the East Side Access Project s work in rehabilitating the lower level of the 63rd Street Tunnel, some access might be required to the active subway tracks (the train) on the upper level of the tunnel. This would occur during nights and weekends. With the construction of the Second Avenue Subway, suspension of train service would also be necessary on limited nights and weekends, particularly during the excavation of the curving tunnels connection to the bellmouths at 63rd Street. NYCT Capital Plan As described in the discussion of the No Build Alternative in Chapter 2, Project Alternatives, NYCT will continue its program to keep the subway and bus system in a state-of-good-repair. This may include the procurement of new subway cars and buses; station rehabilitation; signal, track, and systems rehabilitation; and other operational improvements. It is anticipated that some of these projects would occur during the construction of the Second Avenue Subway. In most cases, improvements to the subway and bus system would be undertaken during off-peak periods of travel, and in areas outside the construction zone of the Second Avenue Subway. In areas affected by both projects, NYCT would work to minimize disturbance to existing transit riders by coordinating construction schedules and limiting detours. The surface impacts of the NYCT Capital Plan would be minimal, since the majority of projects that would be undertaken in Manhattan would occur below-grade or without street-level disturbances. Therefore, the NYCT Capital Plan is expected to result in limited cumulative impacts with the construction of the Second Avenue Subway. Other MTA Studies The Lower Manhattan Access Study, initiated in 1997, explored short- and long-term strategies for improving access to Lower Manhattan mostly from suburban locations. A Second Avenue Subway line from Midtown to Lower Manhattan was determined to be the best way to improve access for suburban commuters. The Subway Extension-Hudson Yards Area Rezoning Study is now entering the environmental assessment phase. The project has an expedited schedule, which may coincide with certain components of the Second Avenue Subway s construction. Although surface impacts of the train extension would generally be limited to portions of West Midtown, there may be periods of concurrent construction activities that would impact crosstown traffic on 42nd and 34th Streets. Since both projects would be undertaken by NYCT, a coordination effort would be implemented to minimize the impacts to area residents and businesses. 19-9

10 Second Avenue Subway SDEIS Metro-North Penn Station Access continues to be studied. It is expected that this project would result in limited construction-period impacts, since much of the tunnel infrastructure already exists. Furthermore, the affected area is some distance from the Second Avenue Subway alignment. Therefore, cumulative construction-period impacts would not occur. The LaGuardia Airport Access Study has begun the Alternatives Analysis and DEIS process. The construction impacts of the alternatives under consideration would likely occur in Queens at a considerable distance from the proposed Second Avenue Subway alignment. Therefore, cumulative construction-period impacts would not occur. The Access to the Region s Core Study, which examines access improvements for West-of-the- Hudson commuters, is currently in its alternatives development stage. Although certain alternatives could have cumulative construction impacts with the Second Avenue Subway, it is considered unlikely that these projects would be implemented concurrently. Water Tunnel Number 3 The New York City Department of Environmental Protection (NYCDEP) is now in its second phase of construction for Water Tunnel Number 3, which will consist of a system of aqueducts and feeder lines that will increase the city s capacity for water delivery. The second stage of construction of Tunnel No. 3 in Manhattan will form a loop through Midtown, Greenwich Village, SoHo, and the Lower East Side. It begins at a valve structure located on the western edge of Central Park near 78th Street and extends southward along the West Side to approximately Canal Street. At Canal Street, it will curve east and then north near the Manhattan Bridge. It will continue a northeasterly alignment to 34th Street and Second Avenue, where it will turn northward deep beneath Second Avenue to 54th Street. North of 54th Street, the tunnel will curve northwest, rejoining the Stage 1 portion of the tunnel at 78th Street. At 35th Street, just east of Second Avenue, a new shaft and distribution chamber are planned. A second shaft and distribution chamber is planned for 54th Street and Second Avenue. The Manhattan tunnel extension has been funded, and construction is expected to begin in the winter of NYCDEP will employ a TBM for construction of the tunnel in deep rock. In most places, the Water Tunnel Number 3 will be 350 to 400 feet below the surface of the street. In contrast, the proposed Second Avenue Line would be 20 to 85 feet below the