PennDesign Planning Studio 2013
stu dio tea m
PENN DESIGN STUDIO RACHEL ALAND
Master of City Planning, STIP (‘13)
JEZREEL APELAR
Master of City Planning, PPD (‘13)
KATHLEEN BOLE
Master of City Planning, PPD (‘13)
BRYAN BARNETT-WOODS
Master of City Planning, STIP (‘13)
LUCIENNE CANET
Master of Architecture / City Planning, STP (‘13)
OLIVIA CHO
Master of City Planning, PPD (‘13)
MARC DREYFUSS
Master of City Planning, STIP (‘13)
RICHARD FREEH
Master of City Planning, STIP (‘13)
HENG (GRACE) GAO
Master of City Planning, STIP (‘13)
ADITYA INAMDAR
Master of City Planning, PPD (‘13)
SAMANTHA KUNTZ
Master of Historic Preservation / City Planning, CED (‘14)
JIMMY LY
Master of City Planning, PPD (‘13)
MATTHEW MORAN
Master of City Planning, STIP (‘13)
BOWEN QIU
Master of Architecture (‘13)
SARAH VANLANDINGHAM
Master of Historic Preservation (‘13)
FANGRU WANG
Master of City Planning, STIP (‘13)
JOSHUA WAGNER
Master of City Planning, STIP (‘13)
SCOTT WEBER
Master of City Planning, STIP (‘13)
SYDNEY ZIMELIS
Master of City Planning, PPD (‘13)
PennDesign Planning Concentrations: (CED) Community & Economic Development; (PPD) Public Private Development; (STIP) Sustainable Transportation & Infrastructure Planning
Reimagining Penn Station
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ACKNOWLEDGEMENTS The Penn Station Studio has been honored to receive a great level of support from many contributors, ranging from seasoned professionals to acclaimed scholars in the fields of urbanism, transportation planning, design, economics, and historic preservation.
We offer our sincere thanks to AECOM, Dan Rose, Mercator Advisors, Parsons Brinckerhoff,
PennDesign’s Office of the Dean, and PennDesign’s Office of City and Regional Planning, whose generous support sent our team to London for a week-long planning workshop in London, United Kingdom. Our team would also like to those who made our Spring Charrette – held in London from March 4-8, 2013 – a successful venture into the world of international transportation planning. We are grateful to Vincent Goodstadt, Former President of the Royal Town Planning Institute and Honorary Professor at the University of Manchester, for his organization of speakers, tours, and events, and to KPF Associates for generously providing with a space in which to work out our plans. The studio also thanks the many individuals who gave our team their knowledge, resources, and time to help us conceive of a Penn Station for future generations. We would like to recognize the following individuals whose creativity and support
penn faculty
elevated this project to a new level of success:
MARLYN JORDAN TAYLOR*
Dean and Paley Professor, PennDesign / Former Partner of Urban Design
and Planning Practice, Skidmore Owings & Merrill, LLP
ROBERT YARO*
Professor of Practice, PennDesign / President, Regional Plan Association
DR. PETER ANGELIDES
PennDesign / Vice President & Director, Econsult Corporation
STEFAN AL
Associate Professor of Urban Design, PennDesign
EUGENIE L. BIRCH
Lawrence C. Nussdorf Professor of Urban Research & Education, Chair of
the Graduate Group of City Planning, PennDesign
DR. JOHN LANDIS
Crossways Professor of City & Regional Planning, Dept. Chair, PennDesign
RICHARD WELLER
PennDesign / Winthrop Professor of Landscape Architecture, University of
Western Australia
* Studio Instructors
Reimagining Penn Station
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european associates & charrette participants iv
LORD ANDREW ADONIS
Former Secretary of State, Transport for the United Kingdom
MARTIN AARTS
Head of Urban Planning, City of Rotterdam
JOHN ANDERSON
Chairman, Berkeley Homes
HIRO ASO
Director of Master Projects, John McAslan + Partners
MICHAEL BRYANT
Operations Executive, Canary Wharf Contractors Limited
DR. ARMANDO CARBONELL
Senior Fellow & Chairman of the Department of Planning and Urban Form,
Lincoln Institute of Land Policy
LAURIE CUSINATO
Transit-Rail Business Development Coordinator, AECOM
JULIE DAVIES
Land Use Planning Manager, Crossrail Limited
GROET DE ROEY
Projectregisseur Stadsprojecten, City of Antwerp
ANDREW DORRIAN
South & West Planning Team, Transport for London ( TfL)
ANDRÉ GIBBS
Partner, Argent LLP
VINCENT GOODSTADT
RTPI & ECTP Board Member & Hon. Professor, The University of Manchester
MAARTEN KROES
Associate Director, Network Rail Consulting
ESTHER KURLAND
Director, Urban Design London
PATRICK McLOUGHLIN
Secretary for Transport, The United Kingdom
JOHN McNULTY
Director, John McNulty Integrated Transport / Former Head of TfL
Interchanges Unit
DR. FIONA ORSINI
Curator, Royal Institute of British Architects
MARK PISANO
Senior Fellow, Price School of Public Policy, University of Southern California
NICK SEARL
Partner, Argent LLP
MARTIN SIMMONS
Regional Planner and Former Chief Planning, London Planning Advisory Committee
TIM SMART
Head of Engineering and Operations, HS2 LTD
JUNE TAYLOR
Former Research Associate, Sinstropher Project, University College of London
VALERIE VAN DE VELDE
Coordinator Kennisuitwisseling, City of Antwerp
KOEN VAN LACKER
External Relations - Mobility, B-Holding (Belgian Railways)
PennDesign Planning Studio 2013
professional associates
RICHARD BARONE
Director of Planning, Regional Plan Association
KEVIN CORBETT
Vice President, Strategic Development, AECOM
DOREEN FRASCA
Principal, Frasca & Associates, LLC
DREW GALLOWAY
Chief of Corridor Development, Amtrak
ROGER GOODHILL
Senior Designer, AECOM
MICHAEL KIMMELMAN
Architecture Critic, The New York Times
ROBERT LANE
Senior Fellow for Urban Design, Regional Plan Association
PETRA TODOROVICH MESSICK
Senior Officer of Outreach and Development for the Northeast Corridor, Amtrak
DR. FOSTER NICHOLS
Vice President, Parsons Brinckerhoff
HOWARD PERMUT
President, MTA Metro-North Railroad
ERIC ROTHMAN
President, H R & A Advisors
DAVID SELTZER
Co-Founder, Mercator Advisors, LLC
DAN SCHNED
Senior Planner, Regional Plan Association
KRISTOPHER TAKACS
Associate Director, Skidmore, Owings & Merrill, LLP
CHRIS WARD
Executive Vice President, Dragados USA
JEFF ZUPAN
Senior Fellow, Transportation, Regional Plan Association
The Studio Team additionally offers a special thanks to: LOWRI BANFIELD
Kohn Pedersen Fox Associates, London
KATE DANIEL
Department Coordinator, PennDesign
KAIT ELLIS
Executive Secretary to the Dean, PennDesign
Reimagining Penn Station
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TABLE OF CONTENTS
Source: MCNY
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PennDesign Planning Studio 2013
FRONT MATTER
Studio Team.................................................................................................................................... i Acknowledgments.................................................................................................................iii Executive Summary..................................................................................................................2
INTRODUCTION
Why Penn Station, Why Now?......................................................................................22 History of Penn Station......................................................................................................26 Existing Conditions...............................................................................................................30 Gateway........................................................................................................................................34 Meeting the Challenge.....................................................................................................36
INTERVENTION
Madison Square Garden..................................................................................................42 Transportation & Station Design
Analysis........................................................................................................................44
Design..........................................................................................................................66
Resiliency in Design...........................................................................................90
District Design & Development
IMPLEMENTATION
The Empire Center..............................................................................................96
Designing the Public Realm.......................................................................102
The Midtown West Innovation District..............................................112
Leadership and Financing...........................................................................................130 Funding Scenarios.............................................................................................................139 Phasing.......................................................................................................................................144
C O N C L U S I O N
Next Steps................................................................................................................................152
A P P E N D I X
Supplementary Material.................................................................................................A.1
Reimagining Penn Station
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EXECUTIVE SUMMARY
Tokyo. Antwerp. Beijing. Around the world, truly great train stations are a vital piece of the fabric of great cities. These stations Lofferondon. superior transit access, particularly with the advent of high-speed rail, providing commuters and intercity travelers an ennobling and exhilarating experience each time they enter or exit a train, while also catalyzing real estate development and offering a meeting place and commercial venue for the community. New York has one such station: Grand Central Terminal. But once, it had two.
To some, the original Penn Station, designed by
built from the tracks up to support next-generation
Charles McKim and operated through the first half
high-speed rail. Doing so will transform not only
of the 20th century, was the greatest train station
the immediate district around Penn Station, but the
not only in New York, but in the entire world. Its
economic future of the entire New York region.
demolition and replacement with the existing Penn Station (in the basement below Madison Square
And yet, why now?
Garden) has been cited as the origin of the historic preservation movement, and remains a sore subject
Plans to rebuild or redesign Penn Station have
for New Yorkers to this day.
been in development seemingly since the day the
The proposal that follows will not rebuild the
existing station opened. What makes this proposal
original Penn Station. Instead, this studio seeks
any different?
to do better for New York, constructing a global
2
gateway worthy of McKim’s legacy but grounded
Key to the concept of this studio is the idea that
in 21st century planning and design principles and
the re-imagination of Penn Station is no longer
Reimagining Penn Station
The Design
that will become the identity of the new Penn Station. It will be tall and spacious with a glass and
In order to address such a complex structure, where
steel roof bringing natural light inside. It will also
vertical circulation is as important as horizontal
have visual connections to Level A as well as to the
circulation and where each square foot must be
track and platform level, creating direct visual links
carefully programmed to the needs of multiple
between visitors and passengers with trains.
users, we conceived a sectional approach that begins at the base track and platform level and
The Gateway Hall will include and be surrounded
moves upwards to the city.
by high-end retail and restaurants as well as long distance and high-speed rail information kiosks
TRACK AND PLATFORM We propose two options for future service at Penn Station’s, which differ only in the course of phasing in the improvements and the degree of operations
and other associated conveniences for passengers. New concourses and connectors will help guide pedestrians headed east from Penn Station. STREET LEVEL
throughout construction. Both track and platform plans resolve issues related to safety and security
Currently there is no identity for the station at street
of passengers and add much-needed capacity to
level except for the stairs and escalators that take
Penn Station. The platforms are widened to 30’
passengers below. This plan proposes a grand new
and new egresses with escalators and elevators
hall and train shed that will establish an identity for
are introduced to address challenges of safety and
the new Penn Station. This new building will become
security. 4 new platforms and 8 new tracks - for a
a hub for urban regeneration in Midtown West
total of 8 platforms and 16 tracks - are added under
Manhattan. The plan proposes large public plazas to
Block 780 as part of the Gateway project. As phasing
create a pedestrian realm that will effectively handle
alternatives, the Long Island Rail Road tracks can
large pedestrian flows in and out of Penn Station.
remain as is or be widened to the new standard,
Retail and concessions will bring life to the sidewalks
contingent on LIRR service continuing at Penn
on 33rd and 31st Streets and also offer internal views
Station or the introduction of new MTA services.
overlooking the Main Hall of the station.
CONCOURSE LEVEL
A Comprehensive Vision
On the Level A Concourse, a clear, high-capacity
The plan for Penn Station fundamentally redesigns
circulation system takes passengers from Platform
all four levels of the facility while enhancing
level to Level A and above. North-South Concourses
connections to nearby neighborhoods and districts
do not have any other use than public circulation and
on all sides. It adds much-needed capacity, brings
are kept clean of any visual clutter. These concourses
the station to contemporary safety and security
connect to the existing 33rd Street Connector and a
standards, and creates an iconic new station building
new 31st St. Connector; these act as wide corridors
with an enhanced and “ennobling” experience to
flanked by convenience retail for travelers on the
create a grand gateway.
move. The connectors will link existing subway stops at 7th and 8th Avenue on 33rd Street and new subway stops at 7th and 8th Avenue on 31st Street. New subway stops are designed to add capacity to already overburdened subway stops at 33rd Street while also reducing walking distance for users on the new platforms beneath Block 780. GATEWAY HALL LEVEL Level B will offer the iconic and memorable space
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Reimagining Penn Station
Source: A. Rose, MCNY Collection
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PennDesign Planing Studio 2013
INTRODUCTION Our approach for designing a new Penn Station assumes that “world class cities require world class gateways.” But why Penn Station, why New York, and why now? In order to develop a plan for revitalizing Penn Station, we must first understand why a plan is necessary. The following analyses the station’s historical significance and relationship to the city, existing station and urban conditions, future transportation needs, and international precedents have led us to one overriding conclusion: this is Penn Station and New York’s moment in time. This concept serves as the guiding principle for our vision of a new Penn Station.
Reimagining Penn Station
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IMPERATIVES FOR CREATING A 21ST CENTURY PENN STATION
W
orld class cities require world class gateways. As entrances to a city, train stations serve both a symbolic and prosaic function, acting as the entry point for regular commuters and occasional visitors while also reflecting the grandeur and vision of their cultures. Stations like Antwerp Centraal, Shinagawa Station in Toyko, and St. Pancras and King’s Cross in London are vital parts of the urban fabric, key transportation nodes, and manifestations of the past, present, and future of their cities.
New York City is no different. Grand Central Terminal
a marvel of Beaux Arts design, serving as a model
in Midtown Manhattan is one of the world’s great
for architects around the world. Its demolition as
train stations, offering commuters entering the city
part of a 1960s urban renewal scheme (including
through MetroNorth’s commuter rail service an
the construction of a new Madison Square Garden
ennobling and exhilarating experience. But riders
at street level) was judged a mistake even as it
on Amtrak, New Jersey Transit, or the Long Island
happened, and served as the catalyst for the historic
Rail Road face a different entrance to the city: the
preservation movement in New York and around
overcrowded, difficult to navigate, and aesthetically
the country.
unlovable Pennsylvania Station. Despite the cramped and uninviting experience
22
In the first half of the 20th century, Penn Station
provided by Penn Station today, more people enter
matched and arguably exceeded Grand Central as
the city through the station every day than from
an aesthetic and practical gateway to New York. The
all of the New York-area airports combined. A new
original station, designed by Charles McKim, was
Penn Station has the potential to impact the lives of
PennDesign Planing Studio 2013
Penn Station is the largest Amtrak hub, not only in Northeast Corridor, but across the nation
Source: Michael Hicks
New York City is the lynchpin of the Northeast Megaregion, an area of over 52 million people and $3 trillion in annual economic activity.
Source: PennDesign HSR Studio 2010
Reimagining Penn Station
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TRAJECTORY OF PENN STATION THROUGH HISTORY
T
he original Penn Station was a crowning achievement for the Pennsylvania Railroad. It was not only an architectural landmark but, indeed, a monument to technology. The original station was built at a time of technological innovation - electrified trains. Now over a century past that moment in time, we have reached yet another pivotal moment of innovation in the form of high-speed rail.
McKim’s Penn Station in its prime. For over 50 years, spanning 1910 to 1963, the Neoclassical monument was a prominent feature of New York City’s transportation and cultural identity.
Source: New York Public Library
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PennDesign Planing Studio 2013
CONDITIONS THE CURRENT MANIFESTATION OF PENN STATION
O
ver 600,000 commuters and travellers make their way each day into and out of Penn Station, making it the busiest rail station in the United States. Three operators - Amtrak, Long Island Rail Road, and New Jersey Transit - are forced to share an increasingly crowded and difficult to navigate maze of concourses and a limited number of tracks and platforms. At-capacity conditions mean longer dwell times, potentially unsafe levels of crowding, and inefficient operations. The station requires an intervention to achieve greater capacity, reliability, and resilience.
