van wyck expressway capacity and access improvements to ...mul would travel from jfk airport to the...

PIN X735.82 Van Wyck Expressway Capacity and Access Improvements to JFK Airport Project DDR/DEIS

Executive Summary

PIN X735.82 Van Wyck Expressway Capacity and Access Improvements to JFK Airport Project DDR/DEIS

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Executive Summary

The New York State Department of Transportation (NYSDOT), in cooperation with the Federal Highway Administration (FHWA), has prepared this Draft Design Report/Draft Environmental Impact Statement (DDR/DEIS) for the Van Wyck Expressway (VWE) Capacity and Access Improvements to John F. Kennedy (JFK) Airport Project (Project) in accordance with the requirements of the Council on Environmental Quality regulations for implementing the procedural provisions of the National Environmental Policy Act (NEPA), as defined in Title 40 of the Code of Federal Regulations (CFR) Parts 1500-1508, the FHWA Environmental Impact and Related Procedures; Final Rule (23 CFR Part 771), and the NYSDOT Procedures for Implementation of the State Environmental Quality Review Act, as defined in Title 17 of the New York Codes, Rules and Regulations Part 15 (17 NYCRR Part 15).

The Project is federally and state funded, and is classified as a NEPA Class I action under 23 CFR 771, which requires the preparation of a federal Environmental Impact Statement (EIS) to determine the likely impacts of the Project on the environment. The NYSDOT and FHWA, as joint lead agencies, will advance the Project through the NEPA EIS process in consideration of public and agency comments received about the Project.

The Project is classified as a State Environmental Quality Review Act (SEQRA) non-Type II action, indicating that it has the potential for significant environmental impacts or substantial controversy on environmental grounds. Under 17 NYCRR Part 15, given that a federal EIS is being prepared, the NYSDOT and other State of New York agencies undertaking a discretionary action for the Project have no obligation to prepare an additional EIS under SEQRA. The NYSDOT will give full consideration to the federal Final EIS (FEIS) and prepare a joint Record of Decision (ROD) with the FHWA. The FHWA will issue a single FEIS and ROD document pursuant to Pub. L. 112-141, 126 Stat. 405, Section 1319 (b) unless the FHWA determines statutory criteria or practicability considerations preclude issuance of the combined document pursuant to Section 1319.

Van Wyck Expressway Capacity and Access Improvements to JFK Airport Project DDR/DEIS PIN X735.82 EXECUTIVE SUMMARY

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S.1 PROJECT LOCATION

The Project is located in Queens, New York along a 4.3-mile segment of the VWE, also known as Interstate 678 (I-678), including the northbound and southbound service roads (see Figure S-1). The northern project limit is Hoover Avenue and the southern project limit is the southern end of Federal Circle at the entrance to JFK Airport.

A general Study Area extending one-half mile from the project corridor was established for the Project (Figure S-2). The Study Area is approximately 4.8 square miles and includes a variety of residential, commercial, educational and transportation uses. Jamaica Station, which is a major transportation hub connecting to nine Long Island Rail Road (LIRR) lines, four subway lines, and 14 bus lines, is near the northern limits of the project corridor. Four LIRR bridges cross over the project corridor at Jamaica Station. The AirTrain JFK, an elevated railway, operates between Jamaica Station and JFK Airport within the project corridor.

JFK Airport, operated by the Port Authority of New York and New Jersey, covers 4,930 acres and has more than 30 miles of roadway. The airport served 59.4 million passengers in 2017 and approximately 37,000 people are employed at JFK Airport.1 It is one of the world’s leading international cargo centers.

Several neighborhoods are adjacent to the project corridor. Both the Kew Gardens and Jamaica neighborhoods are busy urban centers near the northern part of the corridor. The Jamaica Business District is a busy urban center along Atlantic Avenue (east of the project corridor) that contains numerous retail establishments, performing arts venues, and a transportation hub, as well as City University of New York (CUNY) York College. The neighborhoods adjacent to the central and southern parts of the corridor are primarily residential with some commercial and retail development.

