Gowanus: Urban Planning Scenarios

Go•wan•us

SPECIAL REPORT PREPARED IN COOPERATION WITH PROFESSOR ZHAN GUO ON BEHALF OF NEW YORK UNIVERSITY ROBERT F. WAGNER SCHOOL OF PUBLIC SERVICE

CONTRIBUTIONS BY GEHAD AL-HADIDI • JAD ANDARI • KRYSTAL GITTENS • ALISSA GORDON

TABLE OF CONTENTS: MTA SUBWAY MAP VACANT LAND MAP LAND USE MAPS VISION STATEMENT SCENARIO NARRATIVES NO INTERVENTION

Driving Forces

Stakeholder Values

Scenario Features PULL FORWARD

Driving Forces

Stakeholder Values

Scenario Features NIMBY PUSHBACK

Driving Forces

Stakeholder Values

Scenario Features IDEAL

Driving Forces

Stakeholder Values

Scenario Features

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MTA SUBWAY MAP

N Source: Metropolitan Transportation Authority Official Map http://web.mta.info/maps/ Figure 1.1

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VACANT LAND IN GOWANUS STUDY AREA

N VACANT LAND

Source: NYC Department of City Planning http://www.nyc.gov/html/dcp/home.html Figure 1.2

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LAND USE LEGEND

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INDUSTRIAL

COMMERCIAL

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RESIDENTIAL

LAND USE MAPS OF GOWANUS STUDY AREA

Source: NYC Department of City Planning http://www.nyc.gov/html/dcp/home.html

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These maps indicate existing land use patterns in the Gowanus Canal study area. As is evident, industrial uses continue to be concentrated along the canal while residential districts surround it. Additionally, industrial parcels on the northern end of the canal are smaller and more dispersed than those clumped around the bend and at the mouth of the canal, outside of the study area.

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VISION STATEMENT Our vision for the Gowanus Canal neighborhood is focused on the following principles:

i) ensuring residents are not priced-out of their homes, ii) maintaining the charm that draws people to want to live in the area, iii) rezoning with special consideration towards the benefits derived from offering a diversity of space, iv) and ensuring that infrastructure improvements are planned and developed to absorb increased capacity requirements.

Our plan will encourage socially equitable and responsible growth in concert with enhanced infrastructure.

It will absorb expected growth in the Gowanus Canal study area while maintaining the diverse character and existing uses in the neighborhood.

The population of New York City is expected to increase by 1 million residents over the next decade, representing a 12.5% increase from the current population. Mayor Bill de Blasio has campaigned on a

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platform of reversing a decade of increasing inequality.

His signature policy calls for the addition of 200,000 affordable housing units over the next decade to keep pace with population growth projections. In order to accomplish this, the City will have to increase density in areas that i) have the infrastructure to handle it and ii) are desirable to entice private developers to build affordable housing. The Gowanus Canal study area meets these criteria and is therefore a prime candidate for higher-density residential zoning.

In following with the previous argument, if Mayor de Blasio’s chief objectives are to reverse growing inequality and to address the shortage of affordable housing, it would seem counter-intuitive to priceout existing residents of the Gowanus Canal, who have historically been middle-income residents with blue-collar jobs. Furthermore, the unique character of the area, characterized by an industrial landscape and the canal that stretches just 7 blocks short of Atlantic Avenue, is a core reason developers are anxious to add residential capacity to the neighborhood.

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No Intervention

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Pull Forward

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SCENARIO NARRATIVES The Gowanus district has undergone drastic change over the past two decades from a dilapidated, backwater dumping ground, into a neighborhood that just broke ground on a 700 unit market-rate apartment building along the canal and boasts the only Whole Foods grocery store in Brooklyn. This rags to riches tale has come at the expense of long-time residents, the budding artist community, and the few remaining manufacturers in the area, as they have all faced sustained economic pressure. If prevailing trends are left unchecked, growth will continue unabated and directionless. Opportunities for innovative zoning proposals, maximizing affordable housing construction, effectively dealing with flood prevention and maintaining the character of the area will be lost.

