Urban Freight Mobility: A Way Forward for East Williamsburg, Brooklyn

URBAN FREIGHT MOBILITY A WAY FORWARD: EAST WILLIAMSBURG BROOKLYN

NEW YORK CITY

ACKNOWLEDGMENTS

DOT.TEAM would like to thank the following individuals, agencies and organizations that helped make our report on Urban Freight Mobility possible.

New York City Department of Transportation, Office of Freight Mobility Stacey Hodge, Director Neel Patel, Project Planner New York University Robert F. Wagner Graduate School of Public Service Steven Jacobs, Capstone Advisor, Vice President, U3 ADVISORS David Schachter, Assistant Dean for Student Affairs Evergreen [EWVIDCO] Leah Archibald, Executive Director Karen Nieves, Manager, Business Expansion and Retention Stephen Fabian, Program Associate Boar’s Head Dave Haserman Transport for London, Freight & Fleet Ian Wainwright, Director Jaz Chani, Project Manager Glen Davies, Programme Manager Jacqueline Short, Project Manager Tim Ward, Engagement Manager

Camden Borough Council Nigel Symonds, Logistics Project Management Port Authority of New York & New Jersey Lisa Dewey-Mattia, Project Manager/Supervising Analyst Joseph Ehrlich, Principal Transportation Planner New York City Department of Small Business Service Kris Goddard, Executive Director of BID Program and Development Patrick Cammack, Director of BID Development and Expansion National Association of City Transportation Officials Matthew Roe, Director of Designing Cities Initiative New York City Department of Transportation, Bicycle Program Hayes Lord, Director of Bicycle Program Inbar Kishoni, Project Manager

Acknowledgments

Capstone Spring 2015 Commissioned by New York City Department of Transportation Prepared by Cary Fukui Lily Gordon-Koven Gehad Hadidi Emily Rhodes Lesley Snyder With Contributing Consultations by Steven Jacobs, U3 Advisors With Support & Funding by New York University Robert F. Wagner School of Public Service

Designed by Gehad Hadidi

AGENCIES & ORGANIZATIONS DCP New York City Department of City Planning

NACTO National Association of City Transportation Officials

DOT New York City Department of Transportation

NJTPA New Jersey Transportation Planning Authority

EDC New York City Economic Development Corporation

NYMTC New York Metropolitan Transportation Council

EWVIDCO East Williamsburg Valley Industrial Development Corporation

NYSERDA New York State Energy Research & Development Authority

ESD New York State Empire State Development Corporation

PANYNJ Port Authority of New York & New Jersey

TERMS & DEFINITIONS TFL Transport For London

Freight The movement of goods for commercial purposes, Including deliveries moving through the region’s port, rail, and air cargo facilities and that rely on trucks to complete the last mile of a delivery.

Last-Mile Where people and goods move from a transport hub, such as a rail station, port, or highway exit, to the final destination in stores, homes, and offices.

Freight Mobility Logistical and physical constraints on the transport of goods.

G-MAP Goods Movement Action Plan for the New York-New Jersey Metropolitan Region

A graphic image of truck routes in New York City 2014 DOT data

MAP OF STUDY AREA

TABLE OF CONTENTS

1

00 Introduction

3

01 Leading Practices in Freight Mobility

6

02 Local Practices and Perceptions

8

03 Freight and Manufacturing in New York City

16

04 Current Conditions in East Williamsburg

20

05 Study Methodology

30

06 Local Insights on Current Freight Operations

36

07 Policy and Design Recommendations

40

08 Conclusion

45

TABLE OF CONTENTS

Executive Summary

View of street sign in East Williamsburg, identifying a local truck route.

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Urban Freight Mobility: A Way Forward

EXECUTIVE SUMMARY

EXECUTIVE SUMMARY

This report was prepared on behalf of New York City Department of Transportation in order to examine current conditions in East Williamsburg, Brooklyn as it relates to the freight capacity and needs of manufacturing and industrial businesses in the neighborhood and the impact on residential pockets within it.

Dot.Team conducted a literature review of leading practices of urban freight in global cities, on-line surveys and outreach efforts to local businesses, site visits to East Williamsburg and London, interviews with freight practitioners and stakeholders, and spatial analysis.

The results of the report conclude with eight recommendations.

The three design policies include the implementation of shared parking corrals, green loading zones, and safety measures already in place for Safe Streets provisions in other areas of the City. Five policy recommendations include consolidated loading bays, implementing a voluntary certification program for fleet operators and construction logistics companies, sustained outreach to local stakeholders, and to continue building relationships with other City, State, and Federal agencies.

These recommendations provide an opportunity, not only to improve freight traffic by increasing capacity, reducing externalities such as noise and smog, and to implement safety measures, but they also seek to share the responsibilities and benefits amongst stakeholders in order to ensure an equitable and long-term strategy for urban manufacturers to co-exist with residential and office uses; a per-requisite in a city where space is at a premium, such as New York City.

1

Birds eye view of NYCHA Williamsburg Court and rooftop of wayfinding sign manufacturer.

2

Urban Freight Mobility: A Way Forward Source: Google Maps

A city’s streets are among its most vital elements. Shared by pedestrians, motorists, cyclists, transit vehicles, and commercial vehicles, the street network not only determines how people move about the city, but also influences land use in neighborhoods throughout the city. A comprehensive plan for New York City streets needs to take into account all users, yet the design and regulatory policies that govern urban streets are often at odds with the freight industry practices.

For most of the past century, trucks have been the predominant mode of freight transportation, and, despite the City’s port, rail, and air cargo facilities, trucks still account for more than eighty-five percent of all shipping in the New York City region1.

Much of last mile planning is a reflection of the close relationship that exists between freight and land use.

Current land allocation is based on the highest and best use, resulting in residential and commercial uses pushing out manufacturing. We need to create a cohesive plan for land use, safe streets, and the incubation of quality jobs, therefore freight mobility and the supporting industries must be factored into consideration.

Efficient freight mobility is crucial for keeping New York City economically competitive.

As a densely populated urban center, New York City businesses and residents import a large percentage of the goods they use and consume.

The volume and frequency of deliveries result in a heavy presence of trucks on the City’s streets where trucks must coexist with non-com1 NYMTC Regional Freight Plan. http://www.nymtc. org/files/RTP_PLAN_2040_docs/Public%20Review%20Drafts/Freight%20Modal%20Reports/TM21-1_NYMTC_Highway%20Network_FINAL.pdf

INTRODUCTION

INTRODUCTION

mercial vehicles, transit vehicles, pedestrians, cyclists, and other road users. Many New York City streets were historically planned to accommodate pedestrian and inner city vehicle traffic. The behavior and needs of these road users has increasingly resulted in hazardous situations.