street, or more than 250 feet above Water Tunnel Number 3. It is expected that construction of the deep tunnels for the water supply system would have limited street-level effects, including noise, vibration, or neighborhood character impacts. Therefore, the cumulative construction-period impacts of both projects to the independent sustainability of each tunnel and to the integrity of other structures are expected to be minimal. There may be cumulative or consecutive construction-period impacts at two locations near the proposed alignment of the Second Avenue Subway Second Avenue at 35th Street and Second Avenue at 54th Street where shaft sites and distribution chambers will be constructed. The structure at 35th Street will be located only a few feet below the street surface, extending from Second Avenue to approximately 60 feet east. It will have a permanent hatchway, entrance, and air vent. To complete the cut-and-cover construction at this site, NYCDEP will close the sidewalk adjacent to St. Vartan Park on both Second Avenue and East 35th Street, as well as two lanes on East 35th Street and one lane of Second Avenue, for portions of a two-year period. Similar construction-period impacts would occur with the construction of the distribution chamber at 54th Street and Second Avenue. At this location, NYCDEP would require closure of a portion of Second Avenue and 54th Street for up to two years

11 Chapter 19: Indirect and Cumulative Effects NYCT would build stations for the Second Avenue Line at 57th and 34th Streets. Cut-and-cover construction at these locations may overlap with NYCDEP s proposed shaft sites and distribution chambers for Water Tunnel Number 3. In the event that construction schedules coincide, particularly during the period of surface-level excavation, NYCT and NYCDEP would coordinate the closure of streets and sidewalks to minimize detours; the movement of equipment into and out of their respective sites to reduce conflicts; and the daily construction activity to avoid detrimental effects to one another and to the surrounding community. NYCT and NYCDEP have commenced discussions to coordinate the development of these projects, to protect the final integrity of each and to ensure the least possible disturbance during the construction period. MAJOR DEVELOPMENT PROJECTS During the construction period of the Second Avenue Subway, there will be major construction efforts associated with developments in East Harlem, the Upper East Side, Midtown, and Lower Manhattan. Several hospital and institutional expansion projects are planned that would result in major construction activities on the Upper East Side between 72nd and 60th Streets, in East Midtown near 34th Street, and in Lower Manhattan near Pier 6. Large-scale retail redevelopment is proposed just west of Second Avenue between 125th and 128th Streets. The proposed redevelopment of the Consolidated Edison sites in East Midtown (between 41st and 36th Streets) would also introduce high-rise construction efforts. The development of three Consolidated Edison sites is expected to be completed by 2007, and an additional site is expected to be developed by The United Nations is proposing another large development in East Midtown a new 30-story office tower on the site of Robert Moses Playground at 42nd Street and First Avenue and renovation of the existing Secretariat building. The project is expected to be completed by In Lower Manhattan, there would be large-scale development at the World Trade Center site. In addition, several large mixed-use developments are proposed near Houston Street as part of the Cooper Square Urban Renewal Area. If New York City is selected as the host of the 2012 Olympics, there would also be major construction in West Midtown. No large Olympic facilities are planned for the area along the Second Avenue Subway corridor. Individually, these projects would result in construction-period impacts typical of most new buildings in the city. There would be temporary lane and sidewalk closures on adjacent streets, noise and vibration from the use of equipment, and possible air quality impacts associated with airborne particulates. When undertaken concurrently or in close proximity to the scheduled construction of the Second Avenue Subway, these projects may have cumulative impacts. The Second Avenue Subway project would result in detours on some crosstown streets that may also be affected by private development along First Avenue. The movement of construction materials into and out of these communities would increase traffic in the area, and numerous simultaneous construction projects may have adverse impacts on neighborhood character. Open space impacts resulting from the loss of Robert Moses Playground could exacerbate the impacts that would result while the Second Avenue Subway project uses nearby St. Vartan Park temporarily during its construction period. However, such impacts would be mitigated by the identification of replacement areas for park activities. To the greatest degree possible, NYCT would coordinate with private contractors to reduce the cumulative impacts of simultaneous construction; however, in some cases it may be impossible to avoid these adversities as developers and agencies strive to complete their projects in a timely and cost-effective manner. NYCT would also work through the proposed interagency Traffic 19-11