The ‘Pull Forward’ scenario features fast growth of the Gowanus area in residential and commercial development. The current administration has promised the City of New York more housing units and Gowanus offers a unique space that can be redeveloped and rebranded. With the Pull Forward, the City will aggressively rezone to increase residential units and FAR. Developers have been very interested in Gowanus, and this scenario provides them with the opportunity to increase development due to rezoning and also due to the cleanup of the canal. It comes with great potential as Gowanus borders many family friendly neighborhoods of Brooklyn and also because it is a short commute to Manhattan and has great public transportation access.

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NIMBY Pushback

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Ideal

Policies are implemented to stop or slow down gentrification and its effects in Gowanus. This scenario could occur if organized efforts to block development in the community were successful and began to take root among residents. Many stakeholders who believe that the unique character of Gowanus is under attack could band together to truly complicate residential construction in the area. These groups would be strongly in favor of maintaining current zoning for manufacturing use and would likely decide to impose Industrial Business Zoning on the current manufacturing zones in order to preserve their current usage.

These IBZ zones create tax incentives for manufacturing firms to operate in the area and protect against residential development in the future.

The ideal scenario is the most compelling. It contains a mix of policy recommendations that take into consideration a diverse group of active stakeholders interested in the future of Gowanus. This scenario is developed to embrace, organize, and channel the economic potential in Gowanus to maximize the benefit to the local community and the City. Special care is also given to maintain and strengthen the manufacturing and creative spaces that currently exist in the area. Strategically planned environmental cleanup is at the forefront of this effort and is crucial to the revitalization of the neighborhood. Ultimately, this scenario seeks to meld the different values of engaged interest groups and major stakeholders within the neighborhood.

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SCENARIO DETAILS No Intervention Driving Forces Limited housing stock is confronted by increased demand to live in the neighborhood resulting in pricing pressure and an increase in developer interest in building market-rate, high-density apartments and condominiums.

Housing

Continues to ebb as it is slowly replaced by storage centers, big-box retailers, and hotel chains.

Manufacturing

EPA superfund cleanup effort places a definitive answer on what will happen to the canal.

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Environment

Character

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Artists and creative industries that have located in Gowanus because of its affordability and easy access to transportation networks are being priced out by citizens in higher-paying industries, taking away a core-feature of the neighborhood character.

Stakeholder Values • Interest in market-rate residential buildings along the canal and near already successful neighborhoods such as Park Slope and Boerum Hill • Interest in maintaining access to affordable and flexible spaces • Added resident services and amenities • Retaining access to affordable housing • Ability to access and benefit from canal

Scenario Features • A decrease in affordability for residence, artists, and local industry which will result in their eventual displacement in the long-term • Continued developer interest, tied to the progress of the Superfund cleanup will result in high-density residential buildings dotting the canal • Greater interest in environmental remediation of the soil in an ad-hoc manner with no plan put into place to expedite or organize the process • The City government will take advantage of the new developments to promote affordable housing in exchange for greater FAR

§ Artist foundry next to the Gowanus Canal

With no intervention, we envision the Gowanus study area will likely face continued development pressure as the EPA clean-up effort becomes clearer. This will have the positive effect of adding much needed housing capacity for the City. As any residential development will necessitate stringent environmental clean-up efforts, it will also result in extensive remediation of the contaminated soil. In addition to these positive effects, the study

area should expect increased economic pressure on existing residents, artist communities, and remaining manufacturers.

These stakeholders can expect to repeat the same fate as those previously located in the Bowery in lower Manhattan, where starving artists and long-time industry are supplanted by established art institutions and consumer-friendly, romanticized versions of the original industrial landscape.

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Pull Forward Driving Forces Current administration and city planning department plan for the projected population growth of the city and seize the opportunity to rezone and develop Gowanus.

Housing and commercial development in the area can generate large profits, fueling development.

