New Haven Harbor District Resilience Catalyst by Gioia Connell

Spring 2020 Urban, Suburban, and Regional Planning Capstone Yale School of the Environment

NEW HAVEN HARBOR DISTRICT RESILIENCE CATALYST Gioia Montana Connell and Alejandra Hernandez Advised by David Kooris

Executive Summary 6 Introduction 10

Overview 11 Site Definition 15 History 25

Previous Plans And Public Investments 30 Long Wharf Responsible Growth Plan Long Wharf Flood Protection Living Shoreline Coastal Storm Risk Management Draft Feasibility National Disaster Resilience Competition Phase II

34 38 40 44

Site Analysis 48

Community 50 Census Review 53 Local Assets 67 Historic Districts 69 Representation 72 Environmental Justice 73 Environmental 74 Coastal Flooding and Sea Level Rise 77 Stormwater Sewage Water Quality 81 Coastal Habitat 85 Urban Tree Canopy Cover 86 Sun Wind 87 Land Use and Infrastructure 88 Land Use 89 Oil Tanks 93 Water Activities 94 Highway Proximity and Public Health 95 Connectivity 96 Road Classification 97 Bridges and Highway Overpasses 98 Union Station 98 Public Transit 100 Bicycle and Pedestrian Connectivity 100 Traffic Counts and Accidents 103 Economic 104 New Haven and Long Wharf 105 Economic Development Incentive Programs 109 Opportunity Zones 109 Enterprise Zones 112

TABLE OF CONTENTS Visions Goals Tactics 116

Visions 118 Goals 119 Tactics 120 Environment and Flooding 120 Flooding Mitigation 121 Coastal Permitting 140 Design for Highway Proximity 144 Connectivity 150 Complete Streets 151 Street Designation 154 Path Creation 155 Urban Acupuncture 156 Placemaking 160 Narratives For Place 164 Placemaking for Activation 166 Temporary Installations 168 Permanent Improvements 170 Redevelopment 172 Brownfield Redevelopment 174 Small Businesses and Innovation 175 Affordable Housing 176

Recommendations 182

Layer 1 | Flooding Mitigation Site Design 186 Raised Perimeter Boardwalk 191 Raising Long Wharf Drive 199 Raising Water Street 207 Layer 2 | Placemaking and Connectivity 210 Local Actors and Players 213 Subdivide the Site 216 Branding The Gateway 218 From Passage to Place 226 The Sapphire Necklace 234 Layer 3 | Redevelopment Principles 238 Land Use that Reflects Site 242 Ground Floor Activation 242 New Haven Resilient Design Guidelines 242 Build on Local and State Sustainability Resources 243 Develop Renewable Energy 244 Craft Development by Crafting Uses 244 Include Local Residents 245 Utilize Funding for Cleanup and Housing 246 Planning for the Future 247

Conclusion Appendix

250

252 Interviews 252 Resource Mapping 258

ACRONYMS

BFE CIRCA CJL CMZ CSO CT DEEP CTDOT DECD DOE DOH DM EDC EPA FEMA FHWA FIRM GNHWPCA HUD IBC

Base Flood Elevation Connecticut Institute for Resilience & Climate Adaptation Coastal Jurisdiction Line Connecticut Coastal Zone Management Act Combined Sewer Overflow Connecticut Department of Energy and Environmental Protection State of Connecticut Department of Transportation Connecticut Department of Economic Community Development U.S. Department of Energy Connecticut Department of Housing (DOH) Distressed Municipality Economic Development Corporation United States Environmental Protection Agency Federal Emergency Management Agency Federal Highway Administration National Flood Insurance Rate Map Greater New Haven Water Pollution Control Authority U.S. Department of Housing and Urban Development International Building Code

IRC LiMWA LTCP MHHW NAVD 88 NFIP NH TT&P NOAA NRDC OPM PIC SCRCOG SFHA SLC SLR SLOSH

USACE

International Residential Code Limit of Moderate Wave Action Combined Sewer Overflow Long-Term Control Plan Mean Higher High Water North American Vertical Datum of 1988 National Flood Insurance Program City of New Haven Transportation, Traffic & Parking National Oceanic and Atmospheric Administration National Disaster Resilience Competition Connecticut Office of Policy and Management Public Investment Community South Central Regional Council of Governments Special Flood Hazard Areas Sea Level Change Sea Level Rise Sea Lake and Overland Surge from Hurricanes Model from the National Hurricane Center U.S. Army Corps of Engineers

EXECUTIVE SUMMARY

New Haven Harbor District Resilience Catalyst seeks to address risks, build on assets, and offer catalytic concepts for development in New Haven’s Harbor District. It is intended to offer a wide variety of interested parties tools to achieve complementary goals for the site, from the state to the city to private land-owners to surrounding communities. It poses the question— how can this space be used to its fullest potential as a resilient, vibrant core at the center of a city that currently faces away from its strongest natural assets, the waterfront? The plan is based on dual interest from the City of New Haven and locally based Fusco Corporation, a long standing developer in the city. The Catalyst consists of five sections—

Introduction to the site Prior plans and investment Comprehensive site analysis Visions, goals, and tactics Site recommendations The introduction outlines the site of interest. While the central site comprises of the entire Harbor District, parcels with high near-term development potential are focused on throughout the report. Concentric rings 0.5 miles and 1.5 miles around the site define further areas of interest for catalytic connectivity improvements and neighborhoods impacted by coastal development. The prior plans and investment section identifies

projects that demonstrate the importance of the area. While past megaprojects focus on regional infrastructure, current planning efforts are focusing on the local impact that these major investments have had. Plans that detail flood risk and flood protection as well as mixed-use redevelopment offer important visions for future design, but also reveal disparities in development and risk reduction priorities. The site analysis looks into community, environment, land use and infrastructure, connectivity, and economics. It uses a strengths, weaknesses, opportunities, and threats analysis to structure takeaways. Its strengths are dominated by the site location and New Haven’s strength in the regional market in rental demand and eds and meds. Opportunities to connect the waterfront to the city and the region based on its location can be used to leverage development that includes both ecological restoration and economic development. Its weaknesses lie in the lack of identity and signage, significant paved surfaces and stormwater issues, and wind and smell directly along the waterfront. Most imminently significant, site threats include climate-change induced flooding, uncertainty of public and private investment postCOVID19, and the layers of Connecticut Department and Environmental Protection (CT DEEP) Coastal Permitting processes. Visions, goals, and tactics cover the approach and tools used in the site recommendations. Based on the prior sections, the catalyst envisions a connected waterfront that improves the health and wellbeing of

city residents; a holistic development approach that addresses climate change; a model for partnerships and investments that grow prosperity in place; and development that reflects New Haven and its community. Flood mitigation, connectivity improvements, placemaking, and development form the goal structure by which relevant tactics and best practices are identified. The recommendations section outlines three layered approaches to the site—

Flood Mitigation Recommendations Placemaking Connectivity Recommendations Redevelopment Recommendations Flood mitigation recommendations seek to offer a variety of iterations with varying levels of acceptable flood risk in alignment with coastal permitting needs. Placemaking and connectivity recommendations identify key mechanisms to take both a site and network-based approach that improve pedestrian and visitor experience. Engaging local actors is critical for all outlined opportunities. Breaking down the site into identitybased zones is a preliminary step for locating sites for intervention. Based on this, branding the gateway to the site and creating installations and events that focus on both passage and place create dynamic value. Engaging directly with the highway underpasses and bike lanes are a core design takeaway. The final recommendation is the creation of a Sapphire Necklace—a combined branding mechanism, wayfinding method, and green

infrastructure network that connects the city as a whole to its waterfront. Eight redevelopment recommendations define guiding principles for the permanent development. These recommendations build on the flooding mitigation necessary for permitting and the placemaking and connectivity necessary to build value. Ground floor activation, New Haven design guidelines, and land use that continues to promote connection to nature, history, and art ensure that the physical character is vibrant. Building on local and state sustainability resources and guidelines, particularly in the field of renewable energy, are important for ensuring that the development helps to support city goals for carbon neutrality by 2050. Treating development holistically, including growing and supporting small businesses, particularly in a postCOVID era, wrap-up the recommendations section. These recommendations build on each other to support development that is ecologically, socially, and economically place-based and sustainable. Incremental implementation that embraces the long term vision of the site can help guide project choices and phasing for each layer of intervention. Two appendices offer additional important information not fully contained elsewhere in the report. Appendix A includes summaries of the stakeholder interviews conducted to inform site analysis and recommendations. Appendix B includes a Resource Map for local, state, and federal resources related to

policy, funding, and technical assistance. Appendix B is organized topically by sustainability, renewable energy, economic development, and flooding and water management. Once the center of New Haven development, Long Wharf has the potential to redefine how city’s embrace underutilized harbors in the 21st century—in a way that protects hinterlands from storm surge and sea level rise, sensitive coastal ecologies, and city resident’s need for natural amenities and place-based economic development. The Harbor District offers a unique opportunity for waterfront development that is simultaneously sustainable, beautiful, and of New Haven.

INTRODUCTION

OVERVIEW New Haven has a wealth of underutilized ecological and economic assets that place it in a prime position for creative redevelopment. New Haven’s Maritime Center is one such asset. Located at the northeast corner of Long Wharf, it is a part of the city’s commercial base and adjacent to increasingly rare urban coastal wetlands. Yet as a functional island on the coast of the city, it is perceived to be cut off from surrounding neighborhoods by a tangle of interstate highways, city roads, and regional rails. In addition, it and the properties that surround it face critical challenges to development including sea level rise, aging infrastructure, pedestrianunfriendliness, and lack of recreational amenities. Yet the size and location of the Maritime Center and its adjacent properites offer a unique opportunity for connecting citizens to the waterfront while also protecting valuable city and regional coastal infrastructure. The following plan seeks to help the surrounding community, the city, and private land owners achieve complementary goals—taking positive steps towards making New Haven’s waterfront both a destination and an intimate neighborhood. The plan is based on dual interest from the City of New Haven and locally based Fusco Corporation. The Fusco Corporation, founded in 1924, is the largest real estate company in Connecticut and is headquartered in the Maritime Center, a main site of interest for this report. Working across commercial construction, property management, and development, Fusco is woven into the fabric of New Haven after almost 100 years of work in the city. In addition, it is currently an active player in sustainable building, supporter of the International Living Future Institute, and member of the U.S. Green Building Council (USGBC) and Connecticut Green Building Council (CTGBC). With the

proper structure, development of New Haven’s Maritime Center not only has the potential to redefine Long Wharf as a natural destination for the city, but also to serve as a genuine model for place-based public-private partnership. This plan lays out strategies that tackle four key issues of harbor development—Flood Risk, Connectivity, Placemaking, and Economic Redevelopment. Mitigating flood risk related to storms and sea-level rise is the basic catalyst for development. Built on vulnerable landfill, Long Wharf is currently home to over 220 businesses, 7,960 employees, and brings in over $1.2 billion in sales, positioning itself as an important commercial and industrial center.1 Flood protection for the rail yards, a vital piece of infrastructure along the country’s Northeast Corridor, is important for New Haven, Connecticut, and the tristate region as a whole. By interweaving connectivity, economic development, and placemaking strategies into physical protections for critical infrastructure, key development stakeholders have the opportunity to create a sense of identity and belonging at the site to catalyze further investment to the benefit of residents, workers, and visitors alike. Urban areas are innovative, creative,and economic hubs. As the climate changes, it is critical for waterfront cities to address environmental challenges in a way that is sustainable both economically and socially.