Pennsylvania Station is located in Midtown West
for development to draw commuters and travelers
Manhattan, bounded by 33rd Street to the north,
west toward new developments like the Hudson
31st Street to the south, 8th Avenue to the west,
Yards.
and 7th Avenue to the east. The Farley Post Office Building faces Madison Square Garden across 8th
Beyond Penn Station’s role in New York City, it also
Avenue.
holds a vital place in a regional and national network of trains that extends both between New Jersey
Between the Penn Station and the Hudson River to
and Long Island and to points north and south
the west, underbuilt blocks fail to capitalize on their
along the Eastern Seaboard and beyond. Sustaining
development potential. A new station could have an
and expanding these links to and through Penn
immediate effect on surrounding real estate values.
Station, will ensure that these corridors continue
Rather than commuters reaching Penn Station and
to accommodate the growing needs of the region
walking east or immediately transferring to subways
throughout the 21st century.
to take them north or south, there is the potential
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PennDesign Planing Studio 2013
In addition, the station itself has been the focus of
The intentions of these plans have been incorporated
recent interest. AECOM’s Penn Station Visioning
into the comprehensive “one station” approach that
Study, the Moynihan Station Project, and the Gateway
we will set forth to improve the physical conditions at
Project are all proposals specific to redeveloping
Penn Station. This approach will allow for significant
Penn Station. AECOM’s Penn Vision study looks
operational improvement that does more than
at architectural and urban design elements from
bring infrastructure up to date and ensures that
the context of improving existing passenger and
Penn Station remains a vibrant transport hub.
train flows. The Moynihan Station Project looks at drawing Penn Station west and providing a gateway
Our proposal improves the passenger experience
experience, as well as much needed circulation
and offers a new level of connectivity by building
between platforms and street level.
upon Penn Station’s influential reach to better serve the populations and the economies in the region.
View of a busy concourse at Penn Station on the eve of Thanksgiving 2008
Source: hello turkey toe via Flickr
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PennDesign Planing Studio 2013
G AT E WAY
TRANSFORMING RAIL CAPACITY BENEATH PENN STATION
T
ransforming Penn Station entails integrating transportation planning and investment well beyond the station’s footprint. Amtrak’s proposal to introduce world-standard high-speed service to America’s Northeast Corridor--currently under environmental review--will require new passenger services and expanded capacity at Penn Station, the lynchpin of the NEC system. Reliable and resilient rail services to and from Penn
Queens. Additional station capacity will be provided
Station are limited by capacity in the tunnels beneath
by the transformation of the existing Farley Post
Penn Station to points east, north, south, and west.
Office facility into a new part of the Penn Station
With train movements at capacity, additional space
complex.
will be required to introduce new transformative rail services through Penn Station.
Gateway is essential to providing the accessibility and reliability required to support commuter,
Amtrak is currently investigating the provision of this
regional, and high-speed rail services throughout
new capacity via its Gateway Program. Gateway will
the Northeast Corridor. The interventions that follow
construct two new Hudson River tunnels, as well
will take Gateway as a starting point for expansion
as expanded and enhanced interlocking, directly
both at the track and platform level and as a basis for
beneath the Penn Station. The Gateway Program
capacity expansion, which will impact the station at
begins in New Jersey at Newark, extending east
the concourse levels.
through Penn Station to the Harold Interlocking in
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Reimagining Penn Station
PROJECT SCOPE MEETING THE CHALLENGES OF REIMAGINING PENN STATION
N
ew York needs a Pennsylvania Station that acts as an urban landmark, a welcoming civic gateway encompassing both the past heritage of the lost station and modern transportation planning practices to meet increasing demands for capacity, efficiency, safety, and station experience. A new station will improve experience for high-speed and commuter rail while simultaneously revitalizing the surrounding community. By 2030, the reimagined station will provide residents and visitors with a distinctive destination and a physical testament to the greatness of New York City embedded within an active urban fabric.
In the space where historic Penn Station once stood,
a plan. Our plan incorporates a vision for the future
modern Penn Station offers a cramped maze of
of rail travel in and out of the station, a real estate
uninviting spaces that do not suit the transportation
program for Midtown West, and a funding, financing,
needs nor the aspirations of those who enter New
and project delivery strategy. This comprehensive
York City through its narrow subterranean corridors.
perspective was developed both through sitespecific analysis in New York City and international
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The course of this studio project included
case studies, which were shaped into a vision with
initial analysis, a review of pressing imperatives,
contributions from a group of experts that included
consultation with experts in the field both in
public officials, academics and accomplished private
the United States and abroad, and finally the
sector consultants. These experts were well versed in
development of a set of key issues, a list of goals, and
the history of attempts to redesign Penn Station, as
PennDesign Planing Studio 2013
Source: M. Moran
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PennDesign Planing Studio 2013
INTERVENTION Having set the parameters of our proposal, the pages that follow outline our vision for a comprehensive transformation of New York Penn Station. This vision contains three key components: the clearance of the existing site and development of a new iconic station guided by historic precedent; reconstruction of track and platform-level infrastructure to alleviate congestion and provide capacity for new highspeed rail services; and a long-term real estate strategy for the area around the station, reimagined as an innovation district catalyzed by Penn Station’s enhanced connectivity to the region and the globe.
Reimagining Penn Station
41
THE GARDEN
RESOLVING THE CONSTRAINTS OF MADISON SQUARE GARDEN
M
adison Square Garden sits atop the current Penn Station, providing tremendous transit access for the facility’s sports and entertainment events. However, this access comes at a price: its precarious position makes renovations difficult and expensive, and the Garden is increasingly seen as a functionally obsolete venue. Madison Square Garden has moved in the past and, given New York’s need for both a monumental train station and a world-class entertainment center, should move again. MSG, completed in 1968, is in its fifth incarnation
The Penn Design studio team analyzed nine sites
on its fourth site. The original MSG was built in
in Manhattan that would be capable of holding an
close proximity to Madison Square Park in 1879 and
arena; all included two contagious blocks where
eventually moved to a site on 8th Avenue at 50th
no residential buildings or major commercial
Street in 1925. The current 20,000 seat arena was
establishments would have to be acquired/
build over Penn Station when the Pennsylvania Rail
demolished.
Road, facing bankruptcy, demolished the aboveground portion of the station and sold the above-
The team narrowed these down to three sites
ground rights to developers.
(shown at right) that are all government owned, in close proximity to public transportation, and on sites
42
In addition to limiting the ability to expand Penn
that could accommodate a large arena. One of these
Station, Madison Square Garden itself is limited by
sites will provide a new Madison Square Garden with
its location; servicing conflicts are frequent, with
the ability to accommodate the New York Knicks
crowded loading docks and curbsides slowing the
and Rangers, large-scale concerts, and other events
flow of materials for events and limiting their scope.
in a state-of-the-art, transit-accessible venue.
Reimagining Penn Station
STATION DESIGN TRANSPORTATION PLANNING, ARCHITECTURE, PUBLIC REALM, AND PRESERVATION
P
hysical design is one of the most important aspects of developing a vision for New Penn Station. Seeing the possibilities for change will help multiple stakeholders as well as the public at large understand the true potential of this project. It will also generate momentum and excitement for developing a new gateway to New York City, and the Northeast megaregion that is both ennobling and exhilarating.
The core of Penn Station’s redesign is to increase
Penn Station has a long and layered history. These
the station’s train capacity, thereby keeping the
incarnations of Penn Station also play a role in the
station for future ridership increases.
proposed design of New Penn Station. A detailed
Currently,
Penn Station operates at capacity and without
historical analysis is included in this section.
expansion, the station will become obsolete. This proposed new design incorporates findings from
Finally, the technical findings from a detailed
an extensive analysis of the site, its history, and its
transportation analysis along with circulation and
existing conditions.
typology recommendations inspired by the original Penn Station lead to the section’s conclusion: a
This section begins with the state of transportation at Penn Station. The projections of future passenger counts, and the required additional train movements will guide the new design. This section then moves on to an architectural analysis of the existing Penn Station in terms of train and people circulation, building program, structure, and user experience.
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Reimagining Penn Station
design concept for New Penn Station.
Existing Service The busiest rail hub in the United States, Penn Station, is currently running at maximum capacity. Three operators use the station proper: Amtrak, MTA Long Island Railroad, and New Jersey Transit, while the MTA Subway operates 6 lines along the
current conditions | transportation east and west edges. Every day during the morning
or a single operator, none of them take an extensive
and evening peak traffic hour, the 60-65 trains that
and comprehensive approach towards increasing
enter and leave the station are forced to jostle for
and balancing capacity for the station as a whole.
an available slot on one of the station’s 21 tracks. A
Our proposal incorporates the findings of these
single delay can have exponential effects, affecting
studies into one cohesive approach to maximize the
the commute schedules of tens of thousands of
benefits to the region.
commuters on an everyday basis. East Side Access, taking place across town in the Additionally, there is a real need for additional train
depths below Grand Central Terminal and under
movements to accommodate growing passenger
the direction of the MTA is planned for completion
demand. Amtrak, the regional and intercity rail
around 2020. This project will serve Long Island
service operating out of Penn Station, has shown
Rail Road by redirecting trains to Grand Central
unprecedented ridership growth over the past
Terminal instead of Penn Station. Once this new
decade.
However, due to capacity constraints
terminal opens at Grand Central and a significant
between Newark and New York City, Amtrak has been
number of trains currently entering Penn Station are
unable to increase frequency of service through this
diverted, there will be a window of opportunity for
central hub. New Jersey Transit has had a 62.5%
the reorganizing and diversifying operations at Penn
increase in ridership over the past two decades with
Station. While the demand for LIRR train operations
the highest percent ridership increases on the lines
at Penn Station will decrease, the new space will
to the north and west of Penn Station. In order to
provide the chance to add new services from other
provide one-seat rides into Penn Station that can
operators into Penn Station. For example, upon the
meet future demand from New Jersey; adjustments,
opening of East Side Access, Metro North Railroad,
reconfigurations, and additional tracks, platforms,
which currently operates all its West-of-Hudson
and tunnels that connects commuters and travelers
services into Grand Central Terminal, has proposed
to Manhattan need to be added to allow for more
rerouting some trains on its Hudson and New Haven
train movements per peak hour to enter the station.
lines into Penn Station via existing active rail track.
The existing tracks at Penn Station are prone to
Gateway, a proposal from Amtrak and Senator Frank
delays and difficult to operate reliably. This is due
Lautenberg (D-NJ) replaces the canceled ARC Tunnel
to the complexity of the operations including LIRR
project that would have opened an additional two
trains entering the station from both the West Side
tracks under the Hudson River, primarily for usage
Yard and Long Island, NJT trains from Sunnyside
by New Jersey Transit. In the Gateway plan, two
yards and New Jersey, and the high number of trains
new tracks, parallel the alignment of the existing
that currently drop off passengers, turn around, and
North River Tunnels under the Hudson, will end
return where they came from.
at a stub terminal between 30th and 31st Streets,
Operator Proposals In considering feasible options and suitable solutions to the ever-growing demands at Penn Station, it is important to consider the contributions of earlier
immediately south of the existing Penn Station. This would allow New Jersey transit to move most of its operations into this new terminal, increasing tunnel and platform space for Amtrak service.
plans for this popular station as well as for rail in the
Amtrak sees Gateway not only as a way to expand
Northeast Corridor. These proposals, one currently
capacity at Penn Station, but also as another step
under construction and the others representing
toward High-speed Rail, as detailed in Amtrak’s Vision
potential future changes to infrastructure and
for the Northeast Corridor and the Federal Railroad
operations, may significantly affect transportation
Administration’s NEC Future Plan. These plans
into and out of Penn Station in the coming decades.
suggest upgrading much of the greater Northeast
However, the proposals only examine the services
Corridor to true (220mph) high-speed rail in order to
PennDesign Planning Studio 2013
45
facilitate economic growth and to encourage riders
Capacity has become a serious concern for Penn
to switch to more energy efficient and convenient
Station. The station will become the choke point
transportation modes.
when introducing new transit services if there is no build. This finding is derived from a series of
Taking these outside proposals into consideration, as
ridership projections on each of the existing services
well as the demands for access at Penn Station and
that currently utilize Penn Station. These projections
projected population growth, our design introduces
use census and ridership data to estimate ridership
significant physical and operational transformations
growth based on population growth in origin
to meet growing transportation demands.
counties for commute trips. For NJT and LIRR
Taking these proposals into consideration, as well as the demands for access at Penn Station and
ridership projections, the Regional Plan Association’s estimates were used.
projected population growth, this report proposes
A combination of Amtrak ridership projections by
significant physical and operational changes to
Metropolitan Statistical Area (MSA) and population
meet future transportation demands.
projections for MSAs in the Northeast Corridor found relatively conservative passenger increases for
Modeling Demand Growing demands for access to the station from the northeast (Queens/Hells Gate Bridge/Connecticut), the southwest (New Jersey), and the north (Empire Connector) require additional tracks that will allow for increased train movements in and out of Penn Station. The most immediate needs are from the southwest, where only two tracks continue under the Hudson, and the north, where only one track on the Empire Connector serves Penn Station.
Peak-Hour Riders
Two sets of projected ridership compared with the existing person and train movements capacity.
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Reimagining Penn Station
Amtrak. Metro North data for the New Haven Line and Hudson Line was used to build a latent demand model for potential ridership to Penn Station if new regional service was introduced. Air shift data included variables such as travel time and trip frequency to calculate the number of passengers that would be drawn to rail with improved service provision. The “Projected Ridership-No Build� does not include the increase brought by the introduction of faster
Investments in new infrastructure—a new track and
An expanded Penn Station at the center of the
platform plan on the current Penn Station site, an
Northeast Corridor will permit significant increases
extension of the tracks to the 780 block to the south,
in frequency of train service to destinations as far
and additional tunnels leading into the station—
south as Virginia and as far north as Massachusetts.
address the immediate demand and alleviate the
These services, which can eventually be expanded
constraints on the current restrictive limits to service.
or rebuilt as true high-speed rail corridors, would be
These service improvements will reduce current
defined by the quantity (frequency), reliability, and
dwell times, increasing the total number of trains per
quality (customer experience) of services offered.
hour. We estimate that an average of 15-20 minute
Upon completion of the new tunnel and track plan,
dwell time per train could be reduced to 5 minutes
new Metropolitan Services will drastically change
per train for commuter service and 8 minutes per
process of travelling between cities along the
train for regional service. Peak hour departures can
greater Northeast Corridor, and will induce sizable
increase from 60-65 to approximately 130 trains per
latent demand, as more drivers and bus-riders
hour, once new tracks are built on the 780 block
would shift to increased, more reliable, and faster rail
directly south of Penn Station, and increase to 170
service.
trains per hour once the tunnels connecting block 780 to Long Island are built.
The Metropolitan Services are defined by a few standard metrics.
First, all routes are under 500
With these physical improvements and with
miles, or 8 hours trip time at current speeds. This
interagency cooperation, through services can also
eliminates needs for full crew changes, sleeping
be introduced. Instead of incoming trains from LIRR
cars, and baggage cars. Second, ticketing could be
and NJT terminating at Penn Station, commuter
streamlined through simplification of pricing and
trains could run from New Haven to Trenton or
reservation policies. Due to the short distance nature
Philadelphia, from Northern New Jersey to Long
of their routes, ticket prices could be standardized
Island, and from Poughkeepsie to Long Island.
by travel class—general, business, and first—as well
This would decrease layover times at Penn Station
as distance.
and provide more one-seat options, stimulating economic growth for the region.