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The canal cleanup promises a better and more neighborhood-friendly environment. The brownfield is capitalized on by a developer who remediates and adds a housing development. The need for green space in the city results in the development of parks.

The character of Gowanus evolves due to the fewer manufacturing units and the increase in families and young people.

Stakeholder Values • Desire to Clean Canal and Remediate Brownfield within an accelerated timeframe • Create as many residential units as possible • Create new commercial units, providing amenities for residents, creating jobs and new business opportunities • Make canal accessible and resident friendly • Rezoning to reduce manufacturing to allow for more residential and commercial units

Scenario Features • Residential Development is encouraged in Gowanus and existing rents are increased as developers invest in the area attracting high income residents • Remediation of the canal has been completed. Canal is commercialized and branded as the Venice of Brooklyn with rowboats and adjacent park. A boardwalk along the canal functions as waterfront access to attract tourists and City residents

• A storm surge barrier is built using TIF generated from residential development along the canal. It functions to protect against flooding and the combined sewer system receives improvements and relief from green infrastructure • Manufacturing zones are lost and most manufacturers and creatives are forced to relocate outside of the study area • Increase in development and FAR causes a reduction of open space • More attention to issues of resiliency due to the increase in residential units • Expansion of community services serving the expanded population, such as a recreational center with swimming pool, tennis courts etc...

• Expansion of infrastructure and renovation of subway stations • Bicycle lanes and pedestrian plazas are incorporated • Citibike provides residents with an alternative transportation option

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The Pull Forward scenario allows Gowanus to develop into a destination neighborhood that provides an abundance of much needed housing. There are improvements in infrastructure and transportation, as well as additions of green space and community services.

Due to the higher density, the city invests in a storm surge barrier to protect against flooding. It is also characterized by an increase in residential and commercial units which in part replaces manufacturing areas; the remainder of manufactur-

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ing feels pressure due to higher rents and many will exit from the neighborhood.

There is a lack of affordable housing, loss of diversity in the neighborhood and loss of artists. These changes can bring conflict between old and new residents. This Scenario is the story of Gentrification and has happened in many neighborhoods at many points in time. Although the Scenario addresses problems of housing stock, it fails to protect current residents, leaving many of them with no option but to find a new neighborhood to call home.

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NIMBY Pushback Driving Forces Minimal or no expansion of infrastructure/public goods and services such as schools and transportation. Regarding resiliency, Storm and flood damage mitigation concerns are largely ignored in the area.

Safeguarding and providing incentives for continued industrial and manufacturing activity and expansion in the Gowanus Canal Corridor. Protection of studio space for artists to work and exhibit. Planning for canal waterfront development that is compatible with the continued use of the canal for industrial and commercial waterborne transportation.

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The Canal cleanup continues but brownfield remediation process is likely slowed down or stopped due to concerted push back efforts by local stakeholders in residential investment.

Preservation of old neighborhood character through height restrictions on construction and other development regulations.

The driving forces in this scenario are predominantly internal as they result from the grass roots community based efforts to prevent a major character change of the neighborhood and also to fight against the soaring housing costs associated with residential expansion.

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GOWANUS AREA PROPOSED IBZ

Data Source: MapPLUTO copyrighted by the New York City Department of City Planning Prepared by New York City Economic Development Corporation (MGIS Unit) 08/26/2013

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Proposed Industrial Business Zone

Stakeholder Values • Commercial economic development is not a priority

• The Canal is clean but brownfield remain contaminated

• Desire for identity as an artistic yet blue collar community

• Storm/flood resiliency investments have not been implemented

• Stable housing costs viewed as a right

• Neighborhood population remains relatively stable

• Racial, ethnic and income diversity of population highly cherished

• No additional traffic through neighborhood

• Strong want to preserve the history of Gowanus These values reflect the shared resistance to change and fear of displacement that is common to long time residents of the area

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Scenario Features

• Housing costs have increased but much less rapidly as they would with more residential development • Economic activity and area gross product remains at current level or decreases slowly in long term

This scenario would be an excellent outcome for current residents and for those who appreciate the industrial/artistic character of Gowanus. A clinging to industrial usage might also promote well paying local employment opportunities for low and medium skilled residents of Southwest Brooklyn. These benefits are outweighed however by their burdensome cost to the City as a whole, creating added pressure on surrounding neighborhoods to accommodate for demand by developing at higher densities.