The conflicts that arise when residential pressures are put on areas with high levels of freight activity can be witnessed in many neighborhoods throughout New York City, including Midtown, Williamsburg, and Long Island City. This report examines one such neighborhood: East Williamsburg in Brooklyn, New York. The boundaries of the Study Area are defined as Flushing Avenue to the south, Brooklyn Queens Expressway to the north, Scott Avenue and Newtown Creek to the east, and Bushwick Avenue to the west. Our team examined land use, residential patterns, and freight operations in the Study Area to better understand how conflicts between freight and other street users play out at the local level.

The New York City Department of Transportation is tasked with ensuring that New York City’s 6,000 miles of streets and over 12,000 miles of sidewalks meet the needs of residents, businesses, and visitors.

NYCDOT’s mission is twofold: (1) to provide for the safe, efficient, and environmentally responsible movement of people and goods in New York City and (2) to maintain and enhance the transportation infrastructure crucial to the economic vitality and quality of life of the City’s residents2. This report will highlight five key objectives, listed below, that reflect NYCDOT’s program and policy objectives: 2 http://www.nyc.gov/html/dot/html/about/about. shtml

Introduction

3

1 Livability: measures the estimated increase in quality of life for residents resulting from implementation of the practice 2 Safety: measures the estimated increase in street safety resulting from the implementation of the practice 3 Sustainability: cumulatively measures the estimated durability of any infrastructure introduced as a part of implementing the practice and the estimated contribution of the practice to the overall maintainability of the freight mobility systems 4 Effectiveness: measures the estimated contribution a successful implementation of the practice will have as a component of the overall goal to improve freight mobility practices in the Study Area and its regional surroundings 5 Feasibility: measures the estimated viability of implementing the practice in the Study Area and its regional surroundings

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Urban Freight Mobility: A Way Forward

INTRODUCTION

Using the framework of these objectives, this report is presented in eight sections:

01

02

03

Leading Practices in Freight Mobility Examines seven programs and strategies to improve freight mobility that are currently implemented in several domestic and international cities

Local Practices and Perceptions of

Freight Mobility Describes some of the key local and regional organizations and City agencies with a role to play in freight policy, and how their programs factor into freight mobility

Freight and Manufacturing in

New York City Underscores the history and current environment of urban manufacturing and the important role freight plays in ensuring a vibrant urban manufacturing industry.

04

05

06

Study Methodology

Current Conditions in East Williamsburg Contains analysis of existing conditions within the Study Area, including the existing transportation network, changes in neighborhood demographics, changes in land use, and the risks and challenges to creating a comprehensive streetscape for all road users

Describes the methodology for industry outreach efforts and proposed methodology for future outreach to a larger set of stakeholders, including bicyclists, neighborhood residents, and non-manufacturing businesses.

07

08

Policy and Design Recommendations Contains a set of recommendations, informed by London fieldwork, local practices and perceptions, and local insights, that can be implemented in the short- and long-term. These recommendations address the five key objectives outlined in section 01 and fall under the three broad categories of Capacity Building and Business Engagement; Visibility and Education; and Congestion Mitigation.

Conclusion

A summary of findings and specific recommendations for East Williamsburg, Brooklyn as well as final thoughts on the future of the freight industry and urban manufacturing in New York City.

Local Insights on Exisiting Freight Operations Reflects the results of the distributed business survey, along with key findings and extrapolations.

Through our examination of the Study Area and resulting recommendations, this report contributes to the discussion on how cities can design streets and create policies and regulations that foster safe and livable neighborhoods, while providing the road network and access needed to carry out essential freight activity.

Introduction

5

01

LEADING PRACTICES IN FREIGHT MOBILITY

Cities are implementing innovative programs and carrying out strategic plans to increase freight capacity and increase safety for other street users. Our team conducted an in-depth literature review, interviews with leading experts, and travelled to London to review the extensive freight program implemented by Transport For London, the Government agency responsible for major roads and mass transit. Several concepts were identified based on the objective criteria outlined in figure 1.

LEGEND

LIVABILITY SAFETY EFFECTIVENESS SUSTAINABILITY FEASIBILITY FREIGHT CONFLICT MITIGATION STRATEGIES

The practices identified include a series of regulatory and design strategies to improve freight mobility. One practice in particular, shifting freight activity to waterways or rail lines where geographically and politically possible, offers a promising alternative for manufacturers. McInnis Cement, in 2015, introduced a state of the art distribution warehouse in the Bronx, New York City, that will shift a significant portion of their cement deliveries to freight, alleviating local roads from 13,000 miles travelled a year.1

Alternative Freight Delivery Modes

New technologies, such as Intelligent Transportation Systems and broadband alarm systems, allow for freight activities to be carried out in dense urban areas without compromising safety by helping to improve the communication between members of the supply chain, reducing congestion among trucks with similar delivery routes, and reducing the neighborhood disturbances from loud noises associated with truck alarm systems and communication equipment.

Intelligent Transportation Systems

Licensing and Certification Vehicle Size and Delivery Time Consolidation Methods

Double Deck Trailers Broadband Reversing Alarms

Our team reviewed efforts to improve freight mobility through consolidation activities and programs that encourage the retiming of deliveries in the urban core. Dot Team interviewed government officials and toured an underground delivery site connecting multiple buildings through a single loading bay at the London 1http://www.dnainfo.com/new-york/20150406/ port-morris/canadian-cement-company-hopes-set-upshop-on-bronx-waterfront

6

Urban Urban Freight Freight Mobility: Mobility: AA Way Way Forward Forward

London Borough of Camden Underground Loading Bay Facility.

LEADING PRACTICES IN FREIGHT MOBILITY

Borough of Camden. The shared loading bay allows for less dedicated ground floor space for buildings to accept deliveries and also serves to keep trucks from idling on the street.

Street design represents a direct opportunity that municipalities should undertake in the short-term, through improved signage for truck routes and parking regulations. In the longer-term, partnering with other City agencies to implement efficient siting for on-street loading zones, and implementation of shared sidewalks, which are wide pedestrian walkways that allow for truck loading during specific hours. Furthermore, safe streets initiatives, including New York City’s Vision Zero, provide multiple design recommendations that aid in street-crossing awareness.

In London, the importance of engaging with the entire supply chain early in the planning process in order to receive input at each stage of the process and establish buy-in from stakeholders that serve to strengthen policies implemented and increases their early effectiveness. Examples of long-term planning and stakeholder engagement include the introduction of two critical programs; the Construction Logistics and Cycle Safety (CLOCS) and Fleet Operator Recognition Scheme (FORS).

These programs began as voluntary associations and have since been leveraged to implement safety standards, encourage zero-emission vehicle usage, and most importantly, to collect relevant data for effective benchmarking and performance measurements.

Sideguards are installed on all freight trucks operating in London.

Trucks unload their deliveries for multiple buildings through an inter-connected, underground facility.

For an in-depth analysis of urban freight mobility practices, please review our Leading Practices Report.

Day-time loading zones in London.