The price of a ticket would not vary based on date of purchase or seats filled, but rather would be set similar to most commuter train operations in the
Phasing plan of train movements
United States, with a base fare and a zone or mileage fare from origin to destination. This would not only make the operation of these services more efficient but would also draw people to choose trains whenever they choose to travel, as last minute fares would be priced the same as fares purchased far in advance. This commuter rail style ticketing system would also allow for easier boarding and alighting processes along the corridor, putting an end to long lines and early arrival requirements. This report suggests implementation of three initial routes, which will serve many of the popular business and leisure travel destinations within 300 miles of New York Penn Station. The first, which will carry the highest level of service, replaces today’s Amtrak Northeast Regional route with travel from Boston, MA to Alexandria, VA. Along its route are 23
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Reimagining Penn Station
stops in 9 states and the District of Columbia. This will include seven points where riders can easily transfer to trains on one of the other Metropolitan Services. The other two services will introduce one seat travel options not currently offered by any rail service. One of these routes will travel from Harrisburg, PA to Boston, MA using the Keystone Corridor from Harrisburg to Philadelphia, the Northeast Corridor from Philadelphia to New Haven, and the Inland Route from New Haven to Boston. The other will link Albany, NY to Ronkonkoma on Long Island using the Empire Service Corridor from Albany to New York and the Long Island Rail Road Main Line from New York to Ronkonkoma. The Harrisburg-Springfield-Boston line will serve up to 25 stops in 5 states, and will be complemented by a variety of existing and new commuter rail services along the same corridors provided by SEPTA, New Jersey Transit, Metro North Railroad, ConnDOT, and the Massachusetts Bay Transit Authority. The Albany-New York-Ronkonkoma Line will serve 11 communities and directly connect Long Island with
Conclusion
a
The narrow platforms and limited available tracks
e
lead to overcrowding, and safety and security
e
concerns especially during peak hours. Our research and projections indicate that these issues are likely to worsen if no action is taken. Any expected growth in ridership will create more congestion and more delays as operational efficiency declines. Our plan considers how to remedy the choke point of Penn Station by introducing additional tunnels and rethinking train movements and pedestrian circulation patterns from the track level up. By making these improvements, the project has region-wide influence on travel patterns. To realize the full potential of Penn Station, the physical design of the tracks, platforms, and the tunnel system that feeds into them must be reworked. Capacity of the station must be balanced with the need to operate reliably and offer an acceptable level of service for passengers.
These improvements will allow
Penn Station to transform into a global gateway, improving the travel experience for all passengers, from daily commuters to world travelers.
the rest of New York State. These three routes serve many of the most populated areas and largest economies in New England and the Mid-Atlantic, and will also help Penn Station
Diagram of a potential intercity Metropolitan Service
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current conditions | architecture Penn Station today faces multiple challenges. The evolution of Penn Station’s site over the last century, from traditional Victorian block development at the turn of the 19th century, to an architectural statement of classic grandeur in 1910, and finally to the modernized circus and tower scheme still seen today.
Around 600,000 people travel through Penn Station each day, reliant on the approximately 60 trains per hour that operate through the station. Many projections indicate that this number will grow by more than 50% in coming years. However, Penn Station is functioning almost at capacity and has no scope for further expansion it unless it undergoes a Pre 1900
fundamental
reconfiguration.
Penn
Station
faces the challenge of meeting the demands of increased transportation infrastructure capacity, while also improving upon experience, security, and programming. While we often look to the historic station for inspiration for the future, we must recognize that not all aspects of the Victorian station worked perfectly. Thus the challenges facing Penn Station today have become opportunities to once more improve upon the ecosystem of transportation in New York City.
1910 - 1963
We must also acknowledge those aspects of the external environment that influence, support, and constrain Penn Station’s growth. The chart on the following page depicts these “immovable entities,” which must be understood as vital elements of the next iteration of Penn Station.
Train Circulation Three different train operators currently use Penn station: Amtrak operates long distance trains while 1963 - Present
Long Island Rail Road (LIRR) and New Jersey Transit (NJT) operate shorter commuter routes. Most LIRR trains use the northernmost platforms, while Amtrak uses the central three to four platforms and NJT uses those at the south end of the level. Although there are no strict platform or track numbers assigned to each operator, the track and platform level generally operates with LIRR distinct and Amtrak and NJT intermingled. Platform sharing helps maximize existing track and platform capacity; however, as platforms are assigned just minutes before departure, it also creates confusion for passengers.
2030
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Reimagining Penn Station
A vertical diagram highlighting immovable entities, or those elements that impact Penn Station that will not be altered by the new plans.
Pedestrian Circulation The tracks and platforms are 44’ below street level.
Combined with a complex signage system and
All passengers must navigate three levels before
the mixing of back-of-house and retail services,
they can reach their train. Levels A (Exit Concourse),
pedestrian circulation at Penn Station is a labyrinth
B (Waiting Hall Level), and C (Street Level) are shared
that even the most regular passengers have a hard
by all passengers regardless of which train service
time navigating.
they use. The original Penn Station also established three However, most regular passengers tend to use a set
levels to reach the tracks and platforms. However,
circulation path or zone of the station corresponding
the original design used visual connectivity as well
to the train service, time of day, and destination.
as transparency between levels to develop a clear
Pedestrian circulation patterns have been drastically altered since the demolition of the historic station in 1963. The following diagrams compare the navigation patterns of the old and existing iterations of Penn Station.
circulation system that was intuitive to even the Lack of visual connectivity and transparency as well
most unfamiliar visitor. The dramatic glass and steel
as unclear circulation make all levels unfriendly for
roof of the train room and the clerestory light of the
passengers and visitors. The Exit Concourse, Central
ticket hall brought natural light into all the spaces,
Concourse and NJ Transit Concourse are not well-
helping people to navigate the facility. This task was
connected and do not form a clear network, which
made similar by the original Penn Station’s lower
would help guide passengers intuitively through the
passenger count, allowing it to function with smaller
circulation system.
concourse and waiting areas.
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h i s t o r i c
Train and Pedestrian Circulation Diagrams
Generous capacity of the old track layout
Identity and clarity for arriving passengers
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Reimagining Penn Station
c o n t e m p o r a r y
Additional vertical circulation, but no increase in the number of tracks
Additional circulation and waiting areas for commuters is functional, but overcrowded
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h i s t o r i c
Conventient transfers for arriving passengers
Grand entrances for departing passengers
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Reimagining Penn Station
c o n t e m p o r a r y
All corridors are below grade and highly crowded
Awkward corner entrances; no public realm, no station identity, and limited retail options
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h i s t o r i c
Through connections, clear distinction between departures and arrivals
c o n t e m p o r a r y
Separation by operators, ad hoc solutions, and absence of overarching vision
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Reimagining Penn Station
Program Current Penn Station is on 4 levels, 3 of which are
square feet in area. It has 2 major north-south
below grade. The bulk of the building program is
concourses, along with a narrow central corridor
across 2 levels.
that terminates in the middle. These connect to the 33rd Street connector, providing access to subways
Level A is the concourse level. It was the exit
located on 7th and 8th Avenues. Apart from public
concourse level in the old Penn Station. It currently
circulation, back end offices, mechanical and
functions as the main circulation level and is 350,260
support services fill the rest of the level.
Level B | 336,350 SF
Level A | 350,260 SF
Level B + A | 686,610 SF
Charting the programming break down for Level B (Main Waiting Hall) and Level A (Concourse).
Existing Space Programming and Allocation Track & Platform Level
Source: HOK / Parsons Brinckerhoff, 2007
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Reimagining Penn Station
LIRR
Level B was the original main waiting hall level and
services, there will be demand for more space to
still has the Amtrak waiting hall. Currently it is 336,350
accommodate their growth. If this demand has to
square feet in floor area. Central circulation space
be met within the existing building footprint, it will
is surrounded by retail along with other support
further detract from the passenger experience.
services and offices. As ridership has grown over the years and more Level C is the street level, but Penn Station is almost
people and trains pass through Penn Station, the
non-existent here; 2 Penn Plaza and Madison
building program has steadily grown as well. An
Square Garden dominate the streetscape. Small,
increase in back end offices, mechanical and service
inconspicuous entrances at the corners take people
areas have been accommodated within the existing
from already crowded sidewalks directly into Penn
building footprint. This has led to an increase in
Station at Level B without a grand station experience.
congestion and resulted in a mix of uses that are not necessarily compatible with each other. Separate
Public circulation is 30% of Level A and B combined.
locations for Amtrak, NJT and LIRR passenger
However, the bulk of space is taken up by mechanical
facilitates and services have lead to inefficiencies
and support services and Amtrak facilities. They
in circulation as well as underutilization of building
both account for 24% each, while NJT and LIRR only
space.
account for 5% each. As ridership grows on these
Existing Level A (Street Level) programming plan.
Source: HOK / Parsons Brinckerhoff, 2007
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Reimagining Penn Station
Structure and Experience As currently constructed, Penn Station is essentially
space, preventing the introduction of skylights to
two separate structures: Madison Square Garden and
enhance the user experience.
2 Penn Plaza atop a subterranean Penn Station. This presents a significant challenge to the expansion of
Structures in the station area between 33rd and 31st
Penn Station. In particular, the columns supporting
Streets and Seventh and Eight Avenues currently
the Garden are a major hindrance to upgrading or
depend on 1162 columns. An efficient structure
expanding tracks and platforms. Overbuilt structures
should need only a quarter of that number.
also hinder expansion of concourse areas and ceiling heights as well as the introduction of natural light.
Mechanical systems are scattered throughout the
Columns supporting the subways under 7th and 8th
with each piecemeal renovation. These outmoded
Avenues present a further challenge, complicating
and inefficient building systems present a formidable
pedestrian circulation. These columns hinder the
challenge to any vision to establish a grand gateway
expansion of concourse areas and clearance of
and world-class user experience at Penn Station.
building, with ad hoc additions being added into
Images of the current structural composition of Penn Station.
Sources: J. Appelar; M. Moran
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P R E S E R V AT I O N HISTORIC STATION ANALYSIS
C
harles McKim’s design of Penn Station was magnificent, and its loss is still felt by many New Yorkers and architecture enthusiasts everywhere. There is much to be learned from the original design, but it is difficult to preserve something that has been lost. Penn Station was a building of its time; to reconstruct it now would be anachronistic and inappropriate. Rather, we can learn from the past and apply these lessons to the design of a new station.
One of the major techniques employed by McKim
McKim used light, materials, style, and volume
is the processional quality of the spaces. Each area
to evoke different feelings in each space. These
clearly indicates its function and leads into the next
components can help to form the basis of the
space. The design separates the traveller from other
vocabulary for the new station in a way that respects
movement paths such as baggage handling and
the original but is still oriented toward the future.
maintenance and allows them to move through the
Using these facets to analyze each space, we used
station unimpeded.
historic plans, sections, photographs, and written source material to understand not only how the
In order to get a better sense of how McKim defined
elements applied to each space, but how they aided
these rooms, we conducted an analysis of the
what did and did not work.*
spaces in the original station. We identified four distinct spaces that each possess unique qualities
Based on this assessment, we extracted the most
that served the specific purposes of each node of
fundamental aspects of the historic station that
the historic station.
served as the crux of its character. These have been restated as architectural design princples that allow
The floor plan and section located on the opposite page display McKim’s historic station design, and the distinct articulation of space.
These rooms (seen on the right) are identified as:
future design to respect and recall the historical
(1) the concourse, where passengers accessed the
identity of Penn Station.
tracks; (2) the main waiting hall, which served as the grand Neo-Classical interior space; (3) the vestibule, which served as a transitional space between the transit and shopping spaces of the station; and (4) the arcade - the station’s true entrance from 7th Avenue - an indoor avenue of shops. * Full analysis located in Appendix
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Reimagining Penn Station
STATION DESIGN ENVISIONING A NEW PENN STATION
D
E S I G N OBJECTIVES
TRANSPORTATION
There are three objectives related to transportation. First, the station creates a functional train station that is built to modern safety and security standards. Second, it is designed to have sufficient capacity and interoperability between various train services. Third, the design transforms Penn Station into a hub that integrates regional transit into one transportation system. It connects seamlessly multiple transit modes including long distance / high-speed rail, metropolitan rail, commuter trains, subways, buses, taxis, bikes and pedestrians.
URBAN DESIGN
The Penn Station Master Plan transforms the existing Penn Station into an active urban center in Midtown West Manhattan. It is designed as part of a larger master plan that encourages mixed-use, high-rise, high-density development around the station as well as overbuild at strategic locations. Significant public space will front the new Penn Station, creating a pedestrian realm that will serve as an area-wide amenity.
ARCHITECTURE
The design for new Penn station not only resolves issues related to transportation but creates a grand gateway which will be an ennobling and exhilarating experience to any user of the station. The design brings in the public realm to create grand spaces inside the station through the provision of retail and other amenities. This plan strives to recreate the spirit of the original Penn Station as a grand indoor public room, but expresses it in contemporary language.
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Reimagining Penn Station
T
R A C K + PLATFORM
capacity improvements The layout of platforms and tracks of a train station
Among the 8 platforms, the three platforms in the
impacts the available capacity, the boarding
north zone are 1050 feet long. They will serve the
experience of passengers, and user safety in case of
12-car commuter trains of Long Island Rail Road.
emergency. The existing platforms at Penn Station
The two platforms in the middle are the longest
have an average width of 20 feet and some parts of
platforms with 1350 feet, which could be used for
the platforms are as narrow as 14 feet. The narrow
high-speed rail service. The other 2 platforms are
width of platforms has caused serious problems in
1200 feet; they are planned for Amtrak intercity
terms of passenger circulation and loading time.
service. The southernmost platform in Penn Station maybe used for Empire Service.
The envisioned track and platform plan resolves issues related to safety and security of passengers
The first option is an ideal scenario where all platforms
and adds much needed capacity to Penn Station.
are widened to 30’ and phased in such a manner
The platforms are widened to 30’ and new egresses
that the station can remain operational throughout.
with escalators and elevators are introduced to
The second option maintains the existing platforms
address challenges of safety and security. Four new
9, 10, and 11 as they are. These are mostly used by
platforms and eight new tracks - for a total of 8
Long Island Rail Road, utilizing the East Side tunnel
platforms and 16 tracks - are added under Block 780
under 33rd Street. However, all platforms south of
as part of the Gateway project.
platform 9 are widened to 30’.
The station operates mostly in three zones related
Option 2 has the potential to be upgraded later, with
to train services as well as tracks and platforms that
platforms 9, 10, and 11 widened to conform with
are served by East Side tunnels under 32nd and 33rd
contemporary standards. Hence, Option 2 can be
Streets. Two options are designed as part of the new
viewed as a final build-out, with Option 1 acting as
track and platform plan.
a phasing stage.
Plan for the existing track and platform level.
EXISTING
Opposite Page: includes plans for the two proposed strategies for redesigning the transportation infrastructure of Penn Station.
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Reimagining Penn Station
1 OPTION 2 OPTION
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C
ONCOURSE L E V E L A
circulation & connectivity Level A has been designed as a concourse level.
on 30th and 31st. These connectors act as wide
Four
designed
corridors with commuter-targeted (“grab and go”)
based on current locations of the Exit Concourse,
retail. These connectors connect existing subway
Central Corridor, NJ Transit Concourse, and West
stops at 7th and 8th Avenue on 34th Street and new
End Concourse in the Farley Building. These
subway stops at 7th and 8th Avenues on 30th Street.
concourses connect to East-West connectors under
New subway stops are designed to add capacity
30th, 31st, and 33rd Streets. Four concourses and
and relieve already congested subway stops at 34th
three connectors form a clear grid that enhances
Street The new subway stops also help to reduce
connectivity and access and makes the circulation
walk times for commuters from new platforms
system intuitive to passengers.
beneath Block 780.
There is a clear circulation system that takes
The central concourse at level A also has a waiting
passengers from Platform level to Level A and above.
area for long distance travelers, which is directly
North-South Concourses do not have any other use
connected to the Main Hall on Level B. The east
than public circulation and are kept clear of any
side and west side concourses will become primary
visual clutter. These concourses connect to the
circulation routes for commuters connecting to
existing 33rd Street connector and new connectors
33rd St. and 31st St. connectors. The egress stairs
North–South
Axon (left) and plan (above) for a new Concourse Level.
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Reimagining Penn Station
concourses
are
and escalators are designed so that northern and
and future train operators.
southern zone platforms, which would be primarily Long Island Rail Road and NJ Transit operation zone
West and East concourses are extended through
respectively, will be directed towards streets and
the basement of One Penn Plaza and open into
concourses to facilitate quicker movement towards
34th Street at mid-block location between 7th and
subway stops under 7th and 8th Avenue.