1 The Port Authority of NY & NJ. 2017. Airport Traffic Report. Accessed May 23, 2018, at

https://www.panynj.gov/airports/pdf-traffic/ATR2017.pdf

https://www.panynj.gov/airports/pdf-traffic/ATR2017.pdf

PIN X735.82 Van Wyck Expressway Capacity and Access Improvements to JFK Airport Project DDR/DEIS EXECUTIVE SUMMARY

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Figure S-1. Project Location


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Figure S-2. General Study Area


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S.2 PROJECT PURPOSE, OBJECTIVES AND NEED

S.2.1 Project Purpose and Objectives

The purpose of the Project is to provide increased capacity on the VWE between the Kew Gardens Interchange (KGI) and JFK Airport to improve vehicular access to and from JFK Airport. In addition, the Project will address operational, geometric, and structural deficiencies on the VWE between the KGI and JFK Airport.

The following objectives have been established to further refine the Project purpose:

• Provide an additional vehicular travel lane on the VWE in each direction between JFK Airport and the KGI.

• Address geometric and operational deficiencies of the VWE exit/entrance ramps within the identified project limits.

• Address structural deficiencies on the bridges on or crossing over the VWE within the project limits.

S.2.2 Project Need

The VWE is the major transportation corridor providing access to and from JFK Airport, which is a major international gateway to the United States, with 70 carriers serving 100 international nonstop destinations. According to the January 2017 A Vision Plan for John F. Kennedy International Airport: Recommendations for a 21st Century Airport for the State of New York,2 the number of passengers at JFK Airport is expected to grow by nearly one-third to over 75 million passengers by 2030. The VWE also serves as the major route for commercial truck traffic to get to and from the airport, with trucks accounting for 8 percent of morning peak volume and 5 percent of evening peak volume on I-678.

The needs for the Project are as follows:

• Reduce travel time on the VWE between the KGI and JFK Airport;

• Address operations and geometry of ramps; and

• Address structural deficiencies.

S.3 PROJECT ALTERNATIVES

S.3.1 Build Alternative

The Build Alternative would add a fourth lane in each direction between Hoover Avenue and the Federal Circle. The additional lane in each direction would be a managed-use lane (MUL) with high-occupancy vehicle (HOV) restrictions. Truck use would be prohibited within the proposed MULs. HOVs, occupied taxis, occupied for-hire vehicles (FHV), and buses would be allowed to use the MULs. Both new MULs would be on the left side of the highway, separated from the existing general-use lanes (GUL) by a 2-foot-wide striped buffer. Vehicles in the southbound MUL would enter the MUL 2 https://www.governor.ny.gov/sites/governor.ny.gov/files/atoms/files/JFKVisionPlan.pdf


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from the left-most travel lane, south of the 86th Avenue pedestrian bridge, and travel to JFK Airport, with no intermediate entrance or exit points to or from the MUL. Similarly, vehicles in the northbound MUL would travel from JFK Airport to the KGI with no intermediate entrance or exit points to or from the MUL. The additional lane in each direction on the VWE would be within the existing transportation right-of-way.

Two options are being considered for the MULs: HOV 2+ and HOV 3+.

• Build Alternative Option 1: High Occupancy Vehicles 2+ (including Occupied Taxi + For-Hire Vehicles): Under this option, the MULs would be HOV 2+, requiring privately owned vehicles to have a driver plus at least one passenger; occupied taxis; occupied FHVs, and buses. Taxis and FHVs are defined as occupied when there is at least one passenger other than the driver in the vehicle.

• Build Alternative Option 2: High Occupancy Vehicles 3+ (including Occupied Taxi + For-Hire Vehicles): Under this option, the MULs would be HOV 3+, requiring privately owned vehicles to have a driver and at least two passengers; occupied taxis, occupied FHVs, and buses. Similar to the HOV2+, taxis and FHVs are defined as occupied when there is at least one passenger other than the driver in the vehicle.