Leading Practices in Freight Mobility

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02

LOCAL PRACTICES AND PERCEPTIONS

North facing view towards Manhattan from Boar’s Head Facility in East Williamsburg

8

Urban Urban Freight Freight Mobility: Mobility: AA Way Way Forward Forward

These effects not only impact goods movement but also economic efficiencies that relate directly to job creation and the competitiveness of the US on a global scale. Freight passing through a New York City regional port can reach

LOCAL PRACTICES AND PERCEPTIONS

Freight transportation is by nature a trans-jurisdictional industry. Fifty year ago, transporting goods a distance of 200 miles to a store was deemed a lengthy journey. Today, as freight demand has evolved, goods travel thousands of miles in a more dispersed pattern to multiple sources, including distributors, suppliers, warehouses, construction sites, and to a consumers front door. In addition to coordinating the import and export of goods with international providers, movement of goods within the US is subject to an interconnected national logistics system in which small delays at one point can result in an exponential ripple effect in the supply chain.

20% of the US population in less than 8 hours and more than 30% in less than 48 hours. Closing these regional ports for as little as one day would generate costs of as much as $1 billion per day of closure.1 In spite of the national range of this network, the US federal government is “not well positioned to enhance freight mobility due to the absence of a clear federal strategy and role for freight transportation, an outmoded federal approach to transportation planning and funding, and the unsustainable level of planned federal transportation funding.�2

1

Source: Senate Field Hearing (2013)

2

Source: GAO Freight Mobility (2008)

Local Practices and Perceptions

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Agency Overviews Given existing barriers the national government faces in improving freight mobility, it is important that regional municipalities, transport authorities and local organizations take action to contribute to freight planning measures. An example is The National Association of City Transportation Officials (NACTO) is a non-profit organization that works with the transportation departments of large cities in order to get their interests heard at the federal level and provides a collaborative forum for cities to work through their policy goals and objectives. NACTO has over 20 member cities and nearly 20 affiliate member cities.

Transport for London, the London agency responsible for freight logistics within its borders, has actively disseminated their research and policy strategies to other municipalities to encourage greater adoption, thus enhancing the effects of the policies by creating a unified standard system for the private sector to respond to. They also communicate directly with NYCDOT in order to facilitate greater exchange of information and ideas with a City of roughly equal population and infrastructure needs.

The New York Metropolitan Transportation Council (NYMTC) and North Jersey Transportation Planning Authority (NJTPA) are metropolitan planning organizations (MPOs) that focus on the

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New York City regional metropolitan area. NYMTC “facilitate[s] a metropolitan transportation planning process for the area” and “disseminates information to the public regarding transportation-related topics in the region.”3 NJTPA “oversees more than $2 billion in transportation improvement projects each year, provides a forum for inter-agency cooperation and public input, sponsors and conducts studies, assists county planning agencies, and monitors compliance with national air quality goals.”4 The Port Authority of New York & New Jersey (PANYNJ) handles conception, building, operation, and maintenance of regional trade and transportation infrastructure, such as airports (including John F. Kennedy International Airport and Newark Liberty International Airport), tunnels and bridges between New York and New Jersey (including George Washington Bridge and Holland Tunnel), bus terminals (including Port Authority Bus Terminal), port commerce (including the Brooklyn and Elizabeth Marine Terminals), and the trans-Hudson PATH Rail Transit System. The scope of this entity’s coverage can be seen in Figure 2 below.

“The Port Authority was created to promote and protect the commerce of the Port District and to undertake port and regional im3 Source: NYMTC The Basics of Freight Transportation in the New York Region 4 Source: http://www.njtpa.org/ About-NJTPA/Who-We-Are.aspx

Urban Freight Mobility: A Way Forward

LOCAL PRACTICES AND PERCEPTIONS

provements not likely to be financed by private enterprise, or that would not be attempted by either state alone.�5 To this end, PANYNJ, along with the New Jersey and New York State Departments of Transportation, created the Comprehensive Goods Movement Action Plan for

5

Source: http://www.panynj.gov/ about/facilities-services.html

the New York-New Jersey Metropolitan Region (G-MAP). Through a series of phases, the actions highlighted in G-MAP are aimed at improving freight mobility throughout the region by mitigating the high costs of congestion; reducing administrative barriers and helping the region maintain economic competitiveness. PANYNJ is a financially

Local Practices and Perceptions

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self-sufficient entity that is supported by revenues from its infrastructure, including bridge and tunnel tolls and transit fares and the investments in its highly rated bond offerings.

Agency Perspectives on Freight Mobility and Industrial Land Use Trends

Within New York City’s five boroughs, NYCDOT is not the only organization that focuses on freight mobility.

New York City Economic Development Corporation (NYCEDC) is a non-profit corporation that promotes economic growth and expansion of human capital to benefit businesses and neighborhoods. NYCEDC’s PortNYC program focuses on the sustainability of the City’s infrastructure for human and freight transportation to ensure that it will be able to accommodate the population and economic growth projected for the next 20 years. Through programs such as the Foreign Trade Zone Program, NYCEDC helps industries that import goods save money, which helps make the city an economically competitive place to do business.

PortNYC’s scope encompasses aviation, with a plan to expand cargo business at JFK; rail, including facilities at 65th Street and 51st Street in Brooklyn and the Expressrail Staten Island (ESI); and water activities, including the Red Hook Container Terminal in Brooklyn and plans to elevate the roadway on the Bayonne Bridge to allow for larger ships to access the New York City harbor.

With record-breaking fuel prices in 2008 and the resulting truck driver shortage, freight logistics and fleet operators were forced to consider new ways to optimize freight mobility. Further, with the changing freight demands of consumers, and retailers’ desire to accommodate their customers, freight planners recognize that optimizing freight mobility no longer means reducing the number of trucks on the road. By investing further into alternate modes, such as water and rail, the continued increase in freight transport demands will be shared by a larger existing infrastructure network. As one consultant in the freight industry, who requested they remain annonymous, put it, “the only constant is that freight is always changing.”

But because building and improving infrastructure is a long-term investment, it can be difficult to keep up with the changes in delivery practices, which has lead freight planners to look for Source: Google Maps

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Urban Freight Mobility: A Way Forward

The increasingly varied road users are something that freight planners are also incorporating into their work. The bicycling population

LOCAL PRACTICES AND PERCEPTIONS

ways to repurpose infrastructure to more adaptable purposes. One example is the re-activation of service alleys. Cities such as Chicago and Washington, DC are implementing “greening” practices in which the alleys are repurposed as pedestrian thoroughfares or staging areas for recycling or bicycle storage in ways that do not conflict with freight vehicles.

is no longer only comprised of recreational cyclists; many urban residents are choosing this as their mode of commuting to work.

Another contributing factor to the increasing cyclist population is the nascent, but growing bicycle delivery industry. Freight or cargo bicycles have their own road safety challenges due to their lower mobility and weight-distribution effects. Due to the safety concerns of these types of road users, additional protective measures are now being implemented on urban roads. Safety concerns are not just the result of increased cycling though: cyclists themselves have had difficulty remembering that vehicles, including trucks, can’t always see them and may behave in such a way as to put the vehicle driver at risk as well. Off-road planning such as educational programs are now more important than ever.