SITE DEFINITION

Core Site Catalytic Zone Impact Zone

The project site is made up of a series of concentric areas of interest. The core site is the area of key activation and flood protection. This site is surrounded by a catalytic zone, in which strategic intervention is necessary to connect the center to its surrounding neighborhoods. This is followed by the area of impact, or key neighborhoods within walking and cycling distance that, based on the recommendations herein, could simultaneously be protected from storm surge flooding while also becoming better socially connected to the waterfront. Populations in the area of impact both benefit from improved connection to the waterfront, and are critical stakeholders for the core site development as future employees, patrons, and residents.

I-9

f ar

n Lo

ive

East Street

Hamilton Street

Water Street

CORE SITE approximately 1,500 ft radius | 5 minute walk

The New Haven Harbor District is at the heart of our project site, which comprises 68 acres of land in 18 parcels.2 Over 80 percent of the area is designated underutilized—either vacant, parking, or heating oil reserve sites. Of these parcels, we pay particular attention to those that are currently owned by the Fusco Corporation and the Knights of Columbus at the Maritime Center complex, as well as contiguous highdevelopment potential properties. Fusco owns a 15-story Class A office building, two parking garages, a warehouse-style office complex currently housing phone-service provider Frontier, and a restaurant called Lenny and Joe’s Fish Tale. The 140-year-old non-profit Knights of Columbus purchased the central office tower from Fusco in January 2020.

high short- and medium-term redevelopment potential, with limited remediation or site acquisition necessary. The State of Connecticut Department of Transportation (CTDOT) owns a portion of a parcel to the north transfered during the Interstate-91/Interstate-95 redesign. Kenneth H McKenzie Jr. owns a machining shop currently on the market adjacent to the Magellan Terminal Holdings-owned oil fields. Finally, the Greater New Haven Water Pollution Control Authority is responsible for the sewage pumping station along the water, which replaced a treatment plant when waste water services were consolidated to the current East Shore Treatment Plant in the 1970s.

These parcels are unique throughout Long Wharf. Diffuse land use and contiguous ownership by well-established New Haven institutions position the site well for catalytic development for Long Wharf as a whole. They also have 17

I-95 Water Street

Hamilton Street

East Street

4 Fo

Av e

7 2 1

rf ha

ive

18 13

12 11

Fusco Owned Not Fusco Owned - Contiguous Parcels Not Fusco Owned at Present- Under Bid Not Fusco Owned - Long Term Resilience Interest

CORE SITE

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17

MAP BLOCK LOT 204 0023 00100 204 0029 00100 204 0529 00101 177 0530 00300 177 0530 00400 177 0530 00402 177 0530 00401 177 0530 00200 080 0530 00102 080 0530 00101 080 0530 00100 205 0529 00300 205 0529 00200 205 0529 00203 205 0529 00203 205 0529 00201 205 0529 00102 205 0529 00202

ADDRESS 4 Hamilton St 600 Long Wharf Dr Water St 26 Water St 28 Water St Forbes Ave 15 Forbes Ave Water Street Long Wharf Dr 585 Long Wharf Dr Long Wharf Dr 555 Long Wharf Dr 545 Long Wharf Dr Long Wharf Dr Long Wharf Dr Long Wharf Dr 501 Long Wharf Dr Long Wharf Dr

OWNER Fusco Harbour Associates Sportech Venues Inc State of Connecticut Kenneth H McKenzie Jr Magellan Terminals Holdings, L.P. Magellan Terminals Holdings, L.P. Magellan Terminals Holdings, L.P. Magellan Terminals Holdings, L.P. Fusco Harbour Associates Fusco Harbour Associates City Of New Haven Sewage Fusco Harbour Associates Knights of Columbus Fusco Harbour Associates Fusco Harbour Associates Fusco Harbour Associates Fusco Harbour Associates Fusco Harbour Associates

USE Warehouse Style Offices Betting Agency State Highway Former Machining Oil Fields Oil Fields Oil Fields Oil Fields Parking Garage Parking Garage Sewage Pumping Station Class A Office 9-story Class A Office 15-story Class A Office Waterfront Landscape Waterfront Landscape Restaurant Landscaping

ACRES 8.88 9.78 1.08 0.30 8.86 3.74 4.80 7.48 3.33 2.04 1.86 2.31 1.62 1.35 1.35 2.63 1.83 1.19

CATALYTIC ZONE 0.5 miles | 10 minute walk | 3 minute cycle

The catalytic zone extends along the major roadways approximately a half-mile in either direction around the central site, including Long Wharf Drive, Water Street, East Street, and Chapel Street. These streets are arteries to more dense and active surrounding areas, with several significant neighborhood corridors in close proximity including Wooster Street, Chapel Street, and Grand Avenue. This area also includes Union Station, which if appropriately accessed opens the site not only to New Haven, but the entire northeast corridor.

1 2 3 4

Union Station Wooster Street Chapel Street Grand Avenue

Opportunities in the catalytic zone are threefold— • Improved pedestrian and cycling experience between existing neighborhood nodes in the catalytic zone will significantly decrease the sense of isolation in our main site. • Urban acupuncture interventions in the catalytic zone have an extended impact on the central site by serving as satellites of activation, bridging to existing population centers. • These roads tie high-ground and low-ground along the waterfront. Strategic road raising can protect sections of the site, or connect to areas of raised egress.

1 10 10

10 2

IMPACT ZONE 1.5 miles | 30 minute walk | 7 minute cycle

The impact zone extends into six neighborhoods—Long Wharf, Hill East, Downtown South, Wooster Square, Fair Haven, and the Annex. These neighborhoods are within 1.5 miles of the site—a half-hour walk or a seven-minute cycle away. These neighborhoods would both benefit from improved waterfront access, as well as enliven the waterfront itself as an amalgamation of their unique traits. From New Haven’s cultural and retail center Downtown to the historic residential areas of Hill East, Wooster Square, and Fair Haven, the waterfront would benefit greatly as a new site for jobs, homes, and recreational hubs.

NEIGHBORHOOD

TRACT NO.

ACRES 1

Long Wharf

CT140200

86.3

2 3

Hill East

CT140300 CT140400

29.7 55.3

4 5

Downtown

CT140100 CT361401

28.3 17.3

6 7

Wooster Square

CT142100 CT142200

22.5 38.5

8 9

Fair Haven Southwest

CT142300 CT142400

42.5 50.1

CT142700

133.6

Annex

HISTORY The Native American Quinnipiac tribe once lived, fished, and farmed in what is now considered New Haven. In 1638, Reverend John Davenport led a group of English Puritans from the Massachusetts Bay Colony and settled on Quinnipiac land. Under attack by the neighboring Pequot tribe at the time, the Quinnipiac sold their land to the settlers in exchange for protection. This began the first reservation in what would later become the United States, as well as the practice of religious conversion, forced migration, pandemic deaths, and ethnic cleansing ubiquitous with European settlement. Most of the remaining Quinnipiac joined other refugees from the area during the Quinnipiac Trail of Heartaches as they were moved across Connecticut, New York, Massachusetts, New Jersey, and beyond. The town changed its name to New Haven in 1640, became a part of the Connecticut Colony in 1664, and was incorporated as a city in 1784. The city’s harbor was integral to its growth. New Haven Harbor is located on the northern shore of Long Island Sound, an estuary created by glacial retreat. The Mill River and Quinnipiac River meet at the shallow inner harbor, which was initially too shallow to be successful. During the early and mid-19th century, major improvements were made to harbor infrastructure including channel dredging and construction of three breakwater structures. In 1810, entrepreneur William Lanson—formerly enslaved in Southington, Connecticut—completed a 1,500 foot extension to the harbor’s wharf, making it the longest in the nation. Beginning in the colonial period and continuing through the early settlement era, agricultural products were exported from the harbor to points in the West Indies and later to China. During the post-bellum industrial period 25

1937

1892

1967 26

1921

1970

1937

2019

and continuing through World War II, the maritime trade was driven by imports of coal used in local industry and electricity generation. Intense industrialization of the harbor area continued with the growth of petroleum and natural gas. The core site is located entirely on fill. Water Street to the north used to be along the shoreline, with land filled incrementally over time. First land was claimed for the Sargent Factory in the late 19th century for manufacturing hardware.3 By the early 20th century a stretch of land southwards housed Waterside Park, complete with playgrounds, a bathing pier, and allees of lindens and willows.4 In 1949, the City of New Haven initiated the Long Wharf Redevelopment Project. This resulted in dredging the harbor, filling the land between the railway and the harbor, developing the Long Wharf Industrial Park, and constructing I-95. This highway interchange took over the land once used for Waterside Park and bisected the city, further separating people from the water. By 1954 most of core site’s modern footprint had been filled to house Sargent’s extensions.5 Currently, Long Wharf comprises 352 acres of largely underutilized land adjacent to the waterfront. Its boundaries are delineated by Water Street to the North, Union Avenue to the West, and Hallock Avenue to the South. It is anchored by a number of significant uses, including the Fusco Maritime Center Office, IKEA, YaleNew Haven Hospital, Long Wharf Theatre, La Quinta, Assa Abloy (which acquired the Sargent Company in 1996), Jordan’s Furniture, and Food Truck Paradise. 27