This “Not In My Back Yard� approach to the future of Gowanus drastically limits economic growth and sacrifices development for the sake of keeping change at bay. Under current zoning regulations

there are enough vacant lots in Gowanus to support 40,782 square feet of commercial space as well as at least 200 new housing units. While a substantial increase in density could have a drastic effect on housing prices and push some long time residents out of the area, development could add vibrancy and economic activity to the neighborhood that will likely encourage investment in services and more importantly ease pressure on New York City as a whole to house the growing population. The NIMBY anti-development Gowanus, cherishing an industrial and artistic neighborhood, needs to take into account the big picture when planning for the future.

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Ideal Driving Forces

Affordable residential spaces are protected to prevent low-and-moderate income households from being displaced

There is a prevalent risk to the thriving manufacturing district by threat of residential conversion

Cleanup of the polluted Gowanus Canal and the surrounding brownfields is carried out.

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Affordability of mixed uses and increased presence of local artists and creative spaces is encouraged

Stakeholder Values • Desire for clean Canal and increased open space and softscape • Need for the creation and preservation of affordable housing • Retain industrial core • Improve residential access to the canal

• Develop plan for storm water retention • Plan for resiliency and sustainability of the neighborhood and along the canal • Preserve socioeconomic diversity of Gowanus

• Improve infrastructure and government services, including transportation options, schools, and community centers

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Data Source: NYC Department of City Planning - 25 block proposed Rezoning Area in Gowanus Neighborhood

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Scenario Features • Waterfront access now exists with a boardwalk and more green space in the form of bioswales surrounding the Canal • Possible development of a Sponge Park • Flooding has been mitigated through a bioremediation program for resiliency on two main streets: 6th Street and Degraw/Nevins Streets

• Brownfield remediation is being conducted prior to any new development and construction • Sustainable infrastructure and incentives are in place for energy efficiency • The Inclusionary Housing Program for new construction is enforced• Mandate residential developers to provide affordable housing in its development plans using the 80/20 model.

• Flushing Tunnel has been renovated and install a storm surge barrier at the mouth of the Canal

• Affordable housing must be affordable for the life of the development utilizing the bonus.

• Green infrastructure for storm water management is scattered throughout the neighborhood

• Include a permanently affordable homeownership option.

• manufacturing districts are protected and industrial growth is encouraged through the promotion of Industrial Business Zones (IBZ).

• streamlined tax-incentives that have succeeded in attracting manufacturers to relocate to the City.

• Zone-specific planning efforts.

• Business assistance from Industrial Providers of NYC Business Solutions Industrial and Transportation.

• light-industry, which represents the best use of the land surrounding the Canal, is allowed

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Brooklyn will continue to be the most populous borough in New York City, reaching an approximate population of 2.72 million by 2030. This scenario addresses the expected influx of people to the borrough and Gowanus neighborhood. A 25 block area has been identified by the Department of City Planning to allow residential and mixed-use buildings up to 12 stories tall. Our studies indicate this would provide for adequate housing in the area for the coming decade, We suggest these plans be in coordination with adequate infrastructure improvements to insure quality services to the community. Additionally, swaths of industrial zones with buildings that provide large floor plates are to be categorized as special zones to protect the diversity of space necessary to continue attracting creative entrepreneurs.

Through redevelopment, we anticipate leveraging private sector resources to implement comprehensive soil remediation and flood protection projects.

Eventually, Gowanus must be able to sustain its environmental infrastructure, promote diverse land uses, and sustain a vibrant economy.

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