Existing entrance and exit ramps to and from the VWE within the project limits would be removed or relocated in the northbound and southbound directions as shown in Figure S-3, Figure S-4, and Figure S-5. The Study Area includes 22 existing bridges, four of them carrying the Long Island Rail Road (LIRR) over the VWE. Of the LIRR bridges, three would be rehabilitated/retrofitted and one would be replaced. Of the 18 remaining existing bridges, 16 would be replaced and two would be widened under the Build Alternative. One new bridge would be constructed under the Build Alternative in the southern part of the Study Area to carry the southbound VWE MUL over the southbound VWE exit to Nassau Expressway, increasing the total number of bridges to 23 within the Study Area.


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Figure S-3 Build Alternative Bridge and Ramp Locations – Northern Segment


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Figure S-4 Build Alternative Bridge and Ramp Locations – Middle Segment


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Figure S-5 Build Alternative Bridge and Ramp Locations – Southern Segment


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S.3.2 No Build Alternative

The No Build Alternative assumes no improvements in the Study Area other than those planned by others or implemented as part of routine maintenance. Although the No Build Alternative does not meet the Project purpose and objectives, NEPA requires that it be evaluated. The No Build Alternative serves as the baseline condition against which the potential effects of the Build Alternative are evaluated.

S.3.3 Preferred Alternative

The FHWA and NYSDOT have identified the Build Alternative as the Preferred Alternative for the Project. The selected alternative will be identified in the FDR/FEIS and ROD in consideration of comments received throughout the environmental review process, including those received on this DDR/DEIS and from the public hearings.

S.4 SOCIAL, ECONOMIC AND ENVIRONMENTAL EFFECTS

Table S-1 provides a summary of the potential social, economic, and environmental effects of the Build Alternative.

Table S-1. Summary of Effects

Category Summary of Effects Land Use Temporary effects due to construction.

No changes to land use within the Study Area.

Neighborhood and Community Cohesion, Community Facilities

Short-term effects to the community during construction. Reduced traffic on local roads and the relocation of existing entrance and exit ramps would positively affect the flow of traffic throughout the corridor. Intersections along the service roads would be upgraded with ADA-compliant ramps and push buttons at crosswalks. These improvements would benefit neighborhoods and communities.

Environmental Justice and Social Groups Benefited or Harmed

Temporary effects during construction, such as construction noise, dust, work at night, and vibration. Temporary effects to some rail passengers, such as increased travel times, additional transfers, and platform ‘walkovers.’ Access to public and commercial properties and mass transit would be maintained at all times during construction. No disproportionately high and adverse effects on minority or low-income populations. Reduced traffic on local roads and the relocation of existing entrance and exit ramps would positively affect the flow of traffic throughout the corridor. Intersections along the service roads would be upgraded with ADA-compliant ramps and push buttons at crosswalks. These improvements would benefit elderly populations, persons with disabilities, and transit-dependent populations.


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Table S-1. Summary of Effects (continued)

Category Summary of Effects Schools and Places of Worship Temporary effects during construction, such as traffic detours. Access to schools and

places of worship would be maintained during construction. Reduced traffic on local roads and the relocation of existing entrance and exit ramps would positively affect the flow of traffic throughout the corridor. Intersections along the service roads would be upgraded with ADA-compliant ramps and push buttons at crosswalks. These improvements would benefit those who travel to schools and places of worship within the Study Area.

Regional and Local Economies Temporary construction effects due to road closures and disruptions to normal business activities. Access to businesses would be maintained during construction. The Project would provide economic benefits (e.g., improved access and travel time savings) to businesses within the Study Area and region.

Wetlands There are no wetlands within the Study Area. Surface Waters and Waterways

No in-water work. No adverse impacts to Bergen Basin. Stormwater management practices would reduce frequency and intensity of combined sewer overflow (CSO) events to nearby Jamaica Bay.

Floodplains and Flood Conditions

No change to the 100-year or 500-year floodplains; would not cause an increase in flood levels in the surrounding areas.

Coastal Resources The Project is consistent with coastal zone policies. Groundwater No adverse effects to groundwater. Stormwater Management Temporary effects during construction.

Net increase of approximately 12.17 acres of new impervious surface and approximately 7.19 acres of redevelopment; water quality treatment and increased stormwater runoff flows and volumes would be mitigated via post-construction stormwater management practices.