8th Avenue. This will help in seamlessly connecting trains, subways and 34th St. Select Bus Service (SBS).
The egress stairs and escalators for the central zone, which would be primarily long distance and high-
There are many cutouts at level A as well as Level
speed rail, are directed towards central concourse
B that help create a sense of high space and bring
and main hall on Level B. However, it is possible to
natural light into the station via skylights on the glass
change direction at concourses on Level A, making
and steel roof. This will also create visual connectivity,
the station inter-operable between various current
helping circulation to be more intuitive.
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M
AIN HALL L E V E L B
user experience & access Level B is the waiting level. This would be a
The main hall will be flanked by high-end retail and
memorable space that would become the identity
restaurants as well as long distance and high-speed
of New Penn Station. It will be high with a glass and
rail passenger facilities. The main hall will have more
steel roof that brings natural light into the interior
retail than any other level, allowing for continuous
of the station. It will also have visual connectivity to
breadth of retail.
Level A as well as track and platform level, creating a direct visual connection between visitors and
The waiting level will also include ticketing and
passengers at the platform level.
information spaces and waiting areas. Additionally, an existing 33rd Street concourse connecting 7th
The importance of a direct visual connection
Avenue and Herald Square, which was previously
between Level B and other levels of the station
closed off, will be reopened to create more space
cannot be understated. Allowing visitors to view
in the interior of the station and allow for greater
the platform level from upper levels will allow
underground
passengers to wait for their trains without standing
concourse will be built below 31st Street, extending
at the platform level. This increases the efficiency
to Herald Square. Increasing connectivity to Herald
of the station by removing standing passengers
Square will provide those that want to avoid the
from the platform (as well as space in critical areas),
stress of walking through the midtown area a
improving circulation, and decreasing dwell times.
shortcut. This will also signify a marked improvement
Axon (left) and plan (above) for a new Main Hall Level.
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Reimagining Penn Station
mobility.
Furthermore,
a
similar
in pedestrian flows from the station to surrounding
The experience of descending into the main hall
transportation hubs and connections.
through a carefully designed set of wide stairs is remarkably different from the experience of
Finally, there will be grand wide stairs and escalators
descending into a subway station with very little
connecting the Main Hall to Street Level (Level
space to accommodate multiple passengers. The
C). These stairs will connect public plazas and
purpose of this design is to further the feeling of a
entrances at 7th and 8th Avenue as well as mid-
welcoming grand entrance that extends itself from
block entrances on 31st and 33rd Street. This type of
the street level down into the waiting level in a
entrance is reflective of the historical Penn Station,
continuous and welcoming procession that shows
where passengers entered the entrance through a
visitors a way to enter into the heart of the city.
set of wide stairs and immediately descended to a main hall with a grand open space.
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S
T R E E T L E V E L C
identity & public realm The public realm design for a new Penn Station
it on 7th and 8th Avenues. A mid-block public
envisions a dramatic transformation from existing
passage is designed from 30th to 31st Street to
conditions. This plan proposes a grand new head
create an alternate pedestrian circulation path that
house and train shed that will become the identity
opens into a midblock entrance to the main Penn
for new Penn Station, serving as a hub for urban
Station building.
regeneration in Midtown West Manhattan. The plan proposes large public pedestrian plazas to establish
The plaza on 8th Avenue will be more civic in scale.
a public realm that will effectively handle large
The grand stairs of the Farley Post Office will be used
pedestrian flows in and out of Penn Station.
as a public space that flows across 8th Avenue into a new at-grade plaza that connects public entrances
These plazas are designed along 7th and 8th
through a grand canopy into Penn Station. 8th
Avenues between 30th and 33rd Streets. The Penn
Avenue between 30th and 33rd Streets will be
South facility will also has pedestrian plazas fronting
redesigned with cobblestone pavement and other
Axon (left) and plan (above) for Penn Station at Street Level.
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Reimagining Penn Station
traffic calming measures to prioritize pedestrians.
The new skyscraper would act as a modern head
The plazas will also introduce soft landscaping
house, giving definitive identity for Penn Station in
and green infrastructure elements, along with
the New York skyline. A similar skyscraper is planned
programmed hardscape areas with cafes and
on top of the Farley West Extension, maintaining the
restaurants. There will be a direct connection to High
historic building and faรงade at street level.
Line Park from the 8th Avenue Plaza by extending the High Line along 30th Street. An additional grand
31st and 33rd Streets will be used primarily as
canopy and public entrances on 7th Avenue will
taxiways, with the mid-block entrances between 7th
lead into retail space below the new skyscraper at
and 8th Avenue clearly marked as taxi priority zones.
the current location of 2 Penn Plaza.
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exterior | 31st street & 8th avenue
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Reimagining Penn Station
interior | main gateway hall
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Reimagining Penn Station
New Station Drawings
Renderings EXTERIOR | 31st Street & 8th Avenue The exterior vantage shows the new station’s interaction with the public realm as it meets 31st Street and 8th Avenue. It is designed to facilitate both the everyday traffic and pedestrian use patterns, as well as support special events and festivals. The purpose is to emphasize the fact that our design is not solely for the station, but also for the entirety of Midtown West. The new plaza is modern and yet historic; heritage is honored in retaining the visual correlation between the station and the Farley Building as McKim intended. The grand colonnade and stairs of historic Farley building thus flow into cobblestone 8th Avenue between 31st and 33rd Street, incorporating traffic calming techniques to prioritize pedestrian experience and safety. This space flows into a pedestrian plaza fronting the entrance of New Penn Station. New soft landscape as well as programmed hardscape fronts the station. The grand canopy will flows into the foyer and the grand interior of new Penn Station Main Gateway Hall.
INTERIOR | Main Gateway Hall The interior rendering depicts the perspective from inside the new Main Gateway Hall, looking to the west. Magnificent neoclassical colonnade of Farley Building can be seen from the inside the Station. People standing at the entrance and gallery space will experience the monumentalism inherent in the new design. The Main Gateway Hall itself is populated with new retail, amenities, information, and historic tokens; and unlike its Gilded Age predecessor, the new area includes seating to provide users with a place to actually wait. Natural light and visual understanding are conducted downward from the new roof and open wells, lighting and enlivening the reclaimed space. It is through this glass roof that the new Penn Station announces itself as a true “gateway,” establishing not only the connection for passengers out into the city but for the City of New York to reach into the station.
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Reimagining Penn Station
Sections LONGITUDINAL
Main Gateway Hall
Longitudinal sections are used show the relationship
The longitudinal section through the Main Gateway
between the various levels and how they connect to
Hall demonstrates how the public realm flows into
the streets. They also illustrate how the circulation
the station. The pedestrian plazas on 7th Ave. and
system navigates various levels punctuated by
8th Ave. flow into the entrance foyers and through
grand interior spaces.
the grand stairs into the Main Hall on Level B.
Section depicting the train shed’s nexus - the Main Hall.
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Circulation Patterns
the west extension of the Farley Building. These skyscrapers would become the identity of Penn
The remaining two longitudinal sections show
Station in New York skyline.
the two movement patterns through the station. Circulation along the long distance platforms is
CROSS SECTIONS
directed towards the main hall where there will be high-end retail and long distance passenger
Cross sections (located on the following two pages)
facilities. The Commuter section is designed such
show the relationship of the roof structure and
that the circulation takes commuters to the subway
the interior spaces. The 3-vaulted wave roof is a
stops and street level on 7th and 8th Avenues.
contemporary interpretation of traditional Victorian barrel vaulted train shed. It expresses the smaller
These sections also show the possibility of overbuild
spaces at the entrance as well as the various platform
in the location of current 2 Penn Plaza and over
zones that the station operates in.
Section depicting the circulation of high-speed commuter train user movement throughout the station.
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Reimagining Penn Station
Concourse
Main Gateway Hall
The concourse section also illustrates the retail
The cross section through main hall has a large
strategy. Retail is designed on three levels: shopping
span single vaulted roof. This expresses the large
on level A is oriented towards 33rd and 31st Street
space that it houses - the Main Hall. It also shows the
connectors and is geared towards commuters; retail
midblock entrances on 31st and 33rd Streets, and
on Level B fronts the main hall and is high-end retail;
how they connect through the grand stairs to the
on the street level, shops front the sidewalks of 33rd
Main Gateway Hall on Level B.
and 31st Streets.
Section depicting the circulation of high-speed rail and long distance ridership user movement throughout the station.
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Cross section of the new station, cutting through at the Concourse section.
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Reimagining Penn Station
Cross section of the new station, cutting through at the Main Hall.
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Irradiance Diagrams*
The conclusion that can be drawn from these studies is that with this design, a fair amount of light
The following are irradiance studies that show the
does enter the station, including the lower Level
amount of natural light that enters the different
A and Platform levels. Although artificial lighting is
levels of the station. The purpose of this set of
still necessary, a fair amount of light does enter the
diagrams is to analyze whether the voids that we
station, including the platform level, during the
designed actually serve to bring natural light into
spring, summer and autumn seasons.
the interior of the station.
Sketches depicting the filtration of natural light down from the roof through each of the levels of the new station in early spring.
Level C - Street Level
Level B - Main Gateway Level
Level A - Concourse Level
Track & Platform Level * Full irradiance included in Appendix
Conclusion
88
The preceding design for a new Penn Station
City. Finally, it is designed as part of larger urban
addresses three major issues. First, it creates a
design master plan with added public space that
modern train station with contemporary safety
includes pedestrian realm around the station.
and security standards. It is designed for adequate
This design will help transform Penn Station not
capacity to handle multiple train operators. The
only into a seamlessly connected intermodal
design also creates a grand gateway to New York
transportation hub but also an active urban center.
Reimagining Penn Station
Phasing
P 1 G AT E W AY & FA R L E Y
This phase will essentially prepare the area for Phase II. Included is the completion
of the Farley Post Office renovation to be temporarily used as a primary train hall, the building of the Gateway Tunnel project to a new station underneath block 780, to be called Penn South, and the extension of new passageways to circulate traffic around the current Penn Station site. Meanwhile, necessary relocation of Madison Square Garden will occur, with movement of offices and demolition of Two Penn Center for rebuild.
P 2 PENN
S TAT I O N R E B U I L D
The most significant phase of the project will span four stages. During this process, sets
of four tracks and two platforms at Penn Station will be closed and rebuilt from basement to street level. This will include the widening of sub-basements and construction of new columns and floors overhead. Resulting from this phase will be the completion of the new Penn Station Site with wider platforms and a new head house. At this point, two new tracks will be built to connect the Empire Connector to the northern tracks near 33rd Street.
P 3 EAST
RIVER TUNNELS
Following the opening of the new Penn Station, the stub end tracks at the Penn South
Station will be continued eastward under the Hudson River, providing through service options for these tracks.
Mapping the phases on the site of future Penn Station development.
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RESILIENCE
SECURITY AND SUSTAINABILITY IN A 21ST CENTURY WORLD
A
s the financial and cultural capital of the United States, New York will remain a target of domestic and international threats throughout the 21st century. The city also lies precariously on a rising Atlantic seaboard; as the planet warms, New York cannot move forward without mitigating the risks of cataclysmic climate change. Each of these threats will be considered in the construction of a new Penn Station.
Security
Fortunately, Penn Station has yet to have a major
Security concerns at Penn Station are well
witnessed several minor fires, primarily at the track
documented. In the event of an emergency, an
and platform level, with at least six such incidents
orderly evacuation of the facility would be slowed
reported between 1991 and 2012.
disaster. However, in recent years, Penn Station has
by ingress and egress points that are not sufficient
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to accommodate crowds. Additionally, evacuation
These incidents suggest Penn Station is vulnerable to
of passengers from trains on the track platform level
more fires in the future. The timing of an emergency
would be constrained by narrow platforms and
should also be considered; the ability to evacuate
inadequate vertical circulation points. Insufficient
Penn Station in the event of such an incident,
emergency evacuation points would also hamper
particularly at the track and platform level, would be
the ability of first-responders to reach disaster points
severely compromised if the incident were to occur
and assist wounded inside the station.
during peak hours.
Reimagining Penn Station
DISTRICT DESIGN REAL ESTATE, PUBLIC REALM, AND URBAN DEVELOPMENT
R
eimagining a new Penn Station goes beyond simply building a new train station. To achieve all of its potential, it will be necessary to transform the outmoded station into a transit hub for the entire megapolitan and Northeast transportation network. The process will also build on the momentum created by a new station to transform the surrounding district of New York City, making the new Penn Station and the surrounding area a gateway to the city and the region.
96
It is crucial that a cohesive vision and prudent policies
real estate value to the west side of Manhattan and
are aligned before this transition can be made. The
will match with other high profile (re)development
City, the State of New York, public stakeholders, and
projects planned or in the works. A coordinated
private enterprises need to work together to identify
development strategy will focus on reinvesting in
city building opportunities that promote mixed-use,
the new Empire Center to lay the foundation for
walkable, and transit prioritized development to
future private investment and development in the
create a new “Empire Center” around Penn Station.
surrounding neighborhoods.
Currently, the area immediately adjacent to Penn
The reimagining of Midtown West Manhattan
Station has considerably lower property values
as an innovation district, comprised of four
compared to those properties within the same
neighborhoods that are linked together through
proximity to Grand Central Terminal, another
the Penn Station-Empire Center, will build on the
important, but less intensely used, transit hub in
area’s existing strengths to catalyze
New York City. As occurred in the area around Grand
development for more livable neighborhoods and a
Central Terminal after its renovation, it is expected
globally competitive innovation-based economy for
that redeveloping Penn Station will add considerable
the entire city and megapolitan region.
Reimagining Penn Station
sustainable
The Empire Center
well situated for start-ups, tech businesses, and
The district around a new and expanded Penn
day move in closer to Penn Station upon company
Station can be reimagined as the Empire Center, a new focal point for New York’s future growth and development. A redeveloped Penn Station will catalyze development throughout New York City and the region, but its impact will be most closely felt in the seven blocks immediately surrounding the station, on an area larger than the Rockefeller Center. By enhancing transit access to the station, improving
supportive service-based industries that can one growth.
In addition, the redevelopment of the
area into the Empire Center will have new public open space, as well as residential, retail, and hotel opportunities. The goal of these proposals is not to cite specific businesses or cultural amenities, but to provide a blueprint for future development. Site Planning for Empire Center & Midtown West
the pedestrian experience around the station, and
In addition to rebuilding Penn Station as a new
extending the High Line into the area, this proposal
gateway to the city and region, it is important to
will transform the existing Penn Station District from
envision and develop plans to improve the public
an under-utilized space comprised of aging office
realm within Midtown West Manhattan.
towers, low grade retail, and parking garages into a
importance of active places are just as necessary
highly desirable magnet for development.
outside in the surrounding neighborhood as in the
The
station itself. These blocks will be redeveloped as a new Class A business hub joined to Class B and C space,
The layout of the proposed towers is a contemporary
Source: Google Earth
The areas immediately surrounding Penn Station will be reimagined into the Empire Center.
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South, fully integrating transit access with new
environment similar in character to the proposal for
development.
Midtown East, the financial district, and Battery Park City. Rents are forecasted to double, commanding
Moreover, this complex of towers over Penn South
higher prices on par with Times Square and Grand
and the western annex of the Farley Building could
Central Terminal.
also be home to an “innovation hub,� a forum of ideas and a place for cross-disciplinary collaboration
A second element of the site plan is the inclusion
for the burgeoning technology industry. Further, this
of approximately 180,000 square feet of public
hub would serve as the epicenter of a Midtown West
open-space as plazas or prioritized pedestrian areas
Innovation District. Finally, the layout and program
that will open up the district not only for aesthetic
of the Empire Center will exponentially increase retail
purposes, but also will increase pedestrian capacity
(508,000 SF), office (10,400,000 SF), hotel (170,000
and comfort.