Regional and local organizations cannot implement effective solutions independently. While it can be beneficial to have one party champion a policy and carry it to completion; collaboration – both with like-minded organizations and local agencies – is essential. There are of course, a number of challenges to collaboration as well. Residents may not understand the role they play in contributing to freight movement as consumers of goods, a holistic approach is neccessary, for effective, long-term safety and traffic strategies.

Alternatively, some are aware of their role as a stakeholder, but choose not to participate. Private funding sources and local

Birds eye view of cement plant in East Williamsburg along the English Kills Canal.

Local Practices and Perceptions

13

businesses tend to ignore or take advantage of externalities caused by their operating. Many businesses are hesitant to commit to new policies they deem to be an added burden in an already competitive environment. For this reason, some organizations, such as NYCEDC’s Small Business Services group, have begun to work directly with building owners, in addition to businesses, on coordinating the services that a business improvement district would generally provide. This group has found that it to be more effective to

ease into projects by starting with minor issues, such as clean-up and security, issues that all stakeholders can support. Bicyclists should be involved in the processes to improve freight mobility, and thus cycle safety, as well. NYCDOT’s Bikes group has expressed a desire to work with and accommodate businesses in shifting select parking facilities in order to install bicycle facilities. Such a program can provide separate, safer space for bicyclists, in order to add an additional layer of separation between motorists, with limited visibility Bike Routes Local Truck Routes 0

0.25

Hunter’s Point

Lower East Side

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Urban Freight Mobility: A Way Forward

0.5

Miles 1

Through Truck Routes

LOCAL PRACTICES AND PERCEPTIONS

and the cyclist. Projects that have been implemented resulted from workshops held by NYCDOT’s Bikes group.

Certain stakeholders have not yet shifted their focus to freight-related issues.

NACTO, for instance, recognizes that freight is an important topic, however, they have chosen to prioritize other issues in their current research. Freight is scantly mentioned in some of their current design guides, but a more comprehensive analysis is still earmarked as a future topic.

A recent report by the Pratt Center, titled “The Future of Industrial Brooklyn,” cited twelve best practices, categorized under land use regulations, campuses and districts, managed spaces and incubators, workforce solutions, and finance opportunities. Absent in the report, was the topic of urban freight traffic. Finally, it can be difficult to get political support for long-term planning of freight infrastructure projects. Many constituents may not understand the impact freight mobility has on their day-to-day habits, and improvements to the systems, which are not usually visible to voters, are not at the forefront of most politicians’ priorities. The Mayor’s Office has initiated some projects related to freight, including ‘green loading zones’ for zero-emission delivery trucks, however, attempts to correspond with a representative of the Mayor’s Office were met with confusion as to why they would be consulted on matters of freight and land use.

Local Practices and Perceptions

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03

FREIGHT AND MANUFACTURING IN NEW YORK CITY

Map of Manufacturing Zones M1 M2 M3

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Urban Freight Mobility: A Way Forward

Upon departing New York City, these industries left behind hulking buildings with large floor plates and polluted landscapes. Such dystopian scenery and the proportionately low rent levels attracted artists and other creative types seeking refuge from increasing rents in residential neighborhoods. As the creative communities gained traction, commercial ventures such as galleries, cafes, restaurants, and public art begin to take root as well. This revival activity attracted the attention of the larger

FREIGHT AND MANUFACTURING IN NEW YORK CITY

The evolution of manufacturing districts in New York City during the 20th and 21st centuries reflects the declining trends in once vibrant industries such as garments and heavy manufacturing. In their exodus from the City, these industries initially relocated in the south and eventually followed cheap labor markets and exited the US altogether. Much of these industries currently operate in places such as Southeast Asia and Latin America.

Map of Manufacturing Land Use Source: New York City Department of City Planning

Freight and Manufacturing in New York City

17

residential market, and once unlivable districts wwere resurrected as a chic and edgy place to be. Large loft spaces, generated by converting warehouses and factories into live/work accommodations, attracted a second stream of residents, with more traditional income streams, to the area. Subsequently, the area is identified as safe, trendy, and up-and-coming, and developers soon follow, contributing hotels, big-box retailers, and luxury condos to the market. Ironically, the neighborhood whose affordability once made it attractive now has an increased cost of living and in cases such as West Village and Williamsburg, rivals those of traditional wealthy enclaves in the Upper East Side.

With this increased cost of living came certain expectations, and residents paying a premium to live in the neighborhood were disturbed by the odors, noise pollution, and heavy vehicle street traffic of existing manufacturers. In response to residents’ complaints, elected officials imposed noise, smell, and use ordinances, restricting and, in some cases impeding, existing manufacturers from carrying out their standard operations. As a result, manufacturers began to leave the area, and, eventually, the area was rezoned. This chain of events is what led to Greenpoint and Williamsburg, both neighborhoods near to the study area, being rezoned in 2006.

This pattern is evolving, though. Some of the less intrusive and noxious manufacturers, including food processors and distributors, managed to weather the decline in the sector and initial abandonment of traditional industrial

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Urban Freight Mobility: A Way Forward

neighborhoods. Additionally, a new breed of American manufacturers, with a leaner business model and emphasis on craftsmanship, is emerging. These manufacturers typically hire only a handful of employees and operate in smaller or shared spaces. They are cleaner and more flexible than their predecessors and bring an immeasurable level of diversity to local communities. In spite of these evolutions, the modern generation of manufacturers still has difficulty competing with large hotels, big-box retailers, and storage centers. One main obstacle these new manufacturers encounter is that they require deliveries of their raw materials and pick-ups of their finished projects, which results in the necessity for access to freight infrastructure.

While freight doesn’t top the priority list for many stakeholders (as evidenced by the low survey response rate discussed in the Study Methodology section below), targeting freight can be an effective method of converting industrial businesses into better neighbors. Possible methods include streamlining traffic patterns, decreasing truck emissions, organizing parking stalls, mitigating noise nuisances, and other similar policies aimed at creating safer, quieter, less obtrusive freight traffic. When manufacturing businesses are better neighbors, residents complain less to their elected representatives, who in turn are no longer forced to choose between jobs and voters. Urban freight policies could be used to supplement targeted zoning and economic development programs to save high quality jobs in manufacturing industries. If given the opportunity, urban manufacturing may even begin to flourish, once more.

FREIGHT AND MANUFACTURING IN NEW YORK CITY

Freight and Manufacturing in New York City

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04

CURRENT CONDITIONS IN EAST WILLIAMSBURG

Often overshadowed by its neighbor to the west, East Williamsburg represents a glimpse of what North Brooklyn was prior to the Greenpoint/ Williamsburg rezoning in 2005, which converted large swaths of heavy industrial land into residential and mixed-use areas.1 Today, East Williamsburg contains long-entrenched businesses for heavy industrial uses, including cement manufacturers, junk yards, and food distributors such as the iconic Boar’s Head, juxtaposed with artist’s lofts, chic eateries, and artisanal craft stores.