General Ecology and Wildlife Resources

Temporary effects to wildlife species during construction due to noise, vibration or temporary displacemention. Approximately 934 to 1,468 trees would be removed; a Landscape Design and Restoration Plan would be prepared during final design.

Threatened and Endangered Species

“No effect” on identified federally listed species; “not likely to result in a take” or taking of identified state-listed species.

Critical Environmental Areas There are no Critical Environmental Areas (CEAs) within the Study Area. Stormwater management practices would reduce frequency and duration of CSO events to the Jamaica Bay CEA.

Historic and Cultural Resources (Section 106)

Adverse effect on three historic bridges. A Draft Memorandum of Agreement was developed to resolve the Project’s known adverse effects on historic architectural properties. Low potential for the presence of archaeological resources within the area of disturbance for the Project.

Parks, Recreational, and Section 4(f) Resources

No effect to parks or recreational properties or use of Section 4(f) park resources. The Project meets the applicability criteria for the Programmatic Section 4(f) evaluation for the use of historic bridges. Measures to minimize harm to the historic bridges were identified through the Section 106 process.

Visual Resources Neutral and adverse visual impacts on the existing visual quality; adverse impacts result from the removal of vegetation and the addition of potential noise barriers. Supplemental plantings and the use of transparent noise barriers could be used to mitigate adverse impacts.


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Table S-1. Summary of Effects (continued)(

Category Summary of Effects Air Quality Temporary effects during construction due to increased dust and traffic and use of

construction equipment. Mesoscale criteria pollutants and mobile source air toxic emissions from traffic on project roadways within the Study Area would be lower under the Build Alternative as compared to the No Build Alternative. No exceedances of the PM10 and PM2.5 National Ambient Air Quality Standards were predicted.

Energy and Greenhouse Gases

Temporary effects during construction due to increased traffic and use of construction equipment. Total direct and indirect energy consumption and CO2e emissions would be lower under the Build Alternative as compared to the No Build Alternative.

Noise Temporary effects during construction due to the use of construction equipment. Traffic noise impacts were identified at receivers along the project corridor and several noise barriers are recommended. For those impacted locations where noise barriers are not being recommended, the noise level increases would be 3 dB(A) or less as compared to existing conditions. According to FHWA's Highway Traffic Noise: Analysis and Abatement Guidance, studies have shown that a noise level increase of 3 dB(A) or less is barely perceptible to the human ear.

Asbestos Asbestos and lead sampling is recommended prior to construction to identify asbestos containing materials and lead based paints that would be affected by the Project.

Hazardous Waste and Contaminated Materials

Additional investigations (borings and soil sample) are recommended in areas of anticipated excavation, particularly where there is an increased density of sites with high-risk recognized environmental concerns.

Traffic and Transportation Temporary effects to traffic during construction, including lane narrowing, lane shifts, and nighttime and off-peak lane closures. Parking changes in two areas on the VWE southbound service road, including the elimination of 12 parking spaces. Beneficial long-term effects to the traffic and transportation system due to increased capacity and decreased congestion.

Right-of-Way Permanent easements would be acquired from the City of New York for all local bridges and bridge approaches over the VWE mainline. A permanent easement would be acquired from LIRR along the northbound VWE mainline and service road. A transfer of land jurisdiction from NYCDEP to NYCDOT would be required for the proposed relocated ramp from North Conduit Avenue to the westbound Belt Parkway.

Construction Effects Nuisance effects, such as noise, dust, work at night, and vibration, would occur temporarily in those areas adjacent to the construction activities. Temporary traffic effects, such as lane narrowing, lane shifts, and nighttime and off-peak lane closures, and pedestrian detours would occur. Retrofit/replacement of the LIRR bridges would require a variety of track outages of varying durations; however, service for all passengers would be maintained throughout the construction period, with some delays. One of the Q9 bus stops located along the southbound service road could be temporarily relocated within the same block.