SF), and residential (550,000 SF) square footage to
north and east end of the Penn Station will also
capitalize on the critical mass of activity that the new
accommodate increased foot traffic to enhance the
Penn Station will generate.
pedestrian environment and the retail experience.
There are four proposed building typologies that will
A third key component of this plan is to extend the
allow for new commercial and residential-oriented
High Line eastward, avoiding the residential block
mixed uses. All building typologies have ground
on 30th Street and terminating at the Southwest
floor retail; however there are various combinations
Penn Station Plaza. Extending the High Line in this
of uses to create a vibrant district that is flexible to
manner provides a direct pedestrian connection
satisfy market demands. The Empire Center will be
between the new Penn Station and Midtown West.
a premier mixed-use destination with Class A offices
An added benefit to having the High Line turn north
and retail, as well as premium hotels creating an
on 9th Avenue will be the corner vistas, which will
Midtown West Master Plan: The Midtown West Master Plan aligns the new development of the Empire Center with the transportation connections of New York City.
The extended sidewalks on the
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Existing Perspective | 30th Street and 9th Avenue
The High Line is a symbol of urban regeneration and has served as a catalyst for reviving Manhattan’s West Side.
Proposed Perspective | 30th Street and 9th Avenue
The High Line is a critical piece of public realm
some parking will be retained below the viaducts,
infrastructure that brings an element of nature
much of the space will house boutique and chain
and green landscapes into an area lacking in
retail shops as well as portions of the Empire Center’s
tree cover. The wide boulevards along 30th
Innovation Center. Larger sidewalks will create a
Street and the underutilized parcels of real estate
friendly, plaza-like feel on the ground floor, and
immediately north of the street make this area
complete a pedestrianized connection between
a prime location for the High Line extension.
the Empire Center and the High Line.
Currently, the intersection at 30th Street and 9th
Existing issues on 30th Street include wide cartways
Avenue serves as parking for large coach buses.
and narrow sidewalks, and a parking lot at the
The extension of the High Line will call for new
intersection of 9th Avenue; these impose a gap
construction of the elevated viaducts.
in potentially pleasurable pedestrian experience.
Although
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Existing Perspective | 31st Street and 8th Avenue
Seamlessly integrating the High Line into a pedestrian plaza at 31st Street and 8th Avenue creates a new node of activity in the Empire Center.
Proposed Perspective | 31st Street and 8th Avenue
Extending the High Line into the Empire Center
The High Line extension will cover about half
will help close this gap, furthering economic
of the sidewalk and a parking lane, limiting the
development and encourage more foot traffic to the
impact on existing traffic.
proposed developments. The High Line extension
spaces on both sides of the street and the High
will terminate at a public plaza at the southwest
Line will transform this area into an attractive
corner of 31st Street and 8th Avenue, directly across
locus
of
activity,
drawing
The enlarged open
competitive
retail.
from the Farley Post Office. This site will also be the location of a new tower development, replacing
By removing two cartways, extending the sidewalks,
its current use as a parking lot and underutilized
and including a protected bike lane, a new
retail suite. Dramatic stairs will descend into the
active transportation corridor is created that will
plaza diagonally from the new Penn Station.
complement new businesses in the Empire Center.
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Existing Perspective | 8th Avenue
Prioritizing the pedestrian along 8th Avenue by extending the sidewalks and texturizing the pavement will help bridge the connection between Penn Station and the Farley Post Office building.
Proposed Perspective | 8th Avenue
Today, a busy six-lane thoroughfare - 8th Avenue -
the width of the sidewalks three feet on both sides
sits between Madison Square Garden and the Farley
of the street, increasing the setback at Penn Station,
Post Office building. However, the renovation of
and replacing the concrete moat in front of the
both Farley and Penn Stationand the redevelopment
Farley Post Office with an open plaza that welcomes
will require improved pedestrian connections across
people into the building. Additionally, cobblestones
8th Avenue between these two halves of the station.
will texturize the pavement on the cartways to act as a minimally invasive traffic calming device,
To achieve this goal, a new open public plaza, still open
signaling to drivers to be cautious of pedestrians.
to automobile traffic, will be created by extending
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Existing Perspective | 33rd Street and 7th Avenue
Widened sidewalks and curb bump outs adjacent to a new retail center will improve the pedestrian experience at 33rd Street and 7th Avenue.
Proposed Perspective | 33rd Street and 7th Avenue
34th Street and Penn Station receive some of the
will help to mitigate the
highest levels of foot traffic in New York City. The
faced
by
pedestrians
risk of accidents on
these
streets.
34th Street corridor and the intersection at 33rd Street and 7th Avenue have such high pedestrian
Additionally, a new tower, plaza, and retail
loads that people often must step into the street
opportunities at the intersection of 33rd Street
when
and 7th Avenue will further increase pedestrian
the
sidewalk
becomes
too
crowded.
comfort
and
enhance
the
public
realm.
Extending the sidewalk width while reducing the width of the loading and travel lanes
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Existing Perspective | 34th Street
An efficient and safe Select Bus Service System will reduce the on street congestion near Penn Station.
Proposed Perspective | 34th Street
34th Street will continue to act as a major corridor
Furthermore, traffic calming bump-outs can be used
connecting Penn Station to public transportation.
as SBS loading stations, which will further reduce the
The new Select Bus Service (SBS) on 34th Street
risk of accidents.
has already been implemented, alleviating traffic congestion in the area. Transforming one traffic lane
The 34th SBS line will be complimented by an Empire
into a shared bus and SBS lane will help efficiently
Center SBS loop that connects all neighborhoods of
move more people across the city.
Midtown West.
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The Midtown West Innovation District What is the Midtown West Innovation District?
The Empire Center: Innovation District’s Nexus
The transformed Penn Station and surrounding
Located
Empire Center development will become the hub
Penn Station, the Empire Center’s extensive
of a proposed Midtown West Manhattan Innovation
redevelopment, including the sixteen new towers,
District. The Innovation District will integrate the
ten pedestrian plazas, and six new greenways will
tech industry in Midtown South and Chelsea, the
act as the bridge between the four surrounding
creative and lodging firms in the Garment Center,
neighborhoods. The Center will create the essential
and the media and entertainment companies in
network link between the region and the Innovation
Times Square. The ability for various industries to
District via seamless interchanges between Penn
reach across disciplines will allow a confluence of
Station and Midtown West.
immediately
adjacent
to
the
new
new ideas and talents spurring innovations in all Located on the western half of the Farley Post
participating sectors.
Office building, the physical representation of the The Innovation District will be enhanced through
Innovation District is the Innovation Center, a 1.1
policies that nurture startup firms and guide capital
million square foot area that will serve as Midtown
investments, acting as an accelerator and incubator
West’s entrepreneurial hub. It will contain applied
for entrepreneurial businesses in all of those sectors.
research facilities, and it will create opportunities to exchange and showcase ideas, provide educational
A Midtown West Innovation District will build upon
courses and trainings, hold workshops and demo
existing neighborhood strengths and balance the
events, as well as offer co-working spaces for startups.
energy and activity across the district in order to
It aims to foster an entrepreneurial community and
advance progressive, idea-intense businesses to
forge new partnerships through collaboration,
compete in and contribute to a globalized economy.
networking, and support. The center will benefit
The Innovation District is the result of enhanced
from
transportation and public realm investments - a
improvements enhancing travel from across the
nascent area nurturing growing businesses to focus
region, and indeed from across the whole Northeast
on inventive solutions that will have both region-
megaregion.
substantial
transportation
infrastructure
wide and global benefits. What are the boundaries of the Innovation district?
The Innovation District Neighborhoods Each neighborhood adjacent to the Empire Center
The Innovation District is composed of the four
presents distinct locational opportunities, resources,
neighborhoods that surround Penn Station and
and
the Empire Center.
industries.
The area is defined by an
advantages
for
establishing
innovation
approximate 15-minute walk in all directions from Penn Station. The northern boundary consists of 41st
The Flatiron District already has more than 300
and 42nd Streets and includes the Port Authority Bus
start-ups and a host of venture capital firms making
Terminal and Bryant Park. The eastern boundary runs
it the epicenter of New York’s high-tech corridor.
along 5th Avenue and includes Madison Square
According to the Flatiron/23rd Street Partnership
Park. The southern boundary is defined by 23rd
Business Improvement District, 11 of the 30 most
Street and the western boundary is the Hudson river.
valuable startups in the NYC are located in or near
The Innovation District is roughly represented by Zip
the Flatiron District at a total estimated value of $3
codes 10001 and 10018 and is informally known as
billion. This BID highlights and promotes the prime
Midtown West in the real estate marketplace.
real estate that is favorable to the needs of small startup firms. The relatively small building footprints, open floor plans, high ceilings, and affordable rents of the office buildings centered on Fifth Avenue
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Reimagining Penn Station
and Broadway provide workspaces that are more
Company to provide a free, public Wi-Fi network,
conducive to thriving creative industries. Nearly one-
which helps to bring in startup companies and
quarter of the 200 Class B office buildings are leased
boosts the tech sector in the area.
to technology, marketing, and creative design firms. In addition to shorter and more flexible lease terms,
Additionally, the presence of more established tech
asking rents range from $22 to $57 per square foot,
companies like Google and InterActiveCorp (IAC) has
and are comparatively lower than that of central
contributed to the growth of the tech sector in West
Midtown.
Chelsea. Indeed, IAC, which owns 60 e-commerce brands and other digital businesses, has opened
Nascent businesses will likely intensify the digital
its new headquarters on 11th Avenue that not only
media and e-commerce clusters formed in the
houses its employees, but also provides a venue to
Flatiron District. Availability of business incubators
encourage collaboration and networking. Google
and venture capital firms, proximity to other
acquired 111 8th Avenue in 2010, a 15-story, 3-million
innovation hubs, and access to other resources will
square foot historic building with 14.5-foot ceiling
continue to position Flatiron as the stronghold of
heights, to become its New York City headquarters
New York’s tech hot spot. Companies like Tumblr
and accommodate its east coast expansion. Its full-
and Gilt Groupe are based in the Flatiron District
block sized floor plates, public transport accessibility,
and have expanded amidst the burgeoning tech
proximity to advertising firms, and connectivity to
industry. In addition, eBay’s technology center,
its business users make this building well suited to
which includes workspace for startups, is planned
Google’s needs. This and other companies recognize
for development.
the need to reach out and deepen a growing tech talent pool in New York from West Chelsea.
The strength of the Flatiron District lies in part on the presence of specialized facilities which provide
The Garment District has expended substantial
support for startup formation. One such example
efforts to preserve its legacy as the center of
is General Assembly, an incubator that offers co-
the fashion and garment industry. The Special
working space and educational programs for
Garment Center District has sought to create a vital
design and technology entrepreneurs. It fosters
entrepreneurial research and development hub for
collaboration and exchange of ideas and nurtures
creative production and fashion innovation that
entrepreneurial activity through the provision of
builds upon a network of designers, factories, and
affordable workspace, facilities, and classes. Various
suppliers. By 2011, fashion-related employment
corporate organizations like Skype and investment
had seen steady growth, accounting for 48.9% of all
firms have sponsored the business incubator, but
jobs within this neighborhood. It is expected that
the city’s involvement has been the most critical.
traditional manufacturing employment will continue
New York City Economic Development Corp.
to decline here, but at a slower rate compared to the
granted $200,000 for the programming as part of
rest of Manhattan. The reduction in manufacturing
the city’s initiative to grow its tech industry.
employment is making possible the growth in non-fashion related businesses such as hotels and
The
West
Chelsea
neighborhood
provides
attractions that incentivize startups and young
food establishments, as well as creative industries, including film, visual arts and photo studios.
employees to relocate in the neighborhood. Public
114
open spaces, such as the Hudson River Park, the
The changing dynamics of the Garment District’s
High Line, Chelsea Piers and the Chelsea Market,
economy is clearly reflected in the area’s diversified
have revitalized the area into a prime spot for dining
commercial real estate activity. Drawn to public
and shopping. These amenities are also helping
transit access, cheaper rents, and flexible office
the neighborhood grow into a popular residential
spaces, it is estimated that over 100 digital and
neighborhood. The area is also largely synonymous
tech-based startups have based themselves in this
with creative industries and lifestyles that have lured
area. With approximately 88% of the Fashion Center
emerging firms. Other efforts include the partnership
BID’s built space classified as office (62%) or loft
between
(38%) building types, the Garment District is likely
Reimagining Penn Station
and
Chelsea
Improvement
The commercial superblock, built over the west side
Manhattan. Additionally, a proposed SBS loop that
rail yard will incorporate “cost-effective space, optimal
runs along 34th Street, 12th Avenue, 28th Street
for fostering collaboration,” while open spaces such
and Park Avenue will work in conjunction with the
as the Hudson River Park, extension of the High Line,
City’s 34th Street SBS and will link Penn Station to
and the Hudson Park & Boulevard should be a big
the Hudson Yards, the High Line and the Garment
draw for young workers. It is expected that high-
District. It will effectively connect to all parts of the
density commercial and residential development
city, by linking to the R, N, Q, and W subway lines, the
with considerable open space and amenities will
4, 5, and 6 lines, as well as the line 7 extension. Finally,
likely shift energy and activity westward toward the
it is proposed here that two new subway stations will
neighborhood.
be added along 28th Street, at 7th and 8th Avenues.
A Highly Accessible Innovation District
The new transportation improvements, and the already high transportation accessibility allows the
The Midtown West Innovation District is already
innovation district to cover 22 subway stations, 13
and will continue to be one of the most accessible
SBS stops, and numerous bus stops, linking to 18
locations in all of New York City and of the whole
subway lines and 2 SBS lines. Finally, a pedestrian
metropolitan area and Northeast Megaregion. It
concourse along 33rd Street will seamlessly link
will be served by 17 different subway lines and
Penn Station to all of the above ground public
with upgraded intercity and high speed rail services
transit. The innovation district will become the
going through Penn Station.
most accessible center in the region, boasting its
The new #7 Line subway extension provides direct access to the Yards and the District. The proposed 34th Street SBS line that runs the length of 34th Street directly links the east and west sides of
Source: newyorkcityscott from Flickr on Dec 26, 2009
118
Reimagining Penn Station
great legacy of transportation accessibility and the promising improvements.
With new rail investments, over 12 million people will have a 30-minute travel time to the Innovation District. Over 15 million people will have a 60 minute travel time, and over 25 million people will have a two hour travel time to the Innovation Center.
Key Location Advantages Key Locational Advantages
transformation into the Innovation Center include:
Two key factors will contribute to Midtown West
•
Manhattan’s transformation into an innovation
extensive
improvements
systems
that
in
increase
accessibility
Station, and the locational advantages of Midtown •
An increase in total population, particularly younger
Analysis of key locational advantages in Midtown
professionals
who
seek
urban
lifestyles
West demonstrates that the area has reached an important stage where a novel economic strategy
and
transportation
district - the improved accessibility of a new Penn West.
New
•
is necessary; one that can sustain viable transit-
Existing and new clusters of emerging industries that diversify economic activities
oriented development and elevate New York’s global competitiveness. Even though Midtown West has
•
development
suffered from underinvestment and dilapidation, it will become the epicenter of an innovation economy that enhances the growth of jobs and emerging industries, intensifies and diversifies communities, and transforms the area into a memorable place. This transformation is already underway with the extension of the #7 subway to 11th Avenue and the initiation of construction of the first towers in the Hudson Yards and Manhattan West Projects.
122
The
area’s
key
locational
advantages
will
successfully
complete
Midtown
Reimagining Penn Station
Soft sites that present potential for property
•
New synergies and partnerships between municipal, academic, and private firms to incubate innovation economies
Transportation and Accessibility Along with improved commuter transportation services at Penn Station, the proposed Metropolitan
that West’s
Service and High Speed Rail will greatly enhance the regional connectivity and attractiveness of the
innovation district.