Many would argue that this is a continuation of the changes undergone in the past decade in Williamsburg and Greenpoint, however there are significant differences. Unlike the surrounding neighborhoods which were re-zoned as mixed-use and residential, East Williamsburg has been designated an Industrial Business Zone (IBZ) by the City of New York and is represented by strong business interest groups, such as Evergreen (EWVIDCO, prior to 2015).

Due to the pricing pressure of real estate in neighboring districts and the convenient access to Manhattan via the L subway line, however, residential uses have crept in. With the current economic environment in New York City, highlighted by soaring real estate prices and a significantly diminished manufacturing industry, 1 http://www.nyc.gov/html/dcp/html/ greenpointwill/greenoverview.shtml

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Urban Freight Mobility: A Way Forward

the New York City Department of Transportation and local community residential and business groups have sought to identify practices to allow city residents to live safely and comfortably without forcing out existing manufacturers.

Current manufacturers rely on the neighborhood’s existing infrastructure, particularly access to truck routes, highways, and loading docks that are often viewed as incompatible with residential preferences. This section aims to highlight the historical and trending demographics of the East Williamsburg, the existing transportation infrastructure that makes it a desirable location for both manufacturers and residents, and the existing obstacles to the viability of longterm coexistence with residential and manufacturing presence in the area.

Demographics The area has undergone significant changes since the 1980’s when its population was just under 7,000 residents. Following the implementation of the 1982 Loft Law, a New York State law instituted to protect New York City tenants living illegally in commercial or industrial buildings, the neighborhood underwent a steady rise in population growth through 2000. By 2010, the population reached 10,000 though the neighborhood remained largely dominated by industrial businesses.

CURRENT CONDITIONS IN EAST WILLIAMSBURG

Images of conflicts and independent remediation efforts of manufacturers, freight operators, and residents in East Williamsburg taken between October 8, 2014 and April 11, 2015 during site visits.

Current Conditions in East Williamsburg

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Currently, the population continues to increase, with an estimated 10,398 people inhabiting East Williamsburg (2013, 5-year ACS).

The largest population group is White, 43%, followed by Hispanic, 39%, and Black, 13%. The age distribution is skewed towards a younger population, with a plurality of residents, or 34%, falling between the ages of 25 and 30. When looking at broader age categories, the graph below highlights that more than half of the population, or 57%, falls between the ages of 20 and 44.

Due to the nature of census data at the census tract level, median household income is provided in a range. For the Study Area, the median household income is between $50,000 and $75,000, which is in line with the New York City median of $63,982. Although income levels are comparable, the unemployment rate is greater for the Study Area than for New York City as a whole, 11.30% compared to 9.60%, respectively.

The changing demographics and the increase in destination activities, such as bars, restaurants, and clubs, bring in visitors at all times of the day. Local industrial businesses now face increased foot traffic, day and night, as the demand for the neighborhood becomes increasingly mixed among industrial, commercial and residential uses.

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Transportation The Brooklyn-Queens Expressway/I-278/NY-34 provides major highway access and represents the northern border of the Study Area. Flushing Avenue, Metropolitan Avenue, Grand Street, Morgan Avenue, and Bushwick Avenue are the major through streets in the Study Area, and Flushing Avenue, Grand Street, and Metropolitan Avenue make up the local truck routes. The Study Area is served by the L subway line, most notably the Morgan Avenue stop, and the B24, B57, B60, Q54, and Q59 bus lines that primarily run east and west.

Neighborhoods to the west and north of East Williamsburg have bicycle networks that provide multi-directional connections.

The Study Area, however, has a single bicycle lane on Grand Street that extends to the English Kills Bridge and intersection with Metropolitan Avenue. This bicycle lane provides an east-west connection for riders to Manhattan via the Williamsburg Bridge bicycle paths.

Urban Freight Mobility: A Way Forward

Statistics In January 2014, Mayor Bill de Blasio introduced a set of policies and programs known as Vision Zero to end all traffic fatalities in New York City. Data and research compiled by NYCDOT in the 2015 Brooklyn Pedestrian Safety Action Plan identify particularly dangerous intersections and corridors in each borough with priority given to the corridors with the most pedestrians killed or severely injured per mile on streets measuring at least one mile in length. Priority intersections were similarly identified and ranked by the number of pedestrians killed or severely injured that cumulatively account for fifteen percent of the respective borough’s total number of pedestrians killed or severely injured. Within the Study Area, there are two priority corri-

CURRENT CONDITIONS IN EAST WILLIAMSBURG

Though transportation safety can be measured by a number of metrics, NYCDOT collects data on the number and kinds of injuries and fatalities resulting from traffic crashes through the five boroughs. These data are based on reports filed by NYPD officers following crashes. Crash data is broken down to three broad categories: 1) those involving pedestrians and motor vehicles; 2) crashes between bicyclists and motor vehicles; and 3) those involving multiple motor vehicles.

NYCDOT and NYPD also distinguish between crashes that result in minor and moderate injuries and those that result in severe injuries and fatalities.

dors and one priority intersection: Priority Corridors 1. Bushwick Avenue from Maspeth Avenue to Jamaica Avenue - 3 pedestrian fatalities, 32 pedestrian KSI (killed or severely injured), 3.6 miles, 8.8 pedestrian KSI/mile 2.

Flushing Avenue from N Elliot Place to Onderdonk Avenue - 1 pedestrian fatality, 28 pedestrian KSI, 3.3 miles, 8.6 pedestrian KSI/ mile

Priority Intersection 1. Humboldt Street & Metropolitan Avenue & Maspeth Avenue, just outside the Study Area, 3 pedestrian KSI and 1 pedestrian fatality Truck crashes contribute to less than one in ten pedestrian fatalities in Brooklyn, a lower rate than New York City as a whole. This is most likely the result of low residential population levels near heavy manufacturing areas, however as residential areas expand, these numbers are expected to increase if no intervention is undertaken. The larger weight and size of trucks increases the force and severity of crashes, therefore trucks pose a particular safety concern for pedestrians and bicyclists. Trucks also have lower driver visibility range than passenger vehicles, making it harder for operators to see pedestrians from the driver’s seat.

Current Conditions in East Williamsburg

23

Other

Asian White

Black White

Urban Urban Freight Freight Mobility: Mobility: AA Way Way Forward Forward

10,237 Residents

2000

7,488 Residents

6,961 Residents

1990

7,508 Residents

2010

24

Black Asian

Hispanic

1980

Hispanic

Other

80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 45 to 49 40 to 44 35 to 39 30 to 34 25 to 29 20 to 24 15 to 19 10 to 14 5 to 9 under 5 MEN

Current Conditions in East Williamsburg

25

CURRENT CONDITIONS IN EAST WILLIAMSBURG

85+

Industry In addition to the population and demographic changes taking place in the Study Area, the neighborhood has seen major changes in its land use. As a historically industrial area, East Williamsburg has worked to maintain its manufacturing and other industrial uses in an atmosphere of increasing residential pressures.