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S.4.1 Permits and Approvals

Implementation of the Project would require permits and approvals from federal and state agencies. The permits, approvals, and agency consultations that are anticipated for the Project include the following:

• Federal Highway Administration (FHWA): − Determination under Section 4(f) of the U.S. Department of Transportation Act of 1966: Parks,

Recreation Areas, Wildlife and Waterfowl Refuges, and Historic Sites (23 CFR Part 774) − Determination under Section 106 of the National Historic Preservation Act of 1966

(Section 106)

• U.S. Environmental Protection Agency (USEPA): − Safe Drinking Water Act – Section 1424(e) Review

• Federal Aviation Administration (FAA): − Construction in vicinity of airport property − 14 CFR Part 77, Safe, Efficient Use and Preservation of the Navigable Airspace

• New York State Department of Environmental Conservation (NYSDEC): − State Pollutant Discharge Elimination System (SPDES) General Permit for Stormwater

Discharges from Construction Activity

• NYS Office of Parks, Recreation and Historic Preservation (OPRHP) – State Historic Preservation Office (SHPO): − Section 106 consultation − Section 4(f) coordination as official with jurisdiction for historic sites

• NYS Department of State (NYSDOS): − Federal Aid Notification

• NYC Department of Parks and Recreation (NYC Parks): − Tree Work Permit

• NYC Department of Environmental Protection (NYCDEP): − Sewer Connection Permit − Amended Drainage Plan

• NYC Department of Transportation (NYCDOT): − Office of Construction Mitigation and Coordination Street Permit − Office of Construction Mitigation and Coordination Arterial Permit

• NYC Department of City Planning: − Waterfront Revitalization Program Consistency Assessment

The Project must also comply with Executive Order 11988 “Floodplain Management” and Executive Order 12898 “Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations.”

https://www.ecfr.gov/cgi-bin/text-idx?c=ecfr&SID=61302bd90d79271a583474ad2f9dcd7e&rgn=div5&view=text&node=14:2.0.1.2.9&idno=14#se14.2.77_19


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S.5 PROJECT COSTS AND SCHEDULE

The construction cost of the Build Alternative is estimated to be approximately $1.22 billion (Table S-2). The NYSDOT anticipates issuing a FDR/FEIS and ROD for the Project in 2019. Design Approval is also scheduled for 2019. Construction could begin in 2019, pending environmental approvals and funding availability, and would continue for approximately four to five years. Table S-3 provides the project schedule.

Table S-2. Project Costs – Design Build

Build Alternative Earthwork $15,635,000 Pavement and Subbase

$39,655,000

Drainage

$11,847,000 Guide Rail and Median Barrier

$7,167,000

Sidewalks and Curb Ramps

$560,000 Signs & Pavement Markers

$6,295,000

Retaining Walls and Noise Barriers

$87,814,000 Traffic Signals

$3,196,000

Lighting

$9,065,000 Misc. Utilities (Water/Sewer)

$8,536,000

Work Zone Traffic Control (WZTC) $75,126,000 Landscaping

$4,824,000

Bridge $323,375,000 Structures Demolition $26,644,000 Stormwater/SPDES

$1,233,000

Intelligent Transportation Systems (ITS)

$18,936,000 Miscellaneous/Incidentals 10% $58,624,775

Subtotal in Base Year Dollars $698,532,775 Contingency/Risk 15% $104,779,916

Subtotal in Base Year Dollars $803,312,691 Cost Data Year and Midpoint of Construction Year 2018 2022

3% $102,071,520 Construction Cost $905,384,211

Final Design, Field Change, Mobilization, Construction Inspection and QC 28% $253,507,579 Design Build Award Amount $1,158,891,790

Rail Road Force Account (RRFA) $43,000,000 Right of Way (ROW) $0 Administration of Contract 2% $18,107,684

Total Project Cost $1,219,999,475 Rounded to nearest $10K $1,220,000,000


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Table S-3. Project Schedule

Activity Date Occurred/Tentative Release of Scoping Report April 2018 Notice of Availability of DDR/DEIS Winter 2019 DDR/DEIS Public Comment Period Winter 2019 Public Hearing Winter 2019 Release of FDR/FEIS and Record of Decision 2019 Design Approval 2019 Right-of-Way Acquisition 2019 Construction Start 2019 Construction Complete 2024

S.6 PUBLIC INVOLVEMENT

Public participation is an integral part of the NEPA process. The FHWA and NYSDOT have provided and will continue to provide opportunities for meaningful public and agency participation throughout the environmental review process.