York City. The incomes of residents in the area have also increased at a faster rate. This represents an
Improved street level amenities around Penn
opportunity to cater to the shifting demographic
Station, including a pedestrian concourse along
trends through district development and the
33rd Street, will link Penn Station, the Empire District,
associated programming.
and the Innovation District to nearly all forms of public transit in New York City. Additionally, the SBS
Existing Clusters of Emerging Industries
loop will effectively improve connectivity to other parts of the city by linking the Innovation District
An innovation economy would spawn a new
to the R, N, Q, and W lines, the 4, 5, and 6 line, and
generation of start-up business ventures. From
the #7 subway extension. Finally, two new subway
fashion and design to biotech and IT, knowledge-
stations along 28th Street, at 7th and 8th Avenues,
intensive and idea-generating industries are thriving
will put 18 different subway stations within a ten-
today, springing up in and around the Midtown.
minute walk from the Empire Center. The existing
Currently, energy is mostly concentrated along
transportation infrastructure combined with the proposed transportation plans make Midtown West
Key Innovation District Demographics
the most accessible area and gives residents the most options for mobility.
2000
2010
% Change
Total Population
8,008,278
8,175,133
2.08%
Age Group 21 to 34 Years
1,957,852
2,035,030
3.94%
$50,038
30.67%
New York City
Changing Demographics The area surrounding the new Penn Station is an area in ascendancy and transition as evidenced by changing demographics. From 2000 to 2010, total population in zip codes 10001 and 10018 has shown a 22% increase. The 21 to 34 year old age group accounts for 30% of the increase and almost 40% of the total population in 2010 falls within this age bracket. Additionally, in 2000, the median household income was $44,819 and grew to $76,323, a 70% change from the previous census.
Despite growth in
population and median income in the area, vacancy rates also rose in the area. The homeowner vacancy rate increased from 2.1% to 3.7%, as well as the rental vacancy rate from 3.6% to 19.4%. The data shows a clear trend that young professionals want to live and work in New York City; now, it is up to the city to adapt to these trends. A growing population, under-utilized land, rising vacancy rates,
Median Household Income
$38,293
Midtown West Manhattan is undergoing significant demographic changes in its residential population, especially when compared to the rest of Manhattan and all of New York City.
Manhattan Only Total Population
1,537,195
1,585,873
3.17%
Age Group 21 to 34 Years
451,826
482,792
6.85%
$50,229
$67,204
33.80%
Total Population
21,565
26,331
22.10 %
Age Group 21 to 34 Years
7,624
9,854
29.25 %
Median Household Income
$44,819
$76,323
70.29 %
Median Household Income Innovation District*
* As represented by zip codes 10001 & 10018
Source: American FactFinder
and lower real estate values, indicate opportunities to redevelop the blighted areas around Penn Station into a vibrant center that meets the demands of a new generation. The Innovation District is experiencing faster population and young population (aged 21-34) growth compared to Manhattan and all of New
Broadway, particularly in the Flat Iron District and West Chelsea. Young entrepreneurs have found creative ways to contribute to this market, through sharing workspaces, collaborating, and networking.
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and generate nearly $4 billion of economic growth.
shift to accommodate the new investments and new
Together, these three projects are expected to
District. w
generate more than $33 billion in overall economic impact over next three decades, with over 48,000 jobs, and roughly 1,000 spin-off companies. Such an endeavor will attract the necessary workforce and talent base in science, engineering, and technology
firms as the area grows into a fully fledged Innovation
This innovation district will be the incubator for
emerging firms in the creative and technological
industries that are at the forefront of the globalized economy.
to the City as well as put technological innovators in the same space as motivated entrepreneurs. These advantages create a significant opportunity for Midtown West Manhattan Neighborhood to become New York City’s Innovation District.
Conclusion A global gateway is a monumental transportation
hub that welcomes travelers, as well as an
ennobling experience for people as they venture from the train station into the city. Redeveloping and investing in the public area around the train station and transforming it into the Empire Center
will incentivize private development and welcome emerging industries into Midtown West Manhattan. Furthermore,
the
patterns
and
trends
The intersection of 34th St and 8th Ave represents a potential redevelopment opportunity around Penn Station to improve the public realm and catalyze the Midtown West Innovation District.
of
development in Midtown West Manhattan will
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Source: RDG Engineering
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IMPLEMENTATION Plans alone cannot deliver a new Penn Station to the residents and businesses of the New York region. To succeed, our proposal must identify the critical component missing in previous plans for Penn Station: a unitary champion, which we call “an honest broker,” to avidly pursue a “Make It Happen” strategy around Penn Station and lead others throughout the process. We recommend this entity as a conduit for administering and evaluating strategies for funding, financing, and delivering a world class gateway to New York City. With a champion backing Penn Station’s future, our plans can become action steps.
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R E A L I T I E S
FUNDING, FINANCING, AND PROJECT DELIVERY
F
or the first time in more than half a century, the New York region is expanding its transit infrastructure through targeted investments. East Side Access, scheduled to be completed in 2019, is the largest transportation project in the country and will give Long Island Railroad customers a one-seat ride to Manhattan’s East Side, saving commuters up to 40 minutes on their daily ride and temporarily alleviating congestion at Penn Station.1
The Second Avenue Subway, a project nearly 100
of a new Penn Station and an ability to transcend
years in the making, will include a two-track line
politics. Consultant John McNulty, who led efforts to
along Second Avenue from 125th Street to Lower
rebuild and expand King’s Cross Station in London,
Manhattan, reducing overcrowding on the Lexington
describes this entity as an “honest broker,” capable of
Avenue line. The #7 Subway is being extended west
managing trade-offs between relevant stakeholders.
to Hudson Yards, at the tip of Manhattan’s Far West
Although a new Penn Station immediately benefits
Side. The construction of a new Penn Station is
the entire Tri-State region, the project champion
essential to continuing this momentum.
will likely be a seasoned veteran of New York State
2
politics; this respected entity will mobilize support To accomplish that goal, this section will outline
from the highest ranks of government and private
a “Make It Happen” strategy that addresses the
industry.
primary hurdle in previous Penn Station plans: the
130
lack of a unifying champion. This champion could be
This project champion must assemble the key
an individual or group with a dedication to the idea
stakeholders. By bringing all parties to the table early,
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the “honest broker” can secure their buy-in, creating
and agree on a baseline price to follow.
a smooth transition from vision to completion. The final task for the project champion is to select The British government, a project champion for the
a project delivery entity. The project champion can
HS1 high speed rail in Southeast England, withheld
present several options for an organization capable
funding for the project until all parties agreed on
of delivering a project of this magnitude; when
a comprehensive vision; similar fortitude will be
considering these options, the project champion
required by the project champion at Penn Station.
should stress the importance of eminent domain authority, financing capacity, and the ability to rise
The project delivery strategy will also require an integrated funding and financing plan. Our approach involves a flexible mix of options, ensuring
above political factions.
Key Stakeholders
that a new Penn Station is not solely contingent on federal funding. These options include passenger
This new delivery entity will need to seek buy-in
facility charges, regional levies and real estate
from key stakeholders, including local and state
revenue from joint development around the station.
governments,
Revenue streams from each of these sources can
agencies, interest groups, and real estate developers.
be converted into up-front financing in the form of
These partnerships will be critical to obtaining
federal, municipal, or private loans.
financial, public, and political support because
To determine the revenue required to build a new Penn Station, Amtrak’s Gateway Project will be used as a baseline; its tunnels and tracks are vital to increasing capacity at the station. Additional items to be costed include new additional track and platform capacity, the station itself, and public realm improvements.. The project champion will work with stakeholders to adjust prices where necessary
elected
officials,
public
sector
coalitions are able to draw from a wider constituency to advance the project’s goals. Stakeholders are likely to have differing concerns – such as safety concerns, capacity expansion, or profitability – requiring different outreach tactics for each group. Drawing on the example of the stakeholder-driven Alameda Corridor project in Los Angeles, understanding the preferences of each key stakeholder will allow advocates to tailor their approach.3
The studio has developed a “Make It Happen” strategy to overcome the primary hurdle in previous Penn Station plans: the absence of a unifying champion.
Reimagining Penn Station
131
Funding Scenarios
New Jersey. Thus, assuming Penn Station were to
Re-imagining Penn Station will be a large and
funding (50% or $9.5 billion), it would require about
complex project requiring significant government
13.68% of funding to be raised through district, city,
support. However, during a time of severe fiscal
or regional taxes.
receive a maximum amount of potential government
austerity, different scenarios must be included to model the potential that Penn Station will not
Given that federal and state governments are
receive as much support as past projects. Each
currently in a period of fiscal austerity, less
of the scenarios assumes a passenger facilities
government aid was also modeled. Assuming
surcharge that generates $5.1 billion and a ground
the government provides 25% funding, or $5.75
lease that generates $1.8 billion, more than enough
billion, special purpose taxes will have to account
to pay for the recommended station and public
for $7.3 billion, or 38.68% of project cost. Assuming
realm improvements around Penn Station as well
government entities only provide 10% or project
as a portion of the Gateway and Moynihan Station
costs, or $2.3 billion, taxes will account for 54% of
projects.
project costs, or $10.2 billion.
Comparable recent projects in New York, such as
In addition to taxes, the passenger facilities surcharge
East Side Access, the Access to the Region’s Core
could be raised to account for a higher percentage
Tunnel (prior to cancellation), and Second Avenue
of the total if agencies are unable to raise necessary
Subway each received approximately 30% of their
taxes. A track-access fee could also be charged to
funding from the federal government, in the form
account for transit agencies or political entities that
of Federal Transit Administration New Starts grants.
are unwilling to provide funding for the station. The
Additionally, each project received approximately
track access fee could be indexed to account for a
10% direct support from either New York State or
proper percentage of the total project cost.
SCENARIO 1
SCENARIO 2
SCENARIO 3
Reimagining Penn Station
139
railroad operations, including tracks, platforms, and
Financing A financing strategy will be necessary for the redevelopment of Penn Station, as significant cash flows will not be expected until the new station is completed and surrounding development begins to produce revenue. Thus, policy makers must decide among a series of regularly used financing tools to implement the Penn Station project. Several leading examples of financing mechanisms are outlined below.
Numerous projects mentioned elsewhere in this report, including the Alameda Corridor and Denver Union Station, have taken advantage of this financing option. RRIF is currently authorized for $35 billion in revolving debt, and though a new Penn Station could only be expected to be financed through a part of that total fund, it nonetheless provides a promising opportunity for low-cost financing.
Transportation
Infrastructure
Finance
and
Innovation Act Loan (TIFIA) The TIFIA program provides junior-level debt to major surface transportation projects at Treasury Bill rates for a 35-year period. TIFIA features flexible repayment terms, including deferred repayment terms, and was expanded by MAP-21; in FFY 2013, the program will provide $1 billion in financing, which will support approximately $10 billion in total loans. 49 percent of a project’s total debt can be supported by TIFIA loans. The Penn Station project can utilize TIFIA funding to support private investment. As junior debt, TIFIA will provide additional support for private capital. Railroad
stations.
Rehabilitation
Grant Anticipation Revenue Vehicles (GARVEEs) Should the Penn Station redevelopment qualify for federal aid, financing could come through GARVEEs, where expected grant revenue is securitized, offering up-front revenue to more quickly deliver the project. GARVEEs may form a portion of the final financing package, but the absence of sustained federal investment in large-scale infrastructure increases the risk of this option. Public-Private Partnerships (P3s) A final financing option is public-private partnerships, where a consortium of private interests agrees to
and
Improvement
Financing Loan (RRIF) Established in 1998, RRIF offers freight and passenger rail projects the opportunity to borrow at treasury interest rates for projects that expand or improve
design, build, finance, operate, and maintain the facility in exchange for a stream of revenue (likely through user fees, as described above). While this model is common internationally and increasingly used here in the U.S., the uncertainty of user fee revenues may make this concession model less attractive to investors.
The federal TIFIA program has been used to finance numerous station redevelopments, including the Transbay Transit Center in San Francisco (Image Source: Transbay Joint Powers Authority)
Source: Transbay Joint Powers Authority
Reimagining Penn Station
141
Costing
To arrive at an estimated cost for station construction,
Having established the possible revenue sources
the itemized costing framework. Washington Union
to fund a new Penn Station, the next step is to
Station is undergoing substantial renovations on the
determine what the price of that redevelopment
scale of the studio’s proposal for Penn Station. The
will be. This price will include only Phase I and Phase
renovation of Union Station will expand platforms,
II of construction. Phase I includes the completion of
create a new headhouse, build a new structure
the Farley Post Office renovation (Moynihan Station
over the tracks, and work with private developers
Phase 2) and the building of the Gateway Tunnel
on ground-lease developments. Thus, costing for
project. The Moynihan Phase 2 project is calculated
the station was considered an appropriate proxy for
at $700 million based on estimates currently being
the new Penn Station. Additionally inputs from the
prepared by the Moynihan Station Development
Fulton Street Station project in Lower Manhattan
Corporation. The Gateway project is being calculated
were also considered.
the studio looked to comparable projects to facilitate
at $15 billion. This figure accounts for the new tunnel under the Hudson River, mining and excavation of
In order to corroborate the project estimate of $3.8
the Penn South Station site, acquisition of the real
billion using unit costs, the studio conducted an
estate at Block 780, and anticipated cost increases
analysis of Washington Union Station on a cost per
reported recently for the project.
million square feet of constructed space. The total project cost at this station is $1.75 billion per million
Phase II will be the Penn Station rebuild and is
square feet of constructed space, which includes
estimated to cost $3.8 billion. The rebuild costs
construction and appropriate markups. There will be
were divided into two high-level categories for
approximately 1 million square feet of station area
estimate purposes: station costs and public realm
and 1 million square feet of track and platform area
improvements. Station costs include interior space
in the new Penn Station. Thus, the total cost for the
within the station, the trainshed and station elements,
new station using this method is approximately $3.5
track and platform configuration and public right of
billion. Adding additional costs for public realm and
way construction necessary for construction. Public
connection to Herald Square ($215 million) raises
realm improvements encompass streetscaping
the cost roughly $3.7 billion, which is in line with the
around the station, a landscaped greenway and
studio’s per unit cost of $3.8 billion.
a pedestrian passageway to Herald Square. The price for each item in the broader category was
Interior Space within the Train Station
determined on a per unit basis to arrive at a total Station construction costs include public space, the
cost for the category.
train room, public station circulation, ticketing and The subtotal construction costs, which include
passenger information areas, retail space, and back-
station costs and public realm improvements,
of-house space. Public space is the largest spatial
total $1.2 billion. These costs were inflated 40% for
component of the station, with waiting areas, the
construction contingencies, which include potential
concourse and other major facilities. Back-of-house
changes in the project’s scope. Soft costs are an
includes facilities such as storage and locker rooms,
additional 65% markup on the subtotal construction
office space, while utilities are the major water,
costs plus construction contingencies. Soft costs
electric, and gas components.
include professional services such as engineering, design, the
architecture
subtotal
and
legal.
Additionally,
construction
costs,
construction
contingency markup and soft cost markup costs were inflated 35% to account for demolition and site preparation costs and other uncertainties such as environmental remediation; note, we are not factoring acquisition costs for MSG or 2 Penn Plaza in this cost.
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Trainshed and Station Elements To estimate the cost of the trainshed, estimates were developed for the costs of the roof and structural support that would be required for the building. Additionally, elements such as exterior walls and glazing, entrance portals, entry vestibules, and skylights were estimated for the project.