To determine changes in industry and land use in the area, Census ZIP Code Business Pattern data, the smallest geographic unit available to explore the number of establishments in a given industry, was used. Four zip codes cover the East Williamsburg Study Area: 11211, 11222, 11206, and 11237. To analyze the changes in the industrial landscape total establishment counts were used for the following industry types: Manufacturing, Transportation & Warehousing, and Wholesale Trade.

As can be seen in the charts below, while the area has lost manufacturing establishments, the number of establishments in transportation and warehousing and wholesale trade have

both increased from their year 2000 levels. However, it should be noted that due to the larger geographic area, the numbers in the charts below represent North Brooklyn as a whole, not the specific East Williamsburg Study Area.

While our team was unable to analyze the change in the number of industrial establishments specific to our Study Area, PLUTO data was used to determine the change in the number of lots for a particular land use of the 1,849 tax lots in our Study Area. As can be seen in the chart below, the number of lots used for industrial and manufacturing uses increased between 2004 and 2014 from 574 to 601 lots. Also notable is the decrease in vacant land during the last decade, which could be a result of the increasing desirability of the Study Area as a place to live and conduct business.

Risk and Challenges The 1982 Loft Law resulted in an increase in the number of residents living in the Study Area, but it did not create a long-term solution to the conflicts between residents and the existing manufac-

Injury and Fatality Statistics in the Study Area

26

Injured

Severely Injured

Killed

Pedestrians

38

19

1

Bicyclists

158

17

7

Motor Vehicle Occupants

1,030

61

2

Total

1,226

97

10

Urban Freight Mobility: A Way Forward

CURRENT CONDITIONS IN EAST WILLIAMSBURG

This can be a very time consuming and expensive process.

In addition to these improvements, a registered tenant is granted immunity from eviction and rent stabilization. But the Loft Laws do not have any impact on the registered land use. As indicated in Figure XXX, the Study Area is still zoned primarily for manufacturing under the designations M1 and M3. M3 districts often contain the most hazardous and noxious uses.

As a result, these districts are generally accompanied by a buffer zone rather than being directly adjacent to residential districts.

In the case of the Study Area, the M1 districts act as the buffer.

However, by allowing residents in these M1 districts, the buffer is meaningless. Mixed use districts combining M1 and residential do exist, but proximity to M3 districts can create conflicts for the residential, commercial, and industrial parties attempting to coexist.

turing businesses and structures.

Under this law, its updated 2010 iteration, and the 2013 amendment, changes are only made on a building-by-building basis. The landlord is financially responsible for bringing the individual apartments up to residential code, and both the landlord and tenants are responsible for improvements to common space in the building.

Though the Loft Laws make the Study Area more attractive for existing residents, they do include certain stopgap measures to prevent an influx of new residents.

The most significant prerequisite is that the tenant must have lived in the unit on June 10, 2010, and the unit itself must have been occupied for at least 12 consecutive months from 2008 to 2009, although not necessarily by the 2010 tenant.

Further, a registration deadline was set for March 11, 2014 when

Current Conditions in East Williamsburg

27

the law expired. Many tenant rights advocates feel that an accurate representation of residents in the Study Area is difficult to calculate, as many illegal tenants either weren’t aware of the deadline or missed it. Continued lack of representative resident and commercial information can make it difficult to plan for the needs of either party in the area.

When Superstorm Sandy struck in 2012, residents of East Williamsburg were caught unawares when the water surged into their neighborhood, as this area had never previously flooded. The Study Area is inland from the East River, but its proximity to Newtown Creek puts it at risk for any future major weather event.

Subsequent to Sandy, evacuation zones were re-evaluated and redrawn.

These modifications to the map, as shown in Figure XXX, may make it safer for residents and industries as they are now in an evacuation zone with increased urgency, but the potential for damage to the physical infrastructure could also deter development. The redrawn maps also form the basis for new building regulations under FEMA guidelines. This may make it difficult to bring in new developers once certain existing properties can no longer be maintained.

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Urban Freight Mobility: A Way Forward

CURRENT CONDITIONS IN EAST WILLIAMBURG

Greenpoint

Williamsburg

Bushwick Flood Zones Highest Risk 0

0.375

Miles 1.5

0.75

Current Conditions in East Williamsburg 0

0.375

0.75

High Risk

29 Miles 1.5

Floo

Birds eye view of NYCHA Cooper Houses in Bushwick neighborhood of Brooklyn.

05 STUDY

METHODOLOGY

Methodology for Business Survey Dot Team focused on two sets of local stakeholders: (1) industrial businesses and (2) community members, which we define as people who live in or regularly spend time travelling in and visiting the Study Area (including visitors and small businesses). Due to the scope of this report, a priority was placed on collecting

30

Urban Urban Freight Freight Mobility: Mobility: AA Way Way Forward Forward

industrial business data via a comprehensive 23-question survey for industrial businesses, which is divided into three sections: (1) general business information, (2) current freight activity, and (3) current freight conflict and mitigation.

As Evergreen sends bi-monthly digital newsletters and quarterly print magazines to their members, in order to collect survey responses, Dot Team utilized the existing relationship

STUDY METHODOLOGY

31

between NYCDOT and Evergreen to distribute the industrial business survey. Of the 2,000 members of Evergreen, 724 industrial businesses were contacted and asked to complete the survey. After receiving only nine responses to the emailed survey, Evergreen provided a list of select businesses, and the team conducted individual telephone outreach and garnered three more responses.

3. Method for distributing the survey and collecting the results: A post-survey debrief with Evergreen revealed that the survey method they found most successful was collecting surveys door-to-door and engaging businesses directly.

Solutions: 1.

Condense the survey to one page and collect data in the field: The survey should focus on a single topic at a time: safety, freight movement, or implementation of freight mobility strategies. This method does not capture all of the requested data at a specific time period, but it will lead to improved response rates. By collecting data on foot, NYCDOT can establish a relationship with business owners and emphasize the importance of the study.

2.

Target plant managers, not principals: As plant manager, they deal directly with freight, the managers regularly engage with freight activities in their day to day responsibilities, especially in larger businesses. Evergreen may be able to provide a list of plant manager contact information.

3.

Further utilize Evergreen’s relationship with the businesses: Evergreen conducts both the bi-monthly digital newsletters and quarterly print magazines and they are in the process of optimizing their website to encourage greater community engagement.

Business Survey Recommendations for Future Outreach In order to identify key stakeholders, partnerships, and potential strategies that would allow NYCDOT to conduct expanded outreach in the future, several key issues were identified to have led to the low response rate of the survey and suggested practices to improve response rates.

Issues: 1. Length of the survey: When completed, the survey had 23 questions, several of which included a matrix, leading to expected completion times in excess of 20 minutes. Evergreen frequently sends out surveys to these businesses, however, the surveys are generally ten questions or less with an expected completion time of 10 minutes or fewer.