ENDNOTES 1 2 3 4 5

2019 Infogroup, Inc. All rights reserved. Esri Total Residential Population forecasts for 2019. Long Wharf Responsible Growth Plan. www.newhavenct.gov/civicax/ filebank/blobdload.aspx?blobid=31757 Sargent Lock History. www.sargentlock.com/en/menu/about-us Elizabeth Mills Brown (1976) New Haven, a Guide to Architecture and Urban Design. New Haven, Yale University Press, 94. History of Long Wharf in New Haven. Thomas R. Towbridge, Esq. (1863) Papers of the New Haven Colony Historical Society: Volume 1 New Haven Colony Historical Society January 1, 1865 MSS-57B USE IMAGE play.google.com/store/books/details?id=s4YNAQAAIAAJ&rdid=bo ok-s4YNAQAAIAAJ&rdot=1 connecticuthistory.org/wp-content/uploads/2013/04/ AnEthnicHistoryofNewHaven2.pdf www.newhavenlandtrust.org images.library.yale.edu/nhsize3/YVRC/D9990/258093.jpg connecticuthistory.org/towns-page/new-haven/ teachersinstitute.yale.edu/curriculum/units/1984/6/84.06.10.x.html www.newhavenindependent.org/index.php/archives/entry/define_ the_city ngmdb.usgs.gov/topoview/viewer/#15/41.2961/-72.9129

PREVIOUS PLANS AND PUBLIC INVESTMENTS

The city and the state explicitly recognize Long Wharf’s importance in prior studies, plans, and long-term investments. Over the past thirty years, a number of projects have been undertaken to better address the area’s challenges, understand its assets, and strengthen its potential. Two megaprojects lie at the heart of public investment in the area--the New Haven Harbor Crossing Corridor Improvement Program and the New Haven Rail Yard Facilities Improvements Program. Begun in 1989, the New Haven Harbor Crossing Corridor Improvement Program is a $2 billion megaproject to upgrade highway operations with accompanying improvements along 7.2 miles of I-95 and I-91, Connecticut Route 34, and US-1. CTDOT, the Federal Highway Administration (FHWA), and the South Central Regional Council of Governments (SCRCOG) worked together to design and implement the project. The Canal Dock Boathouse, a $40 million recreational asset completed in 2018, was included to mitigate the demolition of the historic Yale Adee Boathouse for the new Pearl Harbor Memorial Bridge.1 A 0.73-mile onroad, two-way protected trail segment of the East Coast Greenway along Long Wharf Drive was completed in 2019 to support local cycling and pedestrian transit.2 The state also invested $1.15 billion in the New Haven Rail Yards, carried out between 2013 and 2017.3 Improvements to the 150-year-old rail yards included the installation of a new substation, storage facilities upgrades, and an extension that increased the number of employees from 700 to 1600. These capital improvements support America’s busiest rail line connecting Connecticut commuters to New York City and long-distance Amtrak travelers throughout the Northeast.

While critical to the region, both of these projects have significant local impact and are subject to local risks. Elements of both are at the mercy of stormwater flooding and sea level rise. Subsequent state and federal funding have been distributed to protect these investments. In 2018, $8 million in State Bond Commission funds were committed to installing living shorelines along Long Wharf and East Shore Park to protect the New Haven Rail Yards and the Waste Water Treatment Plant respectively. $8.3 million of the state’s National Disaster Resilience Competition funds are committed to Connecticut Connections Coastal Resilience Plan, which includes the New Haven Rail Yards. A state-based $8.6 million dredging project is also underway to restore the harbor to its functional 35-foot depth, while a $3 million federal and state study was completed in 2018 to explore deepening the harbor further in order to expand commercial operations.4 This last project is currently under review with $25 million in additional state appropriations to kickstart near-term federal approvals and funding. The Long Wharf Responsible Growth Plan serves as a culmination document to coherently guide a vision for the area based on the foundation of these capital works. While these projects demonstrate a momentum of investment, much remains needed to protect these critical regional assets. The nature of this infrastructure also has an outsized impact on the neighborhoods that surround them. Though the regional transportation infrastructure is a critical asset to the northeast megaregion’s $3 trillion economy, the neighborhood through which it passes is one of the poorest and most vulnerable in the city. For example, close to 150,000 vehicles pass over the area

on I-95 each day, with great impact to sound and local air quality. Leveraging infrastructure improvements with comprehensive opportunities for climate-resilient physical and economic development at the local level will be critical to project success. This section reviews the work done to-date, and identifies how the resilience recommendations in this document build off of the momentum and integrate prior efforts and investments.5 It covers four key documents.

The Long Wharf Responsible Growth Plan serves as the city’s core redevelopment vision for Long Wharf, including initial land use concepts and environmental design. The Long Wharf Flood Protection Study and Living Shoreline Design supplies the most up-to-date sea-level rise and flooding information and outlines the initial design for nature-based protection mechanisms along Long Wharf Drive. The Coastal Storm Risk Management Draft Feasibility Report

& Environmental Assessment outlines initial plans from the Federal Emergency Management Agency (FEMA) for improving flood protection along Long Wharf, using information provided by the prior Flood Protection Study. Finally, the National Disaster Resilience Competition Phase II Application offers an outline of Connecticut’s current regional approach to coastal redevelopment. As the application for some of the funds being used for resilience work along Long Wharf presently, it both serves as a guide to current activities as

well as identifies the support structure and best practices for integrating flooding mitigation and economic development in the state.

LONG WHARF RESPONSIBLE GROWTH PLAN Prepared by Perkin Eastmen, City of New Haven, Langan, Real Estate Solutions Group LLC, Appleseed, W Architecture, Fitzgerald & Halliday, Inc., 20186

The Long Wharf Responsible Growth Plan serves as the overarching vision for Long Wharf as a whole. As of 2019, the plan was voted on by the Board of Alders and successfully incorporated into the city’s Comprehensive Plan. The plan establishes four key goals for Long Wharf — • Connectivity for a continuous waterfront - Need for wayfinding and signage - Complete Streets with improvement of pedestrian and bicycle infrastructure - Connection to the Union Station Tunnel • Water Management and Coastal Resilience - Creation of a stormwater park and green infrastructure - Bioswales, berms, or bioretention sites - Living Shoreline for flood protection - Elevated walkway in Harbor District • Placemaking - Placemaking by the water and water programming - Lighting and mitigation of noise level • Development - Affordable housing, jobs, commercial development The Plan separates Long Wharf’s 352 total acres into five Walking Districts, defined by a five-minute walking radius of 1,500 ft— 34

• • • • •

Gateway District Innovation District Market District Parkway District Harbor District

The focal site of this plan lies in the Harbor District, consisting of approximately 68 acres. The plan envisions the Harbor District to be a “self-sufficient, walkable, mixed-use neighborhood,” including 2,700 residential units, 41,000 square feet of office space, 191,500 square feet of retail, 116 hotel rooms, and structured parking for 1,166 cars. Reclaiming the waterfront in a way that fosters city connection to the harbor through water programming and shoreline placemaking is at the core of the plan recommendations. An integral part to the plan is the suggestion to raise the existing bulkhead that runs along the shoreline between the Boathouse and the Magellan Terminal to create a continuous barrier and elevated walkway integrated with a new wharf. Streetscape design that integrates pedestrians, bikes, and green infrastructure is also a key element to improve connectivity with the city, and establish the harbor as a destination. Specifically, the plan states that development in the Harbor District is “based on reorienting the district

around the harbor, leveraging and Route 1 access and maximizing visibility from I-95 and I-91 in order to create value for upland development parcels.“ It breaks down the site into three areas, connected by a system of smaller streets to establish an urban neighborhood fabric that maximizes views and access to the Harbor. A new neighborhood main street directs pedestrians from the upland areas to the wharf, while the secondary street grid houses retail to support residential uses above. Larger, more automobile oriented retail is envisioned on Water Street/Route 1 to take advantage of the traffic volume and visibility.

and debris around Food Truck Paradise are stakeholder identified issues. Equitable development in terms of process, access, and economic development conclude the report, as well as sustainable water use, materials, and renewable energy. As part of the Comprehensive Plan for the city, the Long Wharf Responsible Growth Plan, its broad land use and development visions serve as a guide for recommendations. In particular, this report explores the elements most pressing to begin to encourage redevelopment in the Harbor District, ensuring that such work is sustainable and place-based.

The plan is powerful in its definition of a continuous waterfront for the city, with established connections to Wooster Square, Downtown, the Hill, and Long Wharf Park. It identifies a number of catalytic projects, including a stormwater parkway between the rail yards and the rest of Long Wharf that serves as a connectivity spine as well as a flooding mitigation tool. Incorporating multiple benefits, like mitigating highway noise, integrating affordable housing, increasing jobs and commercial development, and managing trash

LONG WHARF FLOOD PROTECTION STUDY AND LIVING SHORELINE DESIGN Prepared by GZA, Inc. for the City of New Haven Project Team _ Utile, Biohabitats, Cambridge Systematics, May 20197

The Flood Protection Study for Long Wharf conducted by GZA GeoEnvironmental received bond funding by the state in late 2018, shared with a living shoreline study on the East Shore. GZA’s study includes analysis of sea level rise, coastal flooding, and erosion. It includes— • planning and design for flood mitigation • shoreline protection measures Long Wharf to Union Avenue • detailed flood vulnerability analysis • flood control strategies that address economic concerns related to business disruption • ways in which the flood mitigation alternatives benefit the general public The study incorporates industry-accepted science for sea level rise and coastal flooding, including statistical analysis on historical storm surge flood level data, high resolution terrain data, hydrodynamic computer flood modeling, and scenario-based flood maps to evaluate the vulnerability of the area to tides and storm surges. It uses a “risk-based” approach, defining coastal flood hazards in terms of probability, consistent with methods used by state and federal agencies.

The design includes an integrated approach to flood protection, shore protection, and environmental and ecological benefits—including a seawall, a buried revetment, beach nourishment and wetland enhancement, tidal flats, and oyster reef submerged breakwaters. This plan also creates a new level of access and usability of the shoreline for the public by incorporating a timber walkway. The plan does not include flood protection designs for the core site. However, tactics used along Long Wharf could benefit the Harbor District. Specifically, combining on-shore flood inundation protection (floodwalls, building-based protections) with off-shore wave protections (oyster castles and breakwaters) can be done where spatially appropriate to better mitigate a broader set of risks. The study shows that the waters off-shore of the core site do not intersect with the access channel, suggesting opportunity of off-shore wave protection.

COASTAL STORM RISK MANAGEMENT DRAFT FEASIBILITY REPORT & ENVIRONMENTAL ASSESSMENT Prepared by U.S. Army Corps of Engineers and the Connecticut Department of Energy & Environmental Protection, December 20198

•

The U.S. Army Corps of Engineers (USACE) Storm Risk Management Study is the key technical study for future flooding prevention measures at Long Wharf. It explicitly builds on the flood risk report done by GZA. The latest feasibility study is preliminary, with the final report scheduled for approval in December 2020, project partnership agreement in 2022, construction in 2024, and completion in 2027. The study analyzes how to reduce coastal storm risk to protect infrastructure, commercial development, and keep people safe.

a 5,950 linear foot coastal floodwall that runs parallel to the Interstate 95 embankment (top elevation +15 feet NAVD88) • 2 pump stations • 475 linear feet of 5 deployable road closures • potentially flood-proofing 14 Long Wharf Maritime Center structures The report states that it will build on specific flooding recommendations, including non-structural-building based recommendations, in its final report.