Phasing
systems. To improve access to existing and future
Phasing is a critical part of the redevelopment
reconnect the new Penn Station to Herald Square
of Penn Station. Making difficult decisions about what to build and when to build it is not just an engineering challenge; it represents a political balancing act between competing interests and a public eager to see immediate results. Phases I
Transportation Center. In addition, provisions for connections to future subway station boxes will also be constructed in anticipation of new Seventh and Eighth Avenue subways.
and II include the primary elements that will make
It is also important to consider that public right-
Penn Station a globally competitive landmark, while
of-way will be disrupted during redevelopment of
leaving room for additional investment both in the
Penn Station. Therefore, reconstruction of surface
public realm and in the station’s capacity itself.
infrastructure during and post-construction will be
Phase I Penn Station will be redeveloped in phases, the first of which will involve site clearance and acquisition around the station. In order to fully redevelop Penn Station, Madison Square Garden and Two Penn Plaza
necessary to maintain pedestrian flow. The primary areas for interim and final public right-of-way construction will be 30th and 31st Streets and 7th and 8th Avenues. Future Phases
must be removed from the site, with the Garden
Following successful execution of Phases I and II,
relocated to a site determined by key stakeholders.
additional improvements will be made to further
This critical move will allow for full redevelopment
enhance the newly redeveloped Penn Station and
of Penn Station.
surrounding district. These will include site assembly
During the initial phase of construction, LIRR, NJT, and Amtrak trains will be shifted to the new LIRR East Side Access Station, allowing construction to continue without interrupting service for Long Island or New Jersey commuters. Additional site acquisition required for Phase Two construction includes portions of blocks 754 and 806 adjacent to block 781, the site of Penn Station. Joint development above sites acquired in Phase I will be a part of future phases through long-term ground lease contracts with real estate development firms specializing in mixed-use, high-rise development. Phase I will also include the construction of the Gateway Project’s tunnels and Penn South Station, as well as the development of Moynihan Station on the Farley Post Office site west of Penn Station. Phase II Complete renovation and redevelopment of the existing Penn Station will be the primary component of Phase II. Everything in the current station will be reconstructed down to the track and platform level, including realignment of columns and structural
144
facilities, a pedestrian passage will be built to
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by private developers or public agencies. At this time proposed sites for future development include blocks 779 and portions of block 757, 783, and 807, corresponding to the Empire Center described above. Future phases will include additional transportation improvement and additional site acquisition and preparation.
Transportation
improvements
to
be addressed will be new 7th and 8th Avenue subway stations utilizing the pedestrian passages constructed within Penn Station during the initial construction phases, linkage to 34th Street Bus Rapid Transit, and an extension of the High Line to Penn Station. Each of these improvements will enhance transportation connections in and around the new Penn Station. Future phases will also include additional real estate development through longterm ground leases. Additional development will further improve the Penn Station district and offer new state-of-the-art office, residential, and retail space. In addition to the improvements previously described, long-range planning should begin to bring online additional East River tunnels and Hudson River tunnels. While not essential to relieving
leadership is subject to the governors of New York
purpose. In projects from Manhattan’s West Side to
and New Jersey, future political uncertainties could
the U.S. shore of Niagara Falls, ESDC has shown it
make effective project delivery a difficult task.
can support subsidiaries that range in function from station design to district revitalization to economic
Empire State Development Corporation Subsidiary The Empire State Development Corporation, New York’s state economic development agency, already has nine subsidiaries, including the Moynihan Station Development Corporation. The project champion, historically embedded in New York State
development. The Penn Station subsidiary would effectively combine these various facets to deliver the new station and surrounding district. And as a state-run agency, the subsidiary could issue statebacked bonds (at lower interest rates) to pay for those developments.
politics, will be able to garner support for a new
To gain these advantages, however, the railroad
Penn Station at the state’s highest levels. An ESDC
operators would cede control of the project. This
subsidiary, therefore, is one of the more desirable
could result in the deprioritization of station elements
models because of its status as New York State
vital to Amtrak, New Jersey Transit, and Long Island
entity, which will enable the political push for project
Rail Road, threatening their expected status as
delivery to come from the Governor and other high-
primary supporters. There are political drawbacks
ranking state officials.
as well. The entity could face opposition from New
A primary benefit of extending this model to the Penn Station redevelopment would be a seasoned parent corporation for a specific project-driven
York State legislators: Sheldon Silver, Speaker of the New York State Assembly, threatened to vote against approval of the Moynihan Station Development Corporation in 2006 because he felt it would only
Renovations to Denver’s Union Station are being completed under the aegis of the Denver Union Station Project Authority, a single-purpose entity composed of entities from the city, regional agencies, and the state DOT.
Source: DUPSA
Reimagining Penn Station
147
benefit New Jersey riders.18 Additionally, an entirely
infrastructure projects on the level of a new Penn
New York State run organization may leave out the
Station since the Tennessee Valley Authority in 1933.
interests of New Jersey and create an obstacle to
The studio views this option as feasible, yet the least
successful project delivery.
desirable as achieving approval from Congress can
Port Authority & ESDC Subsidiary Combination Combining multiple agencies or departments for project delivery has several precedents (see Hong Kong Air Programme case study), and a combined PANYNJ and ESDC subsidiary--or as a joint venture between the two organizations, as in the existing Moynihan
Station
Development
Corporation--
would have numerous benefits, making it a desirable option for project delivery. The entity would be able to leverage resources and expertise from both organizations. The PANYNJ has substantial experience in delivering large-scale infrastructure projects, while ESDC subsidiaries are well-versed in site-specific enhancements and economic development. The combination of ESDC and PANYNJ would create an entity that predominantly has New
But even though there is little precedent for chartering an agency to deliver a project like a new Penn Station, there are some advantages to the idea. First, a federally chartered special purpose authority would have the ability to borrow at U.S. Treasury rates. Although other delivery entities could also borrow at U.S. Treasury rates by applying for federal credit programs such as TIFIA or RRIF, federally chartered special purpose authorities can borrow at these low rates for their normal tax-exempt bonds.21 A federally chartered special purpose agency would also have the ability to gain direct Congressional authorizations and appropriations. In the case of poor market conditions, it would help to have the lever of a federal charter.
York influence, but receives input from New Jersey.
However, a federally chartered special purpose
This entity is thus desirable as the project champion
district has several disadvantages. First, it would
will be primarily looking to New York’s leadership to
be difficult to deliver the station without a local or
push forward, but will also need support from the
state champion in charge. Since a new Penn Station
Governor of New Jersey. However, a joint agency
would most directly benefit New Yorkers and the
would still have many of the weaknesses of both its
residents of states along the Northeast Corridor, a
constituent parts, including the diminished budget
local or state champion is crucial to advancing the
of the Port Authority and the absence of input from
project. Second, the federal government carries a
rail providers.
poor public perception in delivering infrastructure
Federally Chartered Special Purpose Agency The U.S. federal government, through the powers of Congress, could charter a special purpose authority to deliver a newly envisioned Penn Station. Structurally, this would be an independent government unit that would exist separately from, and with substantial administrative and fiscal independence from, general purpose local governments in the tri-state region. The federal government has not chartered a special purpose authority for delivering large-scale
148
be a long, arduous process.
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projects
through
repeated
underinvestment
in transportation infrastructure and funding of earmarked projects at the expense of those with the greatest public benefit. A federally chartered special purpose agency tasked with delivering Penn Station would have to operate in a transparent manner that convinces the public that Penn Station produces national benefits worthy of a federal charter.
London’s Saint Pancras International is a model not only for station design but for ambitious construction and project delivery.
Reimagining Penn Station
149
Source: J. Appellar, 2013
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CONCLUSION Having put forth analysis of historic and existing conditions, a series of proposed interventions, and a comprehensive implementation plan, the work of this studio is nearly complete. What remains is a final question - “Where do we begin?�
Reimagining Penn Station
151
FINAL THOUGHTS MOVING FORWARD TOWARD MAKING THE VISION A REALITY
R
eimagining Penn Station involves the capacity to think beyond existing barriers in order to invest in a better future. The vision presented in this report seeks to reform both past and present conceptions of the station, the district, the city, and the region. Yet while our expectations may require many to suspend their existing beliefs in what Penn Station can offer, this plan lays the foundation for others to build upon, to carry this vision through to fruition. The success of this vision is contingent on early efforts
study, it is vital that action is undertaken by civic
that move the plan forward. The recommendations
stakeholders like the RPA and Municipal Arts Society
in this report include long-range intervention and
now to ensure the realization of a new Penn Station
implementation strategies;
in the years to come.
it would be prudent
to consider those steps that can be undertaken now. With this set of “action steps”, the vision of a
Key to this action will be the decision of the New
new Penn Station will gain the necessary traction
York City Planning Commission regarding the fate
to advance the work of reclaiming a world-class
of Madison Square Garden. The commission is
gateway for New York and improving connectivity
currently debating MSG’s proposal for an “infinite
along the Northeast Corridor.
extension” to their special use permit above Penn Station. Should the commission instead opt for a
These steps begin with a coordinated public
ten-year extension, coordinated planning around
outreach campaign around what this report has
the future of the Garden—and Penn Station—could
called the Penn Station Imperative. Given the
begin in earnest.
confluence of events that have culminated in this
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Visualizing the Evolution Early 20th Century
Early 21st Century
Mid-21st Century Penn Station waiting halls through the years
Sources: Library of Congress; M. Moran 2012
Finally, stakeholders should pursue the success
However, none of these steps alone—or, indeed, all
of Amtrak’s NEC Future process. The Northeast
of them taken together—will ensure a new Penn
Corridor Commission is currently undertaking a Tier
Station. For that vision to succeed, public and private
1 Environmental Impact Assessment of the corridor,
interests around the region must work together to
analyzing the potential economic, environmental,
prioritize the station and related investments in the
and social impacts of expanded regional and
years to come. A comprehensive and sustained
catalytic high-speed rail service in the megaregion.
campaign will be required to ensure that Penn
Penn Station is the lynchpin of this network, and the
Station once again befits Charles McKim’s vision of
completion of Amtrak’s work will pave the way for
a monumental gateway at the core of the strongest
improved rail service at the station.
economic region in the world.
The new station will once more lay claim to greatness in New York City
Source: Library of Congress
Reimagining Penn Station
153
Source: J. Appelar
A.2
Reimagining Penn Station
A P P E N D I X Our vision for a new Penn Station involves several in depth analyses spanning a wide range of transportation,
preservation,
architecture,
and
economic issues that deserve inclusion in this report. The following materials explore our work in more detail and provide further perspective into the ways in which our team came about designing a new Penn Station for New York City. Included
in
this
section:
recommendations
for preserving the heritage of Penn Station; environmental design studies; district analyses; and financial projections. PennDesign Planning Studio 2013
A.3
APPENDIX
TABLE OF CONTENTS
Source: George Bellows 1907 “Excavation of Penn Station”
A.4
Reimagining Penn Station
R E F E R E N C E S SECTION I
PRESERVATION
SECTION II
Cited Works..............................................................................................................................A.6 Resources...................................................................................................................................A.7
Penn Station Historic Timeline...................................................................................A.8 McKim’s Station Typology Analysis.......................................................................A.11 Recommendations for Preservation...................................................................A.14
ARCHITECTURE
SECTION III
MIDTOWN
WEST
SECTION IV
Environmental Design Analysis..............................................................................A.16 Irradiance Studies..............................................................................................................A.20
Land Use and Zoning.....................................................................................................A.24 Unused F.A.R. .......................................................................................................................A.26 Special Districts...................................................................................................................A.26 Business Improvement Districts ...........................................................................A.28 Figure Ground & Nolli Map........................................................................................A.30
F I N A N C I N G
SECTION V
PRESENTATIONS
SECTION VI
Ground Lease Assessment.........................................................................................A.32 Charges Assessment.......................................................................................................A.33
Final Presentation..............................................................................................................A.34 Foundational Heritage Research...........................................................................A.56
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A.5
report references APPENDIX SECTION I
Implementation | Realities 1.
http://www.mta.info/capital/future/east-side-access.php
2.
http://www.mta.info/capconstr/sas/index.html
3.
Heanue, Kevin E., Guidebook for Integrating Freight into Transportation Planning and Project Selection
4.
http://www.panynj.gov/about/facilities-services.html
5.
“Alameda Corridor Agency Schedules Construction of Pacific Coast highway Grade Separation,” Alameda
Process, (Washington: Transportation Research Board, 2007), Page 151.
Corridor Transportation Authority, February 13, 2003, http://www.acta.org/newsroom/Releases/Microsoft_ Word_-_PCH_contract_release_final_2-13-03_.pdf
6.
Agarwal, Giuliano, Redfearn, “The Alameda Corridor.” White Paper: University of Southern California, June
7.
Moynihan Final Environmental Impact Statement,” Accessed at http://www.empire.state.ny.us/Subsidiaries_
8.
Amtrak
2004.
Projects/MSDC/MSDC_FEIS.html. timetables
at
http://www.amtrak.com/train-schedules-timetables,
LIRR
timetables
at
http://mta.info/lirr/Timetable/, and NJ Transit timetables at http://www.njtransit.com/sf/sf_servlet. srv?hdnPageAction=TrainTo; 261 weekdays and 104 weekend days were used to estimate annual number
of scheduled trains; “Moynihan Final Environmental Impact Statement,” Accessed at http://www.empire. state.ny.us/Subsidiaries_Projects/MSDC/MSDC_FEIS.html. 9.
https://www.dot.ny.gov/programs/repository/TCMC-Interim-Report.pdf and increased using inflation calculator from http://www.bls.gov/data/inflation_calculator.htm.
10. http://www.fta.dot.gov/documents/MAP-21_Fact_Sheet_-_Fixed_Guideway_Capital_Investment_Grants. pdf
11. https://www.dot.ny.gov/divisions/policy-and-strategy/public-transportation/funding-sources/SDF 12. https://www.dot.ny.gov/divisions/policy-and-strategy/public-transportation/funding-sources/STOA 13. Federal Transit Administration. “Annual Report on Funding Recommendations, Fiscal Year 2011, New Starts, Small Starts, and Paul S. Sarbanes Transit in Parks Program. Access to the Region’s Core. Northern New Jersey.” November 2009.
A.6
Reimagining Penn Station
14. http://www.bloomberg.com/news/2013-03-06/mta-east-side-access-cost-rises-to-8-76-billion-dinapolisays.html ; http://www.osc.state.ny.us/osdc/rpt12-2013.pdf
15. http://www.dnainfo.com/new-york/20120619/upper-east-side/second-avenue-subway-project-gets197m-from-federal-government ; http://www.mta.info/capital/future/avenue-subway.php; http://www.fta. dot.gov/documents/100_NY_New_York_Second_Avenue_Subway_Phase_I.pdf 16. http://www.panynj.gov/about/facilities-services.html 17. http://www.panynj.gov/corporate-information/pdf/annual-report-2011.pdf 18. http://www.nysun.com/new-york/silver-says-hell-again-oppose-moynihan-station/41481/ 19. Airport Core Programme Highways Projects,” Government of Hong Kong, http://www.hyd.gov.hk/eng/ road_and_railway/airport/
20. Linderoff, Dave. “The Man Getting Hong Kong’s Airport Off The Ground.” Bloomberg Businessweek, November 27, 1994.
21. Dave Flessner, “TVA sells bonds at record low rate,” http://www.timesfreepress.com/news/2012/dec/20/ tva-sells-bonds-at-record-low-rate/?businesstnvalley, December 20, 2012.
District Design City of New York, Department of City Planning. “Zoning Districts: Special Districts.” 2013. http://www.nyc.gov/ html/dcp/html/zone/zh_special_purp_dist.shtml City of New York, Small Business Services. “SBS - Neighborhood Development - Business Improvement Districts.” 2013. http://www.nyc.gov/html/sbs/html/neighborhood/bid.shtml Bryant Park Corporation. “Bryant Park | Company Overview”. 2013. http://www.bryantpark.org/about-us/ management.html Urban Land Insitute. “ULI Case Studies: 34th Street Streetscape Program.” 2008. http://casestudies.uli.org/Profile. aspx?j=8109&p=5&c=24 Flatiron 23rd Street Partnership. “About Us.” 2013. http://www.flatironbid.org/about.php New
York
City
Land
Use,
Zoning,
and
Tax
Roll
Data,
2013:
gis.nyc.gov/doitt/nycitymap/
template?applicationName=ZOLA & nyc.gov/html/dcp/html/landusefacts/landusefactshome.shtml
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Preservation Recommendations
Incorporate McKim’s concepts into new design
Although reconstructing the original Penn Station is not recommended, the new design should incorporate the concepts employed by Charles McKim. These include the procession of spaces, use of light, thorough knowledge of classical architecture, and the ability to evoke a sense of awe.