12 Second Avenue Subway SDEIS Task Force described in Chapter 5D to monitor traffic in areas where cumulative impacts could occur and to develop mitigation to the degree practicable. In cases where public open spaces would be affected by multiple projects (including the Second Avenue Subway) within the same geographic area, NYCT would coordinate with NYCDPR and these projects on developing a coordinated mitigation strategy. CONCLUSIONS: CUMULATIVE IMPACTS DURING THE CONSTRUCTION PHASE As described above, numerous infrastructure improvements and large-scale development projects are currently proposed in close proximity to the Second Avenue Subway alignment. The construction activities associated with those projects and the new subway could overlap, resulting in cumulative disturbances to the surrounding neighborhoods, including visual intrusions, potential adverse impacts to nearby businesses, increases in traffic congestion and delays, construction equipment and trucks, loss of some existing parking spaces, noise and vibration, and air pollution. MTA and NYCT would coordinate with these other projects to avoid unnecessary conflicts between the projects and burdens to the surrounding communities. Coordination efforts have already begun as part of the Second Avenue Subway s ongoing outreach efforts. To the greatest extent possible, construction activities of the Second Avenue Subway would be coordinated and timed to avoid cumulative effects. The construction of the project s stations, for example, could be sequenced to avoid conflicts. The activities associated with the project s tunnel excavation, however, could not be shifted, because they are so critical to the overall schedule and cost for the project. In addition, in areas where public parks would be affected by multiple projects, including the Second Avenue Subway project (such as in the 30s and 40s east of Second Avenue), NYCT and MTA will coordinate with NYCDPR and other projects to develop a coordinated mitigation strategy. The loss of curbside parking spaces during construction of each proposed station would not result in any cumulative impacts along the East Side of Manhattan in combination with the possible loss of four to five parking spaces or other construction projects, because the capacity remains in the off-street parking facilities throughout the study area. Parking would be less convenient during the construction period. At this point, the timing of many of the other projects has not yet been determined and the construction schedule for the Second Avenue Subway has not yet been finalized, so the potential overlap among the different projects cannot be ascertained. A summary of the four locations along the alignment with the greatest potential for overlapping effects is provided below. East Harlem North of 125th Street The Second Avenue Subway s construction activities in this area could include cut-and-cover excavation for an underground train storage area, as well as construction staging and possible shaft sites on the west side of Second Avenue between 129th and 126th Streets and along the Harlem River waterfront near 129th Street. Other projects nearby that could be in construction at the same time include the NYCDOT s work on the Third Avenue and Willis Avenue Bridges, the rehabilitation of the Triborough Bridge, the reconstruction of the 127th Street Viaduct, and the development of a new large-scale retail complex between Second and Third Avenues north of 125th Street

13 Chapter 19: Indirect and Cumulative Effects Upper East Side Between 72nd and 59th Streets In this area, the Second Avenue Subway would construct a new 72nd Street Station, as well as curved tunnels connecting to the 63rd Street Line from the north (near 65th Street) and south (near 61st Street). Other projects proposed in this area include several institutional projects in the 60s (e.g., Memorial-Sloan Kettering Cancer Center s proposed expansion between 69th and 67th Streets from First to York Avenue and Rockefeller University s new building proposed at York Avenue nearby), as well as the new Long Island Rail Road tunnel to be bored in the rock for the East Side Access Project. East Midtown Near 42nd and 34th Streets As described in other chapters of this SDEIS (in particular, see Chapter 3, Description of Construction Methods and Activities ), the Second Avenue Subway would require extensive construction activities in the vicinity of East 34th Street. These would include a staging and access shaft site for the project s tunnel boring activities, as well as a new station at 34th Street. A portion of St. Vartan Park would be used for some of these activities. The project would also involve construction of a new station at 42nd Street. Ground improvement