The study reviews four alternatives and subsets of alternatives. • Alternative 1: No Action • Alternative 2: Non -Structural • Alternative 3A: Existing Embankment • Alternative 3B: Enhanced Embankment (Tentatively Selected Plan (TSP)) • Alternative 4A: Shoreline Floodwall • Alternative 4B: Extended Shoreline Floodwall The Tentatively Selected Plan for an enhanced embankment along I-95 was chosen based on its comparative cost-benefit ratio of 2.2. This option is expected to maximize annual benefits by $6,220,000. The plan consists of—

It is important to note that the current study does not include development potential for the Harbor District in its cost-benefit analysis. It evaluates but recommends against a seawall at the center site, as suggested in Responsible Growth Plan, both for alignemnt constructionn and design dificulties as well as the fact that it does not concider the social and economic benefits that could result from this protection. This is a key discrepency that this plan seeks to clarify and explore. Aligning development goals, flooding mitigation measures, and environmental impact will be key to successful implementation.

Alternative 3B (Enhanced Embankment) is the Tentatively Selected Plan (TSP) AAE Benefit $14,210,000 AAE Costs Net Benefits Benefits Cost Ratio

$11,090,000 $240,000 1.3

Other alternatives reviewed in the U.S. Army Corps of Engineers Storm Risk Management Study—

Alternative 2: Non-Structural

Alternative 3A: Existing Embankment

Provide non-structural storm risk management benefits through a

Deployable closure structures under I-95 used to prevent floodwaters

combination of elevating or floodproofing eligible structures within

from passing through where Long Wharf Drive, Canal Dock Road

the study area. 138 structures were initially found eligible, the majority

pass under I-95 and where Brewery Street passes under the Oak Street

of which are large commercial properties. 12 residential structures

Connector. For costing purposes, a post and panel type system was

are potential candidates for elevating the first floor,126 commercial

assumed. These systems would need to be stored near the openings and

structures are potential candidates for either wet or dry floodproofing,

installed by a work crew prior to a storm event. Protection only up to a

though extremely difficult if not impossible to properly achieve.

flood elevation of approximately 10.5’ NAVD88. Pumps will be required to move any stormwater out of the protected area.

AAE Benefit $2,210,000 AAE Costs $1,830,000 Net Benefits $380,000 Benefits Cost Ratio 1.2

AAE Benefit $9,330,000 AAE Costs $2,800,000 Net Benefits $5,800,000 Benefits Cost Ratio 3.3

Alternative 4A: Shoreline Floodwall

Alternative 4B: Extended Shoreline Floodwall

Approximate 6,850 foot long pile supported floodwall along Long

Includes all of the structures in alternative 4A except for the Long Wharf

Wharf Drive (rather than along I-95). Due to the low elevations, the

Drive closure structure. The floodwall extends approximately 3,000 feet

floodwall would be as high as 9 feet. At least 4 deployable structures

along the Maritime Center. The floodwall would be as high as 13 feet

would be required, one at Brewery Street (described in option 3A), one

(NAVD88). Part would be along an existing seawall alignment

crossing Long Wharf Drive roughly 65’ x 7’, one at the Canal Dock

and would pose difficult construction and design issues.

Boathouse Access 35’ x 9’, and one at the Long Wharf Park parking

Additional closure structures would be needed at the entrance to the

area 50’ x 5’. Additional access doors would be needed to make the

Tank Farm, crossing East Street, and at the intersection of Water Street

Long Wharf Park accessible.

and East Street. At least one additional pump is needed.

AAE Benefit $14,210,000 AAE Costs $7,410,000 Net Benefits 4,880,000 Benefits Cost Ratio 1.9

AAE Benefit $14,210,000 AAE Costs $11,090,000 Net Benefits $240,000 Benefits Cost Ratio 1.3

NATIONAL DISASTER RESILIENCE COMPETITION PHASE II APPLICATION Prepared by the State of Connecticut for the U.S. Department of Housing & Urban Development, October 20159

In 2016, Connecticut was one of thirteen grantees across the nation to receive block grant funding through a two-phase U.S. Department of Housing and Urban Development’s (HUD) National Disaster Resilience Competition (NDRC) for resilience planning and implementation. The State received over $54 million in funding, building off of $10 million received for Bridgeport through Rebuild by Design two years prior. As part of the application, Connecticut established the State Agencies Fostering Resilience (SAFR) workgroup, made up of nine state agencies and several institutions including the Connecticut Institute for Resilience and Climate Adaptation (CIRCA), CT DEEP, Connecticut Department of Housing (DOH), Connecticut Office of Policy and Management (OPM), and Connecticut Department of Economic Community Development (DECD). Informed by partner organizations, including councils of government, environmental and housing non-profits, the CT Green Bank, and state utilities and foundations, the task force is well-informed to integrate holistic and sustainable principles of resilient development. The SAFR Council is responsible for creating a Statewide Resilience Roadmap focusing on areas of regional or statewide significance such as the rail yard and Union Station area. While the proposed New Haven 44

pilot project was not federally funded in response to this application, its implementation was projected to generate $77 million in benefits, more than offsetting the estimated $51 million in costs. In addition to garnering the NDRC funds, the application compiles information about destruction from Hurricane Sandy, an important series of metrics for future proofing the site. Long Wharf suffered coastal surges ranging from 1 to 7 feet high as far inland as Church Street. Flood waters infiltrated the sanitary system running along Union Avenue and the combined sewer overflow outfalls. Backflow over-capacitated the system with water collected from the 580-acre upland watershed, flooding the Hill Neighborhood and Long Wharf. Limitations to egress posed a danger to the community. Over 500 units of low income and elderly housing were damaged, the New Haven Rail Yard was submerged, and the South Central CT Regional Water Authority’s main offices and Emergency Operations Center were inundated. Existing conditions limit economic revitalization of the community, due to flood risk, disconnection from the rest of the city, and land use marked by surface lots and low density. Tackling these challenges holistically will be critical for development in this area.

ENDNOTES 1 2 3

7 8

I-95 New Haven Harbor Crossing Corridor Improvement Program. www.i95newhaven.com East Coast Greenway Website. map.greenway. org/?loc=4,40.31304,-91.66992 Regional Plan Association (2014) Getting Back on Track. rpa. org/uploads/pdfs/RPA-Getting-Back-on-Track.pdf, Gov. Malloy: Investment In New Haven Rail Yard Facilities Demonstrates State Commitment To Best-In-Class Commuter Line. Connecticut Department Of Transportation News Release, June 5, 2014. portal.ct.gov/ dot/news-from-the-connecticut-department-of-transportation/2014/ gov-malloy-investment-in-new-haven-rail-yard-facilities-demonstrates-state-commitment-to-bestinclass U.S. Army Corps of Engineers (2018) New Haven Harbor Navigation improvement Project Connecticut. www.nae.usace.army.mil/Portals/74/docs/Topics/New%20Haven/EIS/2-DraftNHH-EIS.pdf?ver Senator Looney and Rep. Paolillo Announce East Shore Park and Long Wharf Flood Control Improvements. Connectiut Denate Democrats. July 20, 2018. www.senatedems.ct.gov/looney-news/1803-looney-180720#sthash.xnclNsM3.5aqMd3E4.dpbs City of New Haven (2019) Long Wharf Responsible Growth Plan. www.newhavenct.gov/gov/depts/city_plan/plans_n_projects/long_ wharf.htm Long Wharf Protection Study and Living Shoreline Design. www. ctfloods.org U.S. Army Corps of Engineers (2019) Coastal Storm Risk Management Draft Integrated Feasibility Report & Environmental Assessment. www.nae.usace.army.mil/Portals/74/docs/Topics/FairField/DraftMain-Report-EA-13DEC2019.pdf National Disaster Resilience Competition Phase II Application. portal. ct.gov/DOH/DOH/Additional-program-pages/NDRC-Phase-2-Application

SITE ANALYSIS

A comprehensive analysis of the site and its proximity, including community, environment, land use and infrastructure, connectivity, and economics, was performed to understand existing conditions in the area. Methods included primary and secondary document research, synthesis of census data, key stakeholder interviews, and site visits.

• • •

• • • •

•

The site analysis is outlined thematically, and spans our concentric site designations. A Strengths, Weaknesses, Opportunities, and Threats analysis summarizes our finding across the analyzed sectors relevant to opportunities for achieving resilient and connected redevelopment of the Harbor District. The conclusions of the site analysis feed in the identification of the Vision and Goals section, building directly into the site design and recommendations.

STRENGTHS

WEAKNESSES

OPPORTUNITIES

THREATS

Ongoing city and private sector development Waterfront views Proximity to transit hub significant to regional economy Proximity to downtown Opportunity zone Infrastructure investment to support flood resilience Low residential vacancy and high demand for multifamily Robust market for eds and meds to fuel commercial development Job growth outpaces the state

• • • • • • • • •

Lack of distinct identity in the city Air Pollution and Highway Noise Windy Near the Waterfront Bad Smell Near CSOs Lack of Signage Traffic Safety Concerns Lack of Lighting Lack of connectivity to surrounding areas Aging Infrastructure

•

• • • •

Advancing both the city and the state as destinations Supplying vulnerable populations in need of affordable and senior housing Regaining waterfront for ecological and human benefit Placemaking to address connectivity for safe cycling and pedestrian experience Increase access to green space Branding the site/signage Flooding mitigation to encourage redevelopment OZ Prospectus for Fusco Site

• •

•

• • •

Coastal and stormwater flooding Uncertainty of public and private investment post COVID19 DEEP Coastal Permitting process that minimizes the importance of social and economic context and assets Lack of buy-in from private or public stakeholders Need of sustainable funding Climate change

COMMUNITY

SITE ANALYSIS

Community analyses are important for understand existing conditions with regards to demographics and the nature of a site to assess its potential assets, challenges, and stakeholders of interest. The Community Analysis consists of the following sections— • Census Review • Local Assets • Historic Districts • Representation • Environmental Justice The census review uses census tract data for Long Wharf and its two directly adjacent residential and commercial tracts (Downtown South and Wooster Square South) to understand the neighborhood characteristics associated with the core site. This decision is based on the fact that the census tract where the core site is located is dominated by the industrial park and includes very few residents. The southern portion of Wooster Square and the 9th Square areas of downtown are the residential areas most closely associated due to proximity. The census data was gathered using Esri Business analyst online, and uses 2019 data, 2018 five-year ACS data, and 2024 projected data for tracts CT140200, CT140100, and CT142200.