Source: Library of Congress
Documentation of Remaining Original Fabric
Much of the original fabric was lost during the demolition of the headhouse in the 1960s. Those few pieces that remain intact are important for telling the story of this great architectural icon. Efforts should be made to identify and locate any remaining original fabric in the station and to both document it and use it in the new design.
Source: MYNC
Historic interpretation- Didactic Signage
It is impossible to recover the lost Penn Station but it is possible to remember it and to celebrate its legacy. Didactic signage should be used to tell the story of the original Penn Station and to show how the site has changed over time. The existing interpretation is not adequate to explain the importance of this building and its fate.
Source: MNYC
Create New Station that Fulfills Mission of Original
Cassatt’s envisioned Penn Station to be both a monumental gateway unto itself and to be the center of a thriving district. The current site meets neither of these needs. Any future design should take on the challenge of following through on the original mission of the building as a connection to both the past and the future.
Source: Library of Congress
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Reimagining Penn Station
Source: A. Rose, The Demolition of Penn Station, MCNY
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sustainable design APPENDIX SECTION III
Station Roof Environmental Analysis “The roof structure of Penn Station must be placed
The following images reflect the detailed study
within the context of New York City’s general
that led to the development of a new roof for
climatic features. The climate of New York State is
Penn Station. It is not enough to simply design
broadly representative of the humid continental
for aesthetics and function. Today we must also
type, which prevails in the northeastern United
design for resiliency and efficiency, and hold
States. Under the Köppen climate classification,
ourselves to higher standards of accountability for
New York City experiences a humid subtropical
the sustainability of civic design. As such, a careful
climate (Cfa) nearing the humid continental climate
review of environmental factors served as a basis
(Dfa). The city is warmer than the rest of New York
for the design of Penn Station’s most visible new
State, due to its proximity to the ocean, and is the
structure: the roof of the main hall.
northernmost major city in North America with the humid subtropical categorization.”
Source: Weather Tool
Figure 1 | The psychometric chart shows the ideal comfort level (marked in yellow) in terms of humidity and barometric pressure. Since New York City is cold for more months of the year than hot, one of the roof’s principal tasks is to protect the interior during the winter. New York City’s hot and humid summer months require that the roof also protect against solar radiation and use shading to equalize and comfort the building during the warmer times of the year.
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MARCH 21st
JUNE 21st
SEPTEMBER 21st
DECEMBER 21st
Figures 2.1-2.4 | On-site shadow range: 10am - 5pm
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9 a.m.
12 p.m.
4 p.m.
MARCH 21st
JUNE 21st
SEPTEMBER 21st
DECEMBER 21st
Figures 3.1-3.12 | (above) Shadow display studies continued Figures 4.1-4.16 | (opposite) Movement of the sun over various roof arch types Figures 4.17-4.24 | (following page) Movement of the sun over the new roof design by season
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Reimagining Penn Station
SPRING
SUMMER
AUTUMN
WINTER
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SPRING
SUMMER
AUTUMN
WINTER
TRANSPARENT ROOF
9 AM
MARCH 21
JUNE 21
DECEMBER 21
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Reimagining Penn Station
12 PM
4 PM
METAL PROPERTIES U-Value Emissivity 6 0.1 6 0.1 5 0 7.1 0.89 5.55 0.9 2.2 0.9 1.88 4.4 0.88 0.9 3 0.9 3 0.9 3.418 0.9
Element Interior Glass Exterior Glass (vertical) Exterior Glass Roof Panels Exterior Metal Roof Panels Mullion Underground Retail Street Level Retail Platforms Floor Slabs - Level C Floor Slabs - Level A & B Site Blocks
Initial Materials Single Glaze Aluminum Frame Single Glaze Aluminum Frame Transluscent Skylight Corrugated Metal Roof Stainless Steel Framed Plasterboard Brick Concrete Block Plaster Concrete Slab on Ground Concrete Floor Suspended Concrete Floor Suspended External Paving
Element Interior Glass Exterior Glass (vertical) Exterior Glass Roof Panels Exterior Metal Roof Panels Mullion Underground Retail Street Level Retail Platforms Floor Slabs - Level C Floor Slabs - Level A & B Site Blocks
New Materials U-Value Emissivity Single Glaze Aluminum Frame 3 0.9 Double Glaze Low Emissivity Aluminum Frame 0.88 0.9 Double Glaze Low Emissivity Aluminum Frame 0.88 0.9 Insulated Metal Deck 0.55 0.89 Stainless Steel 5.55 0.9 Reverse Brick Veneer R15 0.49 0.9 Reverse Brick Veneer R20 0.39 0.9 Concrete Slab_Tiles on Ground 0.88 0 Concrete Floor_Timber Suspended 2.16 0.9 Concrete Slab_Tiles on Ground 0.88 0 External Paving 3.418 0.9
Figures 5 | (above) Table of metal properties used to assess the new roof material Figures 6.1-6.18 | (below) Renderings of light transfusion through a grid roof versus a transparent roof
9 AM
12 PM
GRID ROOF
4 PM
MARCH 21
JUNE 21
DECEMBER 21
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ORIGINAL MATERIALS
PLATFORM LEVEL MARCH 21
JUNE 21
DECEMBER 21
LEVEL A - CONCOURSE LEVEL MARCH 21
JUNE 21
DECEMBER 21
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Reimagining Penn Station
NEW MATERIALS
ORIGINAL MATERIALS
NEW MATERIALS
LEVEL B - MAIN HALL LEVEL MARCH 21
JUNE 21
DECEMBER 21
Level C - Street Level MARCH 21
JUNE 21
DECEMBER 21
Figures 7.1-7.24 | Lighting through each level of the station
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Unused F.A.R. The Floor to Area Ratio (FAR) of a site is the balance between the area of a building site and the amount of buildable square footage that is allowed on the site. For instance, an FAR of 1 would allow a onestory building that covers the entire site, or a twostory building that only covers half of the site. FAR can also be used to determine sites for potential redevelopment by identifying, which buildings and sites have less built square footage than what the zoning code allows. Clusters of under-utilized FAR sites can be locations for larger scale redevelopment projects. A quantitative analysis comparing current FAR, maximum FAR, and existing building and lot size identifies opportunities for large redevelopments within the Impact Area. This analysis uses a 50% threshold of unused FAR on the site as a benchmark for a priority development opportunity. In addition to using the FAR metrics, unused sites of 30,000 square feet or more are classified as soft sites. Larger soft sites, and thus more desirable for planned unit redevelopment, are defined as parcels with an under-utilized FAR of more than or equal to 50 percent and greater than 50,000 square feet. Special Districts
on the east side of Midtown. The district also includes, transfer of development rights,
preservation/rehabilitation
of
buildings,
signage regulations, density limits, and a floor area bonus for allocations of public plazas, subway improvements, in the following subdistricts—Fifth Avenue, Grand Central, Penn Center, Preservation and Theater. There are also urban design features such as “continuity of street wall and retail uses, offstreet relocation of subway stairs and provision of on-site pedestrian circulation spaces, are mandated within the district.” Special Garment Center District Home to New York’s center for fashion, textiles and apparel manufacturing, this district boasts an array of historic buildings with wholesale and showroom uses. However, New York’s garment manufacturing sector has experienced a steady decline, as it competes with globalized fashion centers and textile industries. In effort to preserve this manufacturing sector, the City enacted the Special Garment Center District zoning ordinances. These specific zoning rules restrict certain uses in large areas of the district to maintain affordable
New York City’s Planning Commission has designated
manufacturing rents. These areas are identified as
special zoning districts since 1969 to “achieve specific
Preservation Areas on selected mid blocks between
planning and urban design objectives in defined
West 35th and West 40th Streets west of Broadway.
areas with unique characteristics. Special districts
“East of Eighth Avenue, residences and hotels are
respond to specific conditions; each special district
not permitted and the conversion of industrial space
designated by the Commission stipulates zoning
to office use is permitted only by certification by the
requirements and/or zoning incentives tailored to
chairperson of the City Planning Commission that
distinctive qualities that may not lend themselves
an equal amount of comparable floor area has been
to generalized zoning and standard development.”
preserved for specified industrial uses. Additionally,
Special Districts allow the city to promote specific
between Eighth and Ninth Avenues, conversion of
planning goals without having to change the
larger buildings to residential, office or hotel use is
entirety of the zoning code. Special Districts around
permitted only by authorization of the City Planning
Penn Station include:
Commission.”
Inclusionary Housing designated
areas are also identified in this district. Special Midtown District Special Clinton District The Special Midtown District is one of the largest special districts in New York City. It provides a
The Special Clinton District (CL), located just north of
development framework for Midtown Manhattan
the Impact Area. This district was created to preserve
that prioritizes: growth, stabilization and preservation.
and create a more integrated residential community
Most of the efforts of the district has been to shift
in Midtown. It is a very diverse district with a mix of
future development further to the west and south in
socio-economic classes.
response to an over-concentration of development
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Reimagining Penn Station
This District also mitigates the impacts of new developments through regulations that require appropriate transitions between the lower-scale side streets, and the adjacent Special Hudson Yards District to the south and the Special Midtown District to the east. Additionally, an inclusionary zoning policy, specific to the district, encourages affordable housing and creates a balance of incomes within the neighborhood. Special Hudson Yards District The Special Hudson Yards District, which is located to the immediate west of Penn Station promotes mixed-use development and open space along Manhattan’s Far West Side. This new district will see the development of new office, retail and hotel projects as well as new residential opportunities while maintaining existing ones. The special district includes, “two new corridors for high-density commercial and residential development supported by a subway line extension, new parks and an urban boulevard.” This new urban boulevard and public space will be known as Hudson Boulevard. The majority of the redevelopment and mid density developments will form a buffer between the developments along the Hudson Boulevard and transition into the existing neighborhoods such as the Special Garments Center District located directly east of this special district. Special West Chelsea District The West Chelsea District directs development around the High Line Pedestrian Park. The district guidelines provide for public open space, mixed-use development, and floor area transfer mechanisms or transfer for developments rights to preserve light, air and views. Within the West Chelsea District, most of the higher density zoned areas are located north of the district, closer to Hudson Yards and less dense areas in the East and South around the Chelsea Historic District. There are also inclusionary housing designations in the area to encourage affordable housing and maintain the typological diversity.
Business Improvement Districts In addition to the special purpose districts, there are four Business Improvement Districts (BID) in the Impact Area. BIDs are different from Special Purpose Districts in that a BID is a partnership among private firms that consent to paying a separate fee or tax in order to contribute to the maintenance, development and promotion of the commercial district. BIDs are beneficial for commercial districts by allowing the local stakeholders take a proactive role in the economic development and public realm revitalization of the neighborhood. New York City has 67 BIDs that annually invest over $100 million worth of programs and services in neighborhoods across the five boroughs. Bryant Park Corporation Bryant Park Corporation is comprised of property owners neighboring the park. This district was formed to restore historic Bryant Park, which had suffered a severe decline in conditions in the 1970s. A 15-year agreement was signed in 1988, entrusting management and improvements to the BPC. The park reopened in 1991 after four years of renovation with a budget six times the level under prior city management. It is the largest effort in the nation to apply private management backed by private funding to a public park. Bryant Park is seen as a model of success in the public realm. It also shares its management team with the 34th Street Partnership, a neighboring BID. 34th Street Partnership Created in 1992, the 34th Street Partnership is not only largest BID in Penn Station’s impact area but also one of the largest BIDs in the country. The area around 34th Street in Midtown Manhattan, once a prime shopping destination, declined in the midtwentieth century. The 34th Street Partnership, covering the blocks north and south of 34th Street between Park and 10th Avenues, through which they sought to capture the district’s consumer-laden traffic. Altogether, this zone includes 36 million square feet of commercial space.
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Reimagining Penn Station
implementation APPENDIX SECTION V
Ground Lease Assessment The projected stream of ground lease cash flows
respectively. Assuming the ground lease rental rate
is calculated as a percentage of land value with
is ten percent of land value in the present year (year
periodic rent escalations plus a portion of projected
0) with three percent rent escalations each ten years,
rental revenue produced by improvements to the
an annual cash flow of $111.6 million is generated for
land. Parcel values are based on 2012 New York City
years one through nine, increasing every ten years
Property Tax Assessment Roll Data. Because there is
thereafter. It is assumed that the landowner would
inadequate data on the current Penn Station site,
receive five percent of anticipated rental revenues
block 781, and on the Moynihan Station site, block
starting in year ten.
755, the value of block 780 was doubled and used as a proxy based on the fact that blocks 781 and
Rental revenues were projected based on average
755 are ‘super blocks’ approximate twice the size of
rents per square foot applied to the proposed
block 781.
building programs on joint development sites. Estimated cash flows generated from rental revenue
Based on this methodology, the current Penn
are $43.5 million for years ten through nineteen,
Station block 781 and Moynihan Station site block
increasing each ten years thereafter. These projected
755 are valued at $329.3 million, block 780 at $164.6
cash flows represent a thirty-year net present value
million, and a portion of blocks 754 and 806 adjacent
of $1.6 billion.
to Penn Station valued at $139.7 and $153.3 million
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Passenger Facilities Charges
Rail Access Charges
Using the 2006-2015 projected incremental increase
Average fare increases per passenger are estimated
in Penn Station ridership in the Moynihan Station
using the 2013 number of scheduled trains and the
Development Corporation’s Tier I EIS, it is possible
estimated number of Amtrak, LIRR, and NJ Transit
to forecast the number of intercity and commuter
passengers in 2013 from the 2006-2015 projected
rail passengers for the next 30 years (the length of
yearly increases in the 2006 Moynihan Station
revenue streams that most sources of financing
Development Corporation’s Tier I EI. In 2013, a $500
require) at Penn Station. Using these forecasts, the
RAC amounts to an average increase in fare of $2.38
recommended PFCs yield $243 million in revenues
per Amtrak passenger, $2.19 per LIRR passenger,
in year one, and a Net Present Value of $3.7 billion
and $1.37 per NJ Transit passenger, yielding a total
over the next 30 years (assuming an 8% discount
revenue of $248,980,500 in year one and a Net
rate).
Present Value of $3.3 billion over the next 30 years
5
(assuming an 8% discount rate). PFC Revenues (2013 Dollars Discounted at 8%)
Year
Rail Access Charge Revenues (2013 Dollars Discounted at 8%)
1
$243,517,362
$248,980,500
2
$230,444,830
$230,537,500
3
$218,085,034
$213,460,648
4
$206,398,528
$197,648,748
5
$195,348,082
$183,008,100
6
$184,898,553
$169,451,945
7
$175,016,769
$156,899,949
8
$168,041,944
$159,805,182
9
$159,055,584
$147,967,762
10
$150,557,057
$137,007,187
11
$142,519,490
$126,858,506
12
$134,917,512
$117,461,580
13
$127,727,169
$108,760,722
14
$120,925,842
$100,704,372
15
$114,492,172
$93,244,789
16
$108,405,989
$86,337,768
17
$102,648,247
$79,942,377
18
$98,442,855
$74,020,720
19
$93,238,397
$68,537,704
20
$88,313,350
$63,460,837
21
$83,652,483
$70,511,805
22
$79,241,407
$65,288,708
23
$75,066,528
$60,452,507
24
$71,115,005
$55,974,544
25
$67,374,704
$51,828,281
26
$63,834,158
$47,989,149
27
$60,482,536
$44,434,398
28
$57,309,600
$41,142,961
29
$54,305,677
$38,095,334
30
$51,461,624
$35,273,457
Total
$3,726,838,487
$3,275,088,041
Sources: (PFC) Moynihan Station Final Environmental Impact Statement 2006; National Transit Database 2011 Annual Reporting; (RAC) Aldrich et al (2011), “Commuter Rail Transit Price Elasticity of Demand”; http://www.strc.ch/conferences/2010/Vidaud.pdf
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