2. Lack of relationship between Dot Team and the businesses: As Dot Team lacked a formal relationship with businesses prior to distributing the survey; it was challenging to coax businesses to complete the survey.

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Urban Freight Mobility: A Way Forward

STUDY METHODOLOGY

4.

Utilize the NYCDOT name: Emphasizing the connection with NYCDOT can help stress the importance of the survey. Attaching a logo or sending the survey out in conjunction with Evergreen will add legitimacy to the project and indicate a real emphasis to improve conditions for survey takers.

Proposed Methodology for General Outreach and Engagement In addition to improving direct relationships with individual businesses to improve response rates for business outreach, we recommend that NYCDOT conduct comprehensive outreach to the general community of residents, community members, and local visitors. The goal of general outreach and engagement is to collect a comprehensive set of data detailing points and times of conflict between freight and non-freight users in the Study Area. Outreach will contribute supplemental data to add color to data collected from surveyed businesses.

Outlined below are the data desired from future outreach, which centers on existing livability, street and transportation safety, and travel conditions in the Study Area. By focusing on these three categories, NYCDOT will be able to gain a better understanding of how residents and other community members feel about and experience the street environment. Outreach methods will focus on the following issues to illustrate and expand upon these three categories:

Study Methodology

33

1. Livability: • Noise disturbances • Access to green space • Quality of street lighting and signage • Double parking/illegal parking 2. Safety: • Perceived safety of different modes of travel and age groups • Routine traffic violations • Visibility • Pedestrian behavior • Cyclist behavior 3. Travel Conditions: • Traffic congestion hotspots • Infrastructure maintenance • Effectiveness of signage and way finding • Intersection conflict areas Two primary modes of data collection are a website where visitors can add place-based and time-based feedback to a map and a paper worksheet that will allow people to contribute the same feedback offline. This approach is based in large part on NYCDOT’s 2014 Vision Zero outreach model. Streamlining graphics across paper and web platforms and promoting outreach participation with local retailers and partners will create a visible outreach presence in the neighborhood.

1. Website: The website will include a map, similar to the map used for Vision Zero outreach, that allows visitors to add drop pins denoting specific issues relating to the three focus categories of livability, safety, and travel conditions and add

34

comments in the designated geographic area. In order to add a drop pin, website visitors will input certain information about their demographics and travel patterns.

2. Worksheet: The worksheet will include categories for basic demographic information and travel patterns and, similar to the Vision Zero worksheets, provide opportunities for respondents to identify intersections or streets in the geographic area where they identify concerns surrounding the three focus categories of livability, safety, and travel conditions.

The worksheet will provide additional space for comments to ensure respondents have adequate space to provide feedback that doesn’t fit into the predetermined categories.

To promote higher response rates, NYCDOT will work with neighborhood retailers and community partners to promote public participation requests.

NYCDOT should also create a promotional postcard that can be distributed in public spaces and displayed in retail locations in the neighborhood. Additionally, NYCDOT can partner with MTA to promote outreach platforms through advertisements on bus shelters, subway stations, and digital kiosks, if possible. Higher rates of engagement can be achieved through targeting promotion and distribution of outreach materials at community board meetings and other relevant opportunities.

Urban Freight Mobility: A Way Forward

06

Local Insights from East Williamsburg

LOCAL INSIGHTS FROM EAST WILLIAMSBURG

Local Insights from East Williamsburg on Current Freight Operations

35

In order to effectively implement policies that address current land use conflicts with industrial businesses, it is critical to assess local businesses’ perspectives of current freight issues and potential solutions. This section presents the results of the survey distributed to Evergreen members in East Williamsburg. The thirteen responses are not a representative sample of the Study Area, and the results presented below should only be considered as analysis of these responses, but they provide important anecdotal information on the current understanding of conflicts and solutions for freight mobility.

Business Profiles The largest group of respondents (46.2%) is composed of members of the manufacturing industry.

The next largest group (30.8%) is composed of food distributors, followed by, in equal measure (7.7% each), sanitation, construction materials, and trucking.

Collectively, the respondents have been operating in the Study Area for up to 99 years and for an average of 35 years. This average is somewhat misleading, however, due to several long-term outliers and low response rate. More than half of the respondents (61.5%) have operated in the area for 30 years or less and nearly one-quarter (23.1%) have operated in the area for five years or less.

Delivery Patterns The respondents generally accept deliveries during standard business hours (i.e. 9:00 am to 5:00 pm). Only two of the respondents have extended delivery hours, one of which keeps its loading dock accessible on a 24-hour basis. Extending morning reception hours is the more common practice: in addition to the 24-hour respondent, half of the remaining respondents are accessible by 7:00am or earlier.

There does not appear to be any correlation, though, between the time that the loading dock opens and the length of time it remains open.

In spite of these results, only two of the respondents categorized their delivery activity as off-peak, the respondent with the 24-hour delivery hours and the respondent whose delivery hours are 2:00am to 4:00pm. Of these two respondents, one found the off-hour delivery process to be conflict-free, and the other found the only conflict to be with other road users. Of the businesses that do not employ off-hour delivery, five have considered but not yet implemented it for reasons including a lack of drivers and staff willing to work late shifts and the additional cost required for the staff that would be willing. Two respondents noted that they are unable to make deliveries to businesses outside standard business hours.

Distribution of incoming and outgoing deliveries throughout the week is more regular amongst the

36

Urban Freight Mobility: A Way Forward

The volume of deliveries is the most disparate aspect of scheduling incoming and outgoing deliveries. Five of the respondents declared five or less deliveries per week, and six others declared an average of 10 to 20 deliveries per week. The remaining two respondents expect anywhere up to 100 deliveries per week. Though this is not representative of our sample, it can have serious ramifications in terms of capacity planning for the Study Area.

Vehicle Types Just over half of respondents use large-scale commercial vehicles (box trucks and tractor trailers) for their incoming and outgoing deliveries. Approximately half of the remaining deliveries are conducted by van. A small percentage of deliveries into and out of the area are made via flatbeds and boom trucks.

Industry Impressions Respondents were provided with several infrastructure features and asked to evaluate each as beneficial, intruding, dangerous, or neutral. Some of the respondents did not complete this portion. Most

(90%) evaluated proximity to the Brooklyn-Queens Expressway (BQE) and designated truck routes as beneficial, and a majority (70%) found it beneficial to be established in proximity to other industrial businesses. The presence of residents, however, was generally considered to be dangerous or at least an intrusion, while the presence of parks was considered a neutral feature. One-way streets got the most varying responses: equal numbers (30% each) viewed these as a benefit and an intrusion.

The other 40% of respondents had neutral feelings.

LOCAL INSIGHTS ON CURRENT FRIGHT OPERATIONS

respondents. Only one respondent reported weekend delivery activity. Both incoming and outgoing deliveries remain steady during the first half of the week and then tend to increase for outgoing deliveries and decrease for incoming deliveries towards the end of the week.