The census review indicates that while Long Wharf itself is heavily dominated by large industrial use and low residential population, the population centers that fall within the catalytic zone study bounds are diverse in terms of income, education, and homeownership. Local assets identify the location of open space, grocery stores, schools, and other significant centers in proximity of the study area. The site is in close proximity to several National Register of Historic District neighborhoods as well as local historic districts. These designations help to define the character of these sites as places, which can be drawn on by future development to integrate and reflect local history and culture. Representative wards and districts as of 2020 are important for any land use or development that requires legislative representation. CT DECD identifies the state’s most fiscally and economically distressed municipalities in order to target funds for housing, insurance, and economic development. Identifying the city’s environmental justice burdens will be important for targeting development recommendations appropriately.

We use this data to analyze community characteristics related to demographics, economic and educational standing, and home ownership and characteristics. In addition, we compare this data to the city, the state, and five neighborhoods within a 20 minute walking-shed.

Population

3,632,883

2019 Population

1.6%

2010-2019 percent change

Household No.

1,386,447 2019 Households

1.7%

2010-2019 percent change

CONNECTICUT

133,379

2019 Population

2.8%

2010-2019 percent change

2019 Population

19%

2010-2019 percent change

2.54 2019 Household Size

50,187

2019 Households

2.7%

2010-2019 percent change

NEW HAVEN

6,567

Household Size

2.43 2019 Household Size

3,934

2019 Households

21%

1.67

2019 Estimate

2010-2019 percent change

2019 Household Size

SITE TRACTS 2019 Estimate 52

Age

CENSUS REVIEW

41.5 2019 Median Age

31.2 2019 Median Age

The site census tracts show a smaller household size and a younger age than the rest of the state. New Haven’s population is growing slightly faster than Connecticut, and the site census tracts are growing much faster than both. Between 2010 and 2019, the population grew by 20%. The age range is dominated by the young professional age range, 25 to 35, with a median age of 31.

31.2 2019 Median Age

2019 Estimate 53

Race and Ethnicity

CONNECTICUT

NEW HAVEN

SITE TRACTS 2019 Estimate 54

Change Over Time

New Haven and site tracts area have diverse populations, yet the diversity ratio changes over time are similar across state, city, and site. Over 25 percent of the study area is Hispanic. One of its neighbors, Fair Haven, is over 70 percent Hispanic. It is important that future development is defined with and reflects the needs of the city’s minority population. Representation in planning and design efforts, as well as multilingual meetings and signage, will be critical to the area’s success.

2010-2019 Percent Change 55

VA CA NT

9.0

Home Ownership

59.7%

OCCUPIED RENTER

OCCUPIED OWNER

31.3%

VA CA

CONNECTICUT

62.7%

OCCUPIED RENTER

74.4%

OCCUPIED RENTER

OCCUPIED OWNER

26.2%

VA CA

17 .6 %

NEW HAVEN

OCCUPIED OWNER

SITE TRACTS 2019 Estimate 56

8.0%

Change

Vacant

Occupied Owner

Occupied Renter

Vacant

Occupied Owner

Occupied Renter

Vacant

Occupied Owner

Occupied Renter

The site tracts have a higher residential vacancy rate than the rest of the city or state, and a lower owner occupancy rate. While vacancy is increasing in the city, it has decreased in the site tracts over the past ten years. Vacancy increases can be related to a decrease in population as people move elsewhere, or an increase in housing stock. Owner occupancy is also dropping, though at a lower rate than the rest of the city.

2010-2019 Percent Change 57

Income

Income Brackets

$ 75,402 2019 Median Household

7.4%

2019-2024 Percent Change

$108,231

CONNECTICUT

2019 Average Household

$ 43,702 2019 Median Household

10.4%

2019-2024 Percent Change

$ 65,928 NEW HAVEN

2019 Average Household

$ 52,392 2019 Median Household

12.6% 2019-2024 Percent Change

$ 94,141 SITE TRACTS

2019 Average Household

2019 Estimate 58

2019 Estimate

Net Worth

$188,042 2019 Median Household

$233,590 2019 Average Household

$14,789 2019 Median Household

$245,042 2019 Average Household

$13,666 2019 Median Household

$108,489 2019 Average Household

Median household income in the study area is slightly higher than the city, but lower than the rest of the state. Average income is almost 30 percent higher, however, indicating a small number of much higher earning households. Net worth is significant for understanding wealth outside of income, including investments and real estate holdings. Net worth in the site tracts is lower than the median and average of the city, indicating a higher level of economic vulnerability. Similarly to the relationship between median and average income, the extreme disparity in median and average net worth reveal a small concentration of high net worth individuals—particularly at the city and site levels.

2019 Estimate 59

Employment

Unemployment

64.6%

White Collar

16.7%

Blue Collar

18.7%

CONNECTICUT

5.4%

Services

57.2%

White Collar

16.0% Blue Collar

26.8%

NEW HAVEN

8.0%

Services

80.1%

White Collar

6.6%

Blue Collar

13.4% SITE TRACTS 2019 Estimate 60

4.7%

Services

2019 Estimate

Top Employment Sectors 26.5%

Educational services, and health care and social assistance

11.5%

Professional, scientific, and management, and administrative and waste management services

10.6%

Retail Trade

41.3%

Educational services, and health care and social assistance

9.4%

Arts, entertainment, and recreation, and accommodation and food services

9.3%

Professional, scientific, and management, and administrative and waste management services

52.2%

Educational services, and health care and social assistance

13.4%

Professional, scientific, and management, and administrative and waste management services

7.4%

Manufacturing

The combined site tracts have a higher percentage of white collar jobs than the city or the state, dominated by the educational and medical fields. While the state as a whole is a center for these fields, the concentration is higher in New Haven, 41.3 percent of the workforce, and even higher in our site context, 52.2 percent. Unemployment is lower in the site tracts than both city and state as well, 4.7 percent compared to 8.0 percent at the city level and 5.4 percent at the state level. These statistics align with the fact that the site tracts include a part of the central business district, a major employment generator.

2018 ACS 5-Year 61

Education

10%

27%

25%

37%

CONNECTICUT

15%

31%

19%

35%

NEW HAVEN

15%

10%

66%

SITE TRACTS

2019 Estimate

Poverty

10.0%

24.5% The strength of the Educational and Medical sectors in the study area aligns with its higher education levels and lower poverty level than the rest of the city. The “Income Below Poverty in Past Year” statistic, however, remains higher than the rest of the state.

17.6% Income Below Poverty in Past Year ACS 2013-2017

Population

Race Ethnicity

8,473 2019 Population

21.4% DOWNTOWN

2010-2024 Percent Change

3,258 WOOSTER

2019 Population -2.5% 2010-2024 Percent Change

11,011 2019 Population

2.7% FAIR HAVEN WEST

2010-2024 Percent Change

6,512 2019 Population

-3.1% ANNEX

2010-2024 Percent Change

6,103 2019 Population

7.0% HILL EAST

2010-2024 Percent Change

2019 Estimate

Income

Unemployment

$45,964 13.3%

2019 Median Household

2019-2024 Percent Change

$72,295

2.8%

2019 Average Household

$52,282 9.5%

2019 Median Household

2019-2024 Percent Change

$72,569

7.3%

2019 Average Household

$35,742 9.3%

2019 Median Household

2019-2024 Percent Change

$48,194

14.2%

2019 Average Household

$65,404 8.6%

2019 Median Household

2019-2024 Percent Change

$72,295

6.4%

2019 Average Household

$42,120 8.7%

2019 Median Household

2019-2024 Percent Change

$55,907

12.8%

2019 Average Household

2019 Estimate

Understanding the surrounding neighborhoods will be important for locally tailoring development. Downtown has very little unemployment, while income in all five neighborhoods studied is projected to grow by over 8.5 percent in the next five years. Fair Haven, the Annex, and the Hill have large minority representation. All three populations are over 50 percent Hispanic origin. 35 percent of the population in the Hill is black alone, while 34 percent of people in Fair Haven identify as other. These later two neighborhoods also face the highest rates of unemployment.

9 17

7 6

11 6

5 4

12 8

3 13

10 7

2 1

3 4

8 6 15

11 12

3 13

2 14

LOCAL ASSETS There are several key local assets in the area. The Canal Dock Boathouse is directly adjacent. Opened in 2018, it is designed to offer marina activities like kayaking and paddle boarding.

famous pizza, is under a mile. This area is surrounded by a historic neighborhood with a wealth of activities including the Sunday Farmer’s Market. The New Haven Green and Town Hall are also within the walking shed.

Metro North is close by as well, opening up the site to the Northeast. Yale New Haven Hospital, the city’s largest employer, is just under two miles away. New Haven’s Little Italy, Wooster Square with world

The edge of the Fair Haven neighborhood is within a 20-minute walk from the site. With a population of 70 percent Hispanic origin, the site is close to a major Latinx community in the city.