S.6.1 Public Scoping Meeting

A public scoping meeting for the Project was held on Wednesday, September 27, 2017. A total of 66 people attended the scoping meeting, including community members, elected and government officials, representatives of nonprofit/community organizations, and property owners within or adjacent to the Study Area. A 30-day comment period followed the public scoping meeting. Comments received during that period were considered and included and responded to in the Project Scoping Report (see Appendix E of the Scoping Report).3

S.6.2 DDR/DEIS Public Comment Period and Public Hearings

A 45-day public comment period will follow the release of this DDR/DEIS to the public. Public hearings will be held after this DDR/DEIS is released to the public and during the 45-day DDR/DEIS public comment period. The public hearings will include open houses with informational displays and a presentation. The public hearings will provide opportunities for the public to submit comments on this DDR/DEIS verbally and/or in writing. Comments received during this comment period will be considered and included and responded to, as appropriate, in the FDR/FEIS.

3 https://www.dot.ny.gov/vwe/repository/x73582_Scoping_Report_final_4-2018.pdf

https://www.dot.ny.gov/vwe/repository/x73582_Scoping_Report_final_4-2018.pdf


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S.6.3 Project Website

The project website (https://www.dot.ny.gov/VWE) was established at the initiation of the scoping process to provide information about the Project. The website serves as a source of project information, including reports, maps, drawings, and current project data. The site also functions as a continuous means for the public to submit comments. The website will continue to be updated to include announcements for public meetings and provide access to project documents.

S.6.4 Mailing List

A mailing list of contacts, including elected officials, public agency contacts, community boards, and interested parties and individuals, has been established and is being maintained. It has been and will continue to be used to issue meeting notices and other communications with the public.

S.6.5 Environmental Justice

Executive Order (EO) 12898 requires federal agencies to provide meaningful opportunities for affected minority and/or low-income communities to provide input on a project. Public meetings have been and will continue to be sited, scheduled, and planned to provide opportunities for participation by minority and/or low-income populations. The public scoping meeting was held near public transportation routes, including the LIRR’s Jamaica Station, J, Z, and E subway lines, and several bus lines, and was located within a community with identified minority populations. In addition, the NYSDOT presented the Project at Community Board Meetings in fall 2017 and spring 2018.

S.6.6 Limited-English Proficiency

In compliance with EO 13166, Improving Access to Services for Persons with Limited English Proficiency, and New York State EO 26, Statewide Language Access Policy, public meeting notices and flyers have been and will continue to be translated into Spanish and published in local newspapers as well as those in general circulation. Public meetings for the Project will be advertised in El Diario, a local Spanish newspaper. Spanish-language versions of notices, presentation boards, and meeting brochures were and will continue to be made available at public meetings. Spanish-language interpreters have been/will be available at public meetings.

S.6.7 Americans with Disabilities Act (ADA)

Public meetings have been and will continue to be held in locations that comply with the ADA to ensure that individuals with disabilities have access to meetings. The public notices announcing the public scoping meeting provided instructions for requesting special accommodations. Sign language interpreters have been and will be available at formal public meetings and other meetings, if requested. Public notices announcing public meetings have provided and will provide instructions for requesting special accommodations.

https://www.dot.ny.gov/VWE


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S.7 CONTACT INFORMATION

For further information about the Project, please visit the project website:(www.dot.ny.gov/vwe) or contact:

Van Wyck Expressway Project Team New York State Department of Transportation

47-40 21st Street Long Island City, NY 11101

[email protected]

Please use the six-digit Project Identification Number (PIN) X735.82 in any correspondence.

http://www.dot.ny.gov/vwe

mailto:[email protected]

van wyck expressway capacity and access improvements to ...mul would travel from jfk airport to the...

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