Based on these findings, it is not surprising that some non-infrastructure features received a more lukewarm response. Less than half (40%) of respondents viewed small eating establishments as an opportunity, and two respondents found the presence of these establishments threatening to the neighborhood. Half of the respondents found large establishments and recreational spaces (such as roller rinks, theaters, and galleries) to be threatening, and 60% also felt this way about hotels. Only a small percentage of respondents saw large establishments and hotels as opportunities (30% and 20%, respectively).

Finally, we inquired in the survey about interactions with other road users and the impact respondents perceived these road users had on freight mobility. Pedestrians were perceived as more of an inconvenience: 50% of respondents thought pedestrians posed no

Local Insights from East Williamsburg

37

23:00 20:00

21:00

22:00

problem, and 30% thought they posed only minor problems with respect to freight mobility. Vehicles, however, were not perceived so innocuously: 80% of respondents found cars and other freight users to be either a minor or recurring problem.

19:00

Industry Requests

38

Urban Freight Mobility: A Way Forward

17:00 16:00 15:00 14:00 13:00 12:00 11:00 0:00

1:00

2:00

3:00

4:00

5:00

6:00

7:00

Additionally, it would be beneficial to further examine the percentage of deliveries that already come into and out of the Study Area during off-peak hours and the businesses that would be willing to consider this transition.

10:00

1.

9:00

1.

8:00

1.

Additional bicycle lanes Reduction of truck traffic hours Additional bus service to the neighborhood Increased enforcement of double-parking on major roads Allowing double-parking so long as other traffic has room to maneuver Shift street-cleaning to off-peak hours so that workers have more parking available on their morning commute

LOADING/UNLOADING HOURS

1.

1.

1.

18:00

In conclusion, we asked survey participants what, from their local perspective, NYCDOT could do to reduce conflict among road users. Suggestions included the following:

LEGEND

8

LOCAL INSIGHTS ON CURRENT FRIGHT OPERATIONS

INCOMING

OUTGOING

4

0

VAN

BOX TRUCK

TRACTOR TRAILER

OTHER

8

4

0

MONDAY

TUESDAY

8

WEDNESDAY THURSDAY

FRIDAY

WEEKENDS

CONSTRUCTION MATERIALS

FOOD DISTRIBUTION

4

CONCRETE PRODUCTION & DISTRIBUTION

MANUFACTURING SANITATION

0

4

1 TO 5

6 TO 15

16 TO 30

31 TO 50 51 TO 75

75+

0 # OF YEARS IN CURRENT LOCATION

Local Insights from East Williamsburg

39

07

Recommendations

DESIGN 1. PARKING CORRALS

Install strategically located parking corrals for freight trucks to idle. This keeps trucks from searching for areas to idle and keeps them off the streets except when necessary. Our team has identified underutilized lots in the study area that are located within close proximity to multiple manufacturers and warehouses. These sites are all zoned M3-1, requiring the participation of the Department of City Planning.

2. GREEN LOADING ZONES

Green Loading Zones provide for guaranteed parking for zero-emission freight vehicles. These can be placed in advantageous on-street locations throughout New York City. This incentives fleet operators to add green vehicles to their fleets, which reduce carbon emissions, make less noise, and tend to be shorter than typical long-haul freight vehicles.

3. INTEGRATE COMPLETE STREETS WITH FREIGHT MANAGEMENT

Continue to implement planned Complete Streets improvements to install improved cross-walks, on-street signage, traffic calming and daylighting design upgrades along Maspeth Avenue and Kingsland Avenue.

40

Urban Freight Mobility: A Way Forward

Green Loading Zones Image Courtesy of WXY Architecture + Urban Design

RECOMMENDATIONS

There are 34 vacant lots in the study area with total develop-able FAR of 651,077 sq. ft. Within that, 74% is zoned M3-1 for heavy manufacturing, indicating both a lack of demand for heavy manufacturing in the area and an opportunity to adapt the vacant land to accommodate other manufacturing uses so as to reduce truck idling and double parking on high-traffic streets.

Recommendations

41

4. CONSOLIDATED LOADING BAYS

Encourage consolidated loading bays during the land use review process of special districts. Consolidated loading bays greatly reduce idling delivery vehicles and time spent searching for available parking. In addition, they only require one ground-level opening for several buildings, reserving more space for retail activities. This strategy is only applicable to new construction of multi-site developments and thus, has limited application to current conditions. It is important to ensure that future projects include discussion about freight logistics.

42

Urban Freight Mobility: A Way Forward

RECOMMENDATIONS

POLICY 5. ESTABLISH CERTIFICATION PROGRAM

Implement a voluntary certification program with fleet operators and the construction logistics industry where certified operators are entitled to free safety training programs for drivers, preference for City contracts, and visibility in NYCDOT marketing and outreach campaigns. In exchange, they would agree to collect data on their fleets, including mileage, traffic and parking violations, and safety hazards incurred.

6. STAKEHOLDER OUTREACH

Work with local stakeholders, including Evergreen, St. Nick’s Alliance, and the Grand Street BID in order to build strong coalitions for outreach and engagement efforts with businesses and residents. In particular, encouraging Evergreen to seek Industrial BID status to replace the vacated Ombudsman position in East Williamsburg and Greenpoint.

7. BUILD ON INTER-AGENCY DIALOGUE

Build relationships within NYCDOT divisions and existing programs, in particular Vision Zero, and with Government agencies within the City. In particular, the Economic Development Corporation, Department of City Planning, Metropolitan Transportation Authority, Department of Buildings, and the Ports Authority have roles to play in addressing urban freight safety and efficiency.

Recommendations

43

08

44

CONCLUSION

Urban Freight Mobility: A Way Forward

CONCLUSION

Freight is an integral but often overlooked aspect of City Planning. With the amount of freight expected to pass through New York City expected to increase by 50% to over 100% in the next 15 years, it is increasingly important that it be considered within the framework of core City functions.

to the world. By building an increasingly diverse and dynamic economy while also expanding opportunity and choice for its residents, New York City will again be a source of inspiration and innovation for other cities to emulate.

By including freight planning in street design, zoning codes, and new initiatives aimed at greener communities, freight and by extension, urban manufacturing can be better integrated into communities. The economic diversity and high-quality jobs that originate from these industries represents a clear strategic advantage to retaining manufacturing in cities such as New York City, where affordability is an ever present issue.

But freight holds another, perhaps more benign necessity; cities cannot function without importing goods from outside in order to sustain itself. The greater a city’s ability to import goods, the greater diversity its residents can enjoy, enriching their quality of life and further spurring agglomeration opportunities.

The aim of this report is to convert the vicious cycle that has pushed residents into manufacturing districts and to supplant industrial businesses that would otherwise benefit from their proximity to markets into a virtuous cycle where manufacturers are able to be good neighbors and remain competitive in the global market. New York City is a laboratory for the United States and an example

Conclusion

45

DOT TEAM

46

Urban Freight Mobility: A Way Forward