1 2 3 4 5 6 7 8

PHYSICAL Canal Dock Boathouse Long Wharf Park Vietnam Veterans Memorial Park Long Wharf Nature Preserve Kimberly Field New Haven Green Criscuolo Park Wooster Square

6 7 8 9 10 11 12 13 14 15

1 2 3 4 5

ECONOMIC Metro-North - New Haven Yard United States Postal Service The Marchel Brueur Building Ikea La Quinta Inn

16 17 18 19

Bank of America Financial Center Long Wharf Theatre Food Terminal Yale Reproductive Endocrinology Assa Abloy Food Truck Paradise South Central Connecticut Regional Water Authority Jordan’s Furniture Yale New Haven Spine Center New Haven Village Suites Upper State Economic Area Pepe’s Pizza Ferraro’s Grocery

1 2 3 4 5 6 7 8 9 10 11 12 13

INSTITUTIONAL New Haven Union Train Station Hyde Leadership School Temple Medical Center Gateway Community College College Street Music Hall City Hall New Haven Public Library High School in the Community Neighborhood Music School Conte West Hills Middle School Cold Spring School John S. Martinez School Yale New Haven Hospital

13 17

12 14 11

15 16

4 10

6 7

3 4

8 9

2 2

1 1

HISTORIC DISTRICTS

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17

National Register of Historic Districts Wooster Square Oyster Point Quinnipiac Avenue River Street Ninth Square New Haven Green Chapel Street Trowbridge Square Howard Avenue Dwight Street Edgewood Avenue Winchester Repeating Arms Prospect Street Hillhouse Avenue Whitney Avenue Orange Street Upper State Street

Local Historic Districts Wooster Square City Point Quinnipiac River Elm Street

State Historic Districts Upper Davenport / Congress Avenue

1 2 3

The site is in close proximity to several National Register of Historic District neighborhoods as well as local historic districts. These designations help to define the character of these sites as places, which can be drawn on by future development to integrate and reflect local history and culture. 69

WS 70

The Oyster Point Historic District was listed in the National Register of Historic Places in 1989. It is a cohesive and well-preserved neighborhood, with a vernacular domestic architecture of carpenter builders. Its historic significance is tied to the oystering industry and other maritime activities that flourished between 1840 and 1925.1

The River Street Historic District was listed to the National Register of Historic Places in 1989. It is a historic industrial area in the Fair Haven that dates to the city days as a major industrial center between the American Civil War and World War I.4

The Howard Avenue Historic District was added to the National Register of Historic Places in 1985. It was developed as a significant residential thoroughfare developed between the 1860s and the early 1900s to connect downtown and the waterfront. Historical and architectural development along Howard Avenue to both the north and south of I-95 are linked, though their continuity of has been divided by the development of the highway.2

Wooster Square was listed on the National Register of Historic Places in 1971. After the park was installed in 1825, the neighborhood became a fashionable one in the city, though its perceived quality declined in the second half of the 19th century with increased industrialization and settlement by Italian immigrants. There were plans to raise the neighborhood for I-91, but strong community activism were able to quell these protests and achieve protection status. Many fine Greek Revival homes line the park, which is celebrated every spring with the Cherry Blossom Festival.3

REPRESENTATION

Our site is in aldermanic Ward 6. The Board of Alders is the legislative body for the City of New Haven with alderpersons elected every two-years by voters. Alders create, pass and amend local laws as well as review and approve the City’s annual budget. They meet every first and third Monday of the month, throughout most of the year. Alders are key advocates for their wards, and useful for connecting multiple stakeholders in an area. The current Alderperson for Ward 6 is Carmen Rodriguez (spring 2020). Our site is in the 10th Senate District and 95th House District. The 10th District also includes a northern portion of West Haven and is currently headed by Democrat State Senator Gary Winfield. The 95th House District covers our site and the southern portions of the Hill and the Fair Haven neighborhoods. Democrat State Representative Juan Candelaria currently represents the district (spring 2020).

ENVIRONMENTAL JUSTICE

Through the U.S. Environmental Protection Agency (EPA), federal agencies are required to identify and address disproportionately high and adverse human health or environmental effects of its activities on minority and low-income populations (Executive Order 12898). Federal agencies are also required to identify and assess environmental health risks and safety risks that may disproportionately affect children (Executive Order 13045). The U.S. Army Corps of Engineers recognizes that Long Wharf falls under both categories based on DECD rankings, as well as the fact that Long Wharf’s recreational area is used by parents and their children.5

ENVIRONMENTAL

SITE ANALYSIS

The project site has a variety of both environmental assets and threats. Its location in a coastal zone offers opportunities for water-based activities like boating, valuable views, and connectivity to coastal habitats and open space. However, it is also vulnerable to coastal flooding, combined sewer overflow, flash flooding from storm events and erosion. Other areas of environmental concern include urban heat island effect from large swaths of impermeable surface, and low tree canopy cover. These are concerns from a placemaking and comfort standpoint, as well as a public health perspective. COASTAL FLOODING, EROSION, AND SEA LEVEL RISE Coastal concerns are significant on the site. Coastal flooding, erosion, and sea level rise contribute to a number of risks, including public and private property damage due to both inundation and wave action. Based on National Weather Service records, Connecticut has experienced 15 hurricanes during the 20th century along with several other nor’easters, with significant damage to property. Hurricane Carol, a Category 3 storm in 1954, caused over $2 billion in damage,6 while more recent storms Bob (Category 2 in 1991) and Sandy (Category 3 in 2012) caused $5.63 billion7 and over $70 billion in damage respectively.8

Most of the study area is low-lying and built on fill in the last century. While there are piecemeal protections around the site, including I-95’s embankment and the planned Living Shoreline, both the central site as well as the residential areas to the north remain completely exposed under current conditions as well as projects underway or planned. A number of coastal flooding projections are relevant to consider to best understand and protect from these dynamic risks, as well as for permitting and funding purposes. These include FEMA’s Flood Insurance Rate Maps (FIRMs), the National Hurricane Center using the Sea Lake and Overland Surge from Hurricanes (SLOSH) Model, USACE Sea Level Change (SLC), and Site-Based High Resolution Modeling. The data in this section will help to define the risk assessment and mitigation selection in the Tactics section of this document. Elevation levels identified also help to define sections that can be tied into to flood proofing future development.

COASTAL FLOODING AND SEA LEVEL RISE

FEMA Flood Insurance Rate Map Legend 1 percent Annual Chance Floodplain Boundary Boundary Dividing Special Flood Hazard Zone Limit of Moderate Wave Action (LiMWA) Limit of Moderate Wave Action coincident with Zone Break

the designation becomes Coastal AE and is subject to additional regulations under zoning and building code. VE high risk zones identify areas within the 100-year floodplain that are also subject to significant storm surge and wave effects where wave heights exceed 3 feet.

Base Flood Elevation Value

FEMA Flood Insurance Rate Maps FEMA prepares the nation’s Flood Insurance Rate Maps (FIRMs), which designates and defines flood risk, serves as the basis of the National Flood Insurance Program (NFIP), and sets the foundation for state jurisdiction as well as local zoning and building code. FIRMs indicate Special Flood Hazard Areas (SFHA), which are zoned based on both risk level and base-flood elevation. High risk areas AE are those affected by the 1 percent annual exceedance probability flood, the base flood, or the 100-year flood. This means that flooding with a given base-flood elevation has a 1 percent chance of occurring in a given year. These areas have a 26 percent chance of flooding over the life of a 30-year mortgage. If an AE designation falls seaward of what is called the Limit of Moderate Wave Action (LiMWA),

The coastal perimeter of the project site is designated VE with base flood elevation of 16 feet (VE-16). The interior of the site is zoned Coastal AE with base flood elevation of 13 feet (AE-13). The AE-13 zone continues past the Limit of Moderate Wave Action from our site under the overpass to the west along Water Street until Brown Street. The highway berms bring land well out of the floodplain. The Water Street Bridge entrance also is removed from the floodplain. North of the I-95 bend remains within the AE floodplain, but with a base elevation of 12. The section of I-95 along Long Wharf is raised out of the floodplain, but has an intrusion point at Canal Dock Drive. The Long Wharf Industrial Park area also has a gradient of base flood elevations from 11 feet close to the water, dipping to 12 feet in the middle, and rising up again to 11 feet behind Union Station. FIRMS are significant for a number of reasons. The designation impacts mandates for flood insurance, as well as insurances rates. Denver’s Mile High Flood 77

National Hurricane Center using the Sea Lake and Overland Surge from Hurricanes (SLOSH) Model Category 1 Hurricane Category 2 Hurricane Category 3 Hurricane Category 4 Hurricane

| 74–95 mph | 96–110 mph | 111–129 mph | 130–156 mph

District offers a useful flier on how Flood Insurance Rate Maps’ impact flood insurance, including where changes in ratings and as well as grandfathering can offer savings.9 It also serves as the basis for the state floodplain building code.

SLOSH The National Hurricane Center’s Sea Lake and Overland Surge from Hurricanes (SLOSH) Model estimates peak hurricane surge arriving at high mean water. Surge elevation data is calculated with an accuracy of +/20 percent. This data is critical to understanding and planning for a more full spectrum of risks not captured in federal and state regulation. The majority of the site is susceptible to Category 2 storms, with small high-lying portions of the site at risk to only Category 3. Category 2 susceptibility extends under the highway overpass along Water Street, decreasing to Category 3 and Category 4 risks to the Wooster Square neighborhood. Areas along Long Wharf Drive as well as the Magellan oil terminals are more vulnerable susceptible to damage, at risk to Category 1 storms. The Water Street Bridge connector is indicated susceptible to Category 3 and 4 storms. Because of the limitation to the LiDAR height data among other data factors, this data should be used as a guide as opposed to an exact representation of potentially impacted areas.10

USACE Sea Level Change The U.S. Army Corps of Engineers projects and categorizes three scenarios of Sea Level Change (SLC)— Low, Intermediate, and High. Over a period of 50 years, from 2024 the USACE curves predict increases of 0.4 ft for the low, 0.9 ft for the intermediate, and 2.5 ft for the high. CT DEEP is required to publish Connecticut sea level change scenarios from CIRCA. CIRCA’s

recommended sea level change scenario is an increase of 0.5 m, or 20 inches, by 2050, slightly above the USACE Intermediate scenario.11

Site Based High Resolution Modeling In addition to the publicly available spatial flooding data, the GZA Flood Protection Study conducted site based high resolution modeling for the project site. The GZA study included analysis using industry-accepted science for sea level rise and coastal flooding and statistical analysis on historical storm surge flood level data with high resolution terrain data. The resolution, hydrodynamic computer flood modeling was used to characterize coastal flooding and its effect on structures and natural features to create a 500-year flood risk map, translating to a 0.2-percent chance of occurring in a given year or a 5 percent chance of flooding over the life of a 30-year mortgage. Under these conditions the flood waters in the study area can be as high as 20.7-24.0 feet during surge conditions at high tide. The only areas protected are the highway berm along the Long Wharf side of I-95 and the I-95/I-91 flyways. The Water Street underpass and the Canal Dock Road underpass are two points of intrusion near the site, creating vulnerability to the rail yards and the Wooster Square neighborhood. Flood waters also top the I-95 embankment at its center. The Army Corps Feasibility Study seeks to remediate these specific weaknesses to protect the Rail Yards, but by excluding the project site leave the current commercial spaces and residential areas to the north vulnerable.