techniques would also be needed in this area. At the same time, several other projects are proposed nearby. These include the multi-block development project to be built on the four parcels currently owned by Con Edison in the area between 41st and 35th Streets, Second Avenue and the FDR Drive, which are to be developed with high-rise commercial (office) and/or residential uses. They also include the UN s proposed construction project, reconstruction of the FDR Drive between 42nd and 25th Streets, which could occur at the same time, as well as the construction activities associated with the access shaft for the Third Water Tunnel, which is planned in the same location as the Second Avenue Subway s staging area near 35th Street. East Village/Lower East Side/Chinatown Near Houston Street As detailed in Chapter 3, the construction activities associated with the new subway have the potential to be particularly disruptive in the vicinity of Houston Street, depending on the alignment alternative selected. In this area, a potential shaft site and staging area are being considered for construction of the bored tunnel, a new station is proposed just north of Houston Street, and a new station and potentially difficult construction are proposed in the area just to the south, near Grand Street. At the same time, redevelopment of several parcels just to the south and north of Houston Street along Second Avenue is anticipated as part of the Cooper Square Urban Renewal Area. OPERATIONAL EFFECTS In its operational phase, the Second Avenue Subway is expected to result in few, if any, adverse cumulative impacts. Major transportation improvements planned in and near Manhattan will support the Second Avenue Subway in improving access to underserved areas. Development projects will increase demand for transit service on Manhattan s East Side, thereby contributing to the goals and objectives of the Second Avenue Subway

14 Second Avenue Subway SDEIS TRANSPORTATION AND INFRASTRUCTURE IMPROVEMENTS Bridge and Highway Reconstruction Projects The planned reconstruction of portions of the FDR and Harlem River Drives, the Third and Willis Avenue Bridges, and West Street will rehabilitate this infrastructure to ensure their longterm viability. Although such projects may improve speed and access on and to these facilities, they would not result in significantly increased capacity. Therefore, it is not expected that these projects would significantly alter the travel experience in and around Manhattan, nor would they affect potential ridership on the Second Avenue Line. 63rd Street Connection The connection between the Second Avenue Subway and the 63rd Street Tunnel would provide flexibility in operations on the Second Avenue Subway to prevent service disruptions on multiple lines due to malfunctioning trains, though no additional service beyond that addressed in this EIS would be provided. Any future service changes pertaining to this connection would be assessed as part of NYCT s standard service review procedures. A shaft site is proposed on 66th Street just west of Second Avenue for work on the curved tunnel below. LIRR East Side Access The East Side Access Project will significantly improve access to Manhattan s East Side for commuters from Eastern Queens, Nassau, and Suffolk Counties. A result of the East Side Access Project will be the increased use of the Lexington Avenue Line by LIRR commuters. With the Second Avenue Subway, additional capacity for new riders would be available on the Lexington Avenue Line. Therefore, the cumulative operational effects of both projects would be beneficial to transit service and its related issues. Water Tunnel Number 3 Once operational, Water Tunnel Number 3 will have few direct effects on the operation of area infrastructure, other than improved water service. Access panels will be located at distribution chambers, some of which will be near the proposed Second Avenue Subway alignment. However, the use of these facilities for operation and maintenance would not impact the movement of trains through the area. It is expected that, similar to existing water tunnels and subways in the city, the movement of trains would not affect the proposed Tunnel Number 3. Therefore, there would be no significant adverse cumulative effects from the operation of both of these proposed projects. NYCT Capital Plan NYCT s Capital Plan will facilitate capacity enhancements, increased passenger comfort and convenience, and advanced technologies to improve operations. In combination with a Second Avenue Subway, these projects will improve the quality and use of the city s transit infrastructure, resulting in beneficial cumulative effects. Other MTA Studies Four of the five projects described previously Lower Manhattan Access, Metro-North Penn Station Access, LaGuardia Airport Access, and Access to the Region s Core are in earlier stages of development than the Second Avenue Subway; therefore, the cumulative operational effects of these projects would not be fully realized upon the planned opening of the Second 19-14