STATUS OF COASTAL STRUCTURES AND EROSION Coastal erosion reduces the width of beaches and land along the coast, including sand and sediment transport into waterways. While the coastline tends to reshape itself into its former configuration after storms, regular management is needed for both maritime activities in active waterways as well as to prevent permanent land loss and provide buffering capacity for development on shore. The city is actively addressing erosion of the Long Wharf natural shoreline through its current construction of a living shoreline, particularly as it enhances both the recreational and environmental values. In developed areas, bulkheads and revetments can limit erosion but also can suffer failure from toe erosion and wave over-topping. The hardened shoreline is maintained by the city of New Haven and consists of steel sheetpile bulkhead and quarry stone revetment. These pieces of infrastructure have gone through cycles of repair, and are in varying degrees of shape along the waterfront. The bulkheads are in good condition to the east and northern parts of the site, but in poor condition along Long Wharf Park due to severe corrosion. Site Based High Resolution Modeling GZA 500 Year Floodplain

STORMWATER SEWAGE WATER QUALITY The large amount of impermeable pavement in Long Wharf puts our site at risk of stormwater inundation and combined sewer overflow (CSO). While the site is in a separated sewer district, there is one combined sewer overflow point and one stormwater outflow point, with another sewer overflow point to the south. Sewage collection and treatment is under the jurisdiction of the Greater New Haven Water Pollution Control Authority (GNHWPCA).12 The East Street Sewage Pumping Station is located on one of the core site parcels, at the head of the CSO. GNHWPCA updated it’s Combined Sewer Overflow Long-Term Control Plan (LTCP) in 2016, providing recommendations to remove and control discharge at the city’s outfalls. In addition, the proposed upgrades to the East Street Pump station are intended to address flood protection and double pumping capacity.

Sewershed

The New Haven Engineering Department and the nonprofit Urban Resources Initiative (URI) are working on installing bioswales across the city as part of an EPAfunded stormwater management program centered around downtown and the Long Wharf Rail Yards. A bioswale is an engineered planter adjacent to a road that collects stormwater to mitigate runoff. They have multiple benefits, from decreasing CSO discharge, creating green vibrancy on city streets, and helping keep 81

cities cooler. Based on the current project, New Haven has the highest density of bioswales in Connecticut with approximately 200 bioswales installed.13 While New Haven’s CSO levels remain in violation of the Clean Water Act, the waters of New Haven Harbor are classified by the state of Connecticut as SB throughout the harbor—a DEEP classification for coastal waters of overall good quality. Connecticut Class SB waters have designated uses for marine fish, shellfish and wildlife habitat, commercial shellfish harvesting, recreation, industrial water supply, and navigation.14

New Haven bioswale in action

Bioswale funcitonality 82

The harbor offers enough dilution to make the overall waters safe, but the areas around outfalls remain dangerous to human health after large rainstorms. Sewage-pollutants contain pathogens, heavy metals, pharmaceuticals, and chemicals as well as E.coli, viruses, and parasites. Gastroenteritis, rashes, and ear, nose, and throat infections are the most common illnesses associated with contaminated water.15 Clearly designating CSO outfalls for public identification is important for ensuring public safety. We were not able to access the CSO site during our site visit, and were unable to determine if a sign is posted.

Sewershed

Natural Diversity Data Base (Hatched) and Critical Habitat (Dots) 84

COASTAL HABITAT

The Natural Diversity DataBase (NDDB) Areas identify the general locations of endangered, threatened, and special concern species and significant natural communities denoted by the lines on the map. Two species of invertebrates, seven species of vertebrates, and five species of vascular plants are present within or close to the boundaries of the project. The critical habitat is denoted by the dots on the map. According to Connecticut DEEP’s geospatial data, the site lies in a migratory waterfowl area and just north of Long Wharf’s oyster and hard clam beds. As a federal agency acting with the potential to impact fish habitat, the Army Corps study was required to undertake an Essential Fish Habitat (EFH) consultation with National Marine Fisheries Service (NMFS). The study indicated that their alternatives involving floodwall construction in the subtidal area of the Maritime Center have the potential to impact sixteen federally managed species.

Fauna BUTTERFLIES Monarch Butterfly Black Swallowtail Butterfly MAMMALS Cottontail Rabbit

SHELLFISH Mussels Oysters Scallops Clams Cabs Snails

FISH Bluefish Striped Bass Blackfish Fluke Haddock Halibut Grouper Weakfish

FOWL Blackduck Bufflehd Canvasbk Goldeye Mallard Egrets Catbird

Flora PLANTS Milkweed (Asclepias spp) Red Mulberry (Morus rubra) Staghorn Sumac (Rhus typhina) Eastern Cottonwood (Populus deltoides) Bayberry (Myrica cerifera) Virginia Creeper (Parthenocissus quinquefolia) Poison Ivy (Toxicodendron radicans) Tall Cordgrass Mulberry Trees

INVASIVE PLANTS Mugwort (Artemisia vulgaris) Japanese Honeysuckle AOriental Bittersweet (Celastrus orbiculatus) Autumn Olive (Elaeagnus umbellata) Multiflora Rose (Rosa multiflora)

URBAN TREE CANOPY COVER East Rock 36%

Dixwell 21% Edgewood 34%

Downtown 17%

Wooster 15%

Fair Haven 13% Fair Haven Heights 43%

Hill 16% Long Wharf 3%

Annex 19%

3% - 20% 21% - 40% 41% - 60%

Long Wharf and its surrounding neighborhoods have the smallest percentage of urban tree canopies of all neighborhoods in New Haven. Tree canopy cover is important since it can mitigate the Urban Heat Island effect, the tendency for cities to be warmer than surrounding rural areas, due to the building materials and asphalt that trap heat. Urban tree canopy provides many proven and valuable environmental services, including filtering pollutants, cooling temperatures, regulating water flow, increasing health, blocking noise, and improving biodiversity.16

SUN WIND Direction

Average (mph)

Gusts (mph)

Connecticut is characterized by cold, snowy winters and warm, humid summers. Weather patterns are highly variable with generally abundant precipitation throughout the year. Temperatures along the coast are moderated by close proximity to ocean, which buffers temperature swings. The temperature averages 52°F annually along the coast, ranging from a low monthly average of 31°F in February to a high monthly average of 74°F in July. Precipitation amounts range from 31 to 63 inches per year.

Winds are very strong on the site, more so than the surrounding area based on its open coastal position. Wind protection is a defining characteristic in improving use of public space for recreation. Sun and shadows also define conditions on the site. The tall office buildings provide significant shade to many of the walking spaces on the Fusco property, making these areas blistery during the winter.

LAND USE AND INFRASTRUCTURE

SITE ANALYSIS

LAND USE

The primary site subject to this study is characteried by its zoning designation, highway proximity, and oil stationing site. The nature of its land use and infrastructure creates challenges, but also offers opportunities for creative development. The built infrastructure of the main areas of study are mixed between well-maintained office structures, older buildings, and large swaths of pavement. Over 80 percent of the area is designated underutilized. The majority of the central site is marked by large areas of pavement, few trees, and little sense of place. While these characteristics currently alienate the site from the rest of the city, the large amount of open space also offers opportunity for completely revisioning the area, pivoting it from a blight to an asset by building on its waterfront characteristics. The main sites of interest are zoned IH Heavy Industrial and Planned Development District PDD 53. Original PDD 53 Plan Extents (1984) 89

City Zoning Map

Planned Development Districts are designed for instances where tracts of land of considerable size are developed, redeveloped or renewed as integrated and harmonious units, and where the overall design of such units is so outstanding as to warrant zoning modification. Development must be in accordance with the comprehensive plans of the city. The Fusco Corporation was the applicant and designer of the Planned Development District PDD 53, which encompasses its current sites as well as part of Long Wharf. This allowed for the development of the current office towers, the restaurant, and the recent Canal Dock Boat House. Not all development activities outlined in the PDD 53 were completed. The Heavy Industrial zoning designation allows the following uses by right, by special exemption, and special permit. This designation prevents the development of comprehensive mixed use. As both residential and commercial are anchors of the new comprehensive plan for this area, the City of New Haven is friendly to exploring new land use designations. 91

The oil tanks to the east of the main site are owned by Magellan based on the city’s tax records, though an interview with Fusco indicated that the site may have been sold in the past year to another company. Once a part of the U.S. Department of Energy (DOE) two million-barrel Northeast Home Heating Oil Reserve, the federal government sold the site in 2011 as part of its conversion from high sulfur to cleaner burning ultra-low sulfur distillate stocks.17

IH Zoning - Heavy Industrial Maximum FAR 4.0, no height requirements, sample of uses By right Select manufacture Convenience stores Liquor stores Takeout food Adult businesses Gaming facilities Automotive sale and repair

By exemption Gun sale Fairs and carnivals Waste water transfer Fertilizer and asphalt manufacture

By special permit Live-work lofts Art and supplies

A National Oceanic and Atmospheric Administration (NOAA) funded City Plan report from 1980 outlined an initial assessment of the effects of sea-level rise (SLR) and storm surge on coastal energy infrastructure. The report states a substantial increase in the vulnerability of these sites to critical damage. In addition, other uses of this scarce, attractive waterfront land were assessed to be more productive in terms of both tax revenues (10 times more for a waterfront condominium) as well as employment (5.5 times more for manufacturing uses). The state has been recommending waterfront oil storage relocations since 1975, with active discouragement against siting new tank farms in the coastal zones under Connecticut’s Coastal Management Act (1980). According to the report, resiting costs are offset by the “lower operating costs associated with a larger, centralized, modern facility; the gain from using less valuable inland land and selling waterfront acreage; the lower property tax burden if located in outlying towns; and the tax advantages associated with new business investment, particularly depreciation deductions and investment tax credits.’’ Environmental benefits also abound with lower risk of oil spills or fires.18 While the region maintains a large refinery production/ demand deficit that is currently met by shipped imports, there remains much speculation about the future of

OIL TANKS

coastal oil storage. Options to relocate inland are supplemented by the increase in renewable energy generation as well as oil and gas pipeline delivery. The oil tank site is valuable real estate worth including in long-term redevelopment plans. Private action, direct public intervention (including public or quasi-public development of new facilities, public acquisition), or regulatory approaches such as zoning or coastal site plan review can assist in transitioning the tank site to higher and better uses.

WATER ACTIVITIES

Petroleum shipments

Food Truck Festival and Dragon Boat Regatta transform Long Wharf 20

The central site is across the harbor from the Port of New Haven, which shares the water with sailboats and fisherman. While the Port services petroleum and dry bulk goods, sailboats come from all around the harbor, including the West Haven, City Point, and Pequannock Yacht Clubs to the south, the Canal Dock Boat House on Long Wharf, and from the New Haven Yacht Club, Harbor Point Marina, and the Sound School to the east. While programming at the Canal Dock Boat House is still not regularly active, for the past five years each May its hosts the Dragon Boat Regatta, an exciting event where the public is invited to race dragon boats across the harbor. The past few years has coupled this event with a food truck festival, filling the waterfront with thousands of spectators and participants.19 People also occasionally visit the eastern edge of our site near the CSO to fish. Many are Latinx, which has a large fishing community in New Haven. This confluence reveals the importance of investing in bilingual signage.

Dragon Boat Regatta flows under overpasses21 94

HIGHWAY PROXIMITY AND PUBLIC HEALTH Highway proximity greatly impacts public health as motor vehicles are a source of urban air pollution. Increased proximity to heavy traffic is related to air quality and has been linked to asthma impacts. A 2010 Health Effects Institute report reviewing 700 papers showed the extent to which traffic pollution causes asthma attacks in children, early onset of childhood asthma, impaired lung function, premature death and death from cardiovascular diseases and cardiovascular morbidity. The band within 0.2 to 0.3 of the highway are most affected.

highway traffic noise typically range from 70 to 80 dBA at a distance of 50 feet from the highway. These levels affect the majority of people, interrupting concentration, increasing heart rates, or limiting the ability to carry on a conversation. The FHA recognizes three broad approach s for reducing noise from highway traffic— source control, mitigation measures associated with the design of road projects or their operation, and noisecompatible land-use planning. Design factors have great potential to mitigate impacts to noise.

New Haven is part of the Center for Disease Control’s (CDC) 500 Cities Project: Local Data for Better Health. The city’s asthma rates are some of the highest in the state. During the period between 2001 and 2005, there were 112 diagnoses per 10,000 children under the age of 4, a rate almost 5 times higher than the rest of the Connecticut. Black and Hispanic populations are at highest risk, with the greatest incident rates for both primary diagnoses as well as hospitalization due to asthma. Crude prevalence of asthma among adults, or the percent of the population previously diagnosed, is 12.7 percent in the Long Wharf census tract, 3.5 percentage points higher than in Connecticut.22 Highway proximity also has impacts on noise levels. The World Health Organization (WHO) recommends a maximum noise exposure limit of 65 dBA. Levels of Adult Asthma Crude Prevalence Percentage 95

CONNECTIVITY

SITE ANALYSIS

The City of New Haven encompasses an area of approximately 18 square miles. A total of 232 miles of streets occupy 11 percent of the city’s land and 340 miles of sidewalk. A majority of the streets are laid out in a grid pattern with short blocks and narrow roadways. Within the study area, a connectivity analysis determined the existing conditions of road infrastructure, public transit routes, walkability, and bicycle paths. The information was obtained through Connecticut Transit, Bike New Haven, Elm City Cycle, and the New Haven Complete Streets Manual. The New Haven Harbor Resilience Plan envisions a Harbor District that is better connected to the surrounding Wooster Square, Downtown, Hill, and Annex neighborhoods. ROAD CLASSIFICATION Interstate – I-95 is one of the major interstate highways, carrying the most traffic and contributing to heavy congestion during commuter peak hours. I-95 connects to New York City to the south and Providence, Rhode Island to the north. It also serves a major connector to Hartford via with its connection to I-91. State Highway – Water Street/Route 1 State Highway is a bi-directional four-lane road located to the north of the site and connects the study area to Union Station. Urban Major Arterial – Sargent Drive is a bidirectional four-lane road adjacent to commercial and retail businesses. Urban Minor Arterial – Long Wharf Drive is a bidirectional two-lane road that cuts through the study area and connects the site to urban collectors and major arterial roadways. A bi-directional bikelane was recently installed from the Howard Avenue Overpass to the west to Water Street to the east. Urban Minor Arterial – East Street is a bi-directional two-lane road that converts into a four-lane road,

NEW HAVEN GREEN WOOSTER SQUARE 3 4

UNION STATION

LONG WHARF

Distances to nearby amenities and views from the commute to Union Station.

connecting the study area to the Wooster Square neighborhood. Urban Collector – Hamilton Street is a bi-directional two-lane road that provides traffic circulation in the study area. BRIDGES AND HIGHWAY OVERPASSES The core site is marked by a tangle of highway overpasses to the north. Both these overpasses, which were installed through the Highway Corridor Improvement Program, as well as memories of the dark lower overpasses that they replaced, are a main contributor to the site’s sense of isolation. The new bridges are actually higher than residents may expect, with sufficient light and air to be a pleasant space when there is little traffic. The berms for the flyways as well as the nearby Water Street bridge also offer opportunities for tying in raised flood prevention infrastructure, tapping into the site’s natural points of elevation. A list of heights of the overpasses is given, itemized from west to east. All heights are approximate based on 2016 CT LiDAR data. This includes absolute height, which is relevant for base flood calculations, as well as above grade estimations, which is relevant for clearance. The federal highway administration states that urban areas require a minimum clearance of 14 feet, with a 16-foot clearance applying to at least a single routing.23 I-95 Interchange I-95 Bend over Water St I-91 entrance ramp over Water St and Long Wharf Drive Route 34 I-95 entrance ramp over Water St

41’ absolute, 32’ above grade 73’ absolute, 66’ above grade 34’ absolute, 26’ above grade 29’ absolute, 20’ above grade

UNION STATION The New Haven Union Station opened in 1920 and is the main railroad passenger station in the city, relocated here from an area further east. The structure was designed by Cass Gilbert and is an intermodal station with Amtrak, commuter rail, and bus connections. The station is an important asset for the Fusco site and the region as a whole. It services the busiest rail line in America between Boston to Washington D.C. The station is Amtrak’s tenth busiest nationwide with over 746,000 embarkations and disembarkations.24 It also provides rail access for employees that commute from neighboring cities and towns into Long Wharf. Union Station is approximately one-mile away from the study area and around a 20-minute walk. The Long Wharf Maritime Center provides a complimentary shuttle service to Union Station and Downtown New Haven for its tenants. The Downtown/Union Station Shuttle runs along a 1.5-mile route with 8 stops and operates Monday through Friday connecting Union Station to New Haven’s downtown. The Yale Shuttle is a service that runs all-year with the exception of holidays and connects Union Station to Yale University and the East Rock neighborhood. PUBLIC TRANSIT CT Transit provides New Haven with bus service for 50 routes that operate throughout the week. Within the study area, two bus lines are present on the north end of the site where stops exist along the G and F lines. The F line directly north of the site connects the Harbor District to the Annex neighborhood, Downtown New Haven, and New Haven’s healthcare infrastructure. The G line connects City Point, Long Wharf, Downtown, and Newhallville. The Z line, which passes in close proximity,

Bus Lines Dotted lines are express routes F Line/204 East Haven – Operates between Branford/East Haven, Forbes/Main, and Downtown New Haven G Line/ 206 East Chapel Street – Operates between Downtown New Haven to Lighthouse Park Z Line/ 274 Sargent Drive – Operates between Downtown New Haven, Long Wharf, and City Point

connects the Hill East neighborhood with the northwest of the city. BICYCLE AND PEDESTRIAN CONNECTIVITY Union Station, the New Haven Green Downtown, and the southeast end of Long Wharf are approximately a one-mile, 20-minute walk from the core site. Wooster Square is only half a mile away. However, large areas of pavement and little dedicated space to pedestrians and cyclists limit the connection between the core site and surrounding neighborhoods. There are two heritage trails near our site. The

0.25 miles | 5 min

100

0.5 miles | 10 min

1 mile | 20 min

Farmington Canal Trail is a separated path designed for non-motorized use. The trail is a historic canal that currently overlays a previous railway, with the first section opened in 1996. The current greenway begins in New Haven and winds its way 54 miles north to the Massachusetts border and beyond. The Vision Trail is another path separated from traffic created in 1995 in conjunction with the city’s Special Olympics World Games. The short trail begins at Water Street, where it passes under the Route 34 Connector, winds between the state’s busy rail yard and the U.S. Post Office, and continues under I-95 to access the waterfront along the harbor.25

Walking shed (left) and radius (right) show how limited connectivity shrinks the area that a pedestrian can cover.

Bicycle Connectivity Stand alone path or separated from traffic Bike lane comfortable for most adults Next to mixed traffic No dedicated bike space

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CT DOT is working on improving the walkability and bikeability of New Haven, with a number of ongoing projects and resources. Recent on-road bike lane installations include a two-way protected lane along Long Wharf Drive that is separated from motorized vehicles by marked pavement and stanchions. However, these stanchions are regularly knocked down by fast traffic. Water Street has a separated two-way path from Sargent Drive to East Street under I-95 as part of the Vision Trail.

Elm City Cycle has a working online map of the city’s bike lanes and qualities, though it is in need of updating. Quality of cycling depends on whether or not there is designated space for cycling, whether or not lanes are contiguous, quality of pavement, the level of separation from car traffic. There is significant variation within ElmCity Cycle’s four bike lane designations—separated from traffic or stand alone path, painted bike lane, next to mixed traffic, and no dedicated bike lane.

Bicycle Lane Conditions 1

2 3 4 1 3 4

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Long Wharf Separated from traffic Farmington Canal Stand alone path Howard Avenue Bike lane comfortable for most adults Church Street No dedicated bike space

TRAFFIC COUNTS AND ACCIDENTS Traffic counts in the immediate area are low, between 2,000 and 12,000 vehicles per day. However, the high traffic highway and highway ramps—with between 71,800 and 153,300 vehicles per day—show potential for drivers to come into the site area given appropriate design.26 This is significant for economic development potential, but also calls into focus the need to ensure that transportation modes are designed to facilitate non-auto oriented transit as well. Traffic crash records over the past three years show an annual crash record of approximately 100 crashes a year along Long Wharf Drive, East Street, Hamilton Street, Canal Dock Road, and Sargent Drive. Over the three years, 25 minor injuries, 10 serious injuries, and 1 fatality was recorded. There were 7 collisions with a pedestrian.27 47 percent of crashes were not at an interstection, while 46 percent were intersection or intersection related.

Average Daily Traffic Volume 2019

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ECONOMIC

SITE ANALYSIS

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NEW HAVEN AND LONG WHARF ECONOMIC ANALYSES

Economic Analysis of our site includes a grounding of the current commercial and residential market in New Haven, the current businesses and activities undertaken in Long Wharf and the future of those activities, and economic incentive programs. NEW HAVEN ECONOMIC ANALYSIS After a decline at the start of the Great Recession, private sector employment in the City grew by 7.2 percent from 2009 – 2016, a gain of more than 5,400 jobs. If employment grows at half the 2009-2016 rate – by 2023, the City would add 2,900 jobs, and nearly 6,000 by 2030. Much of this growth is centered in the education and medical (eds and meds) sector, which remains strong in the city.28 New Haven’s Multifamily Market is defined by above market cap rates and an established renter base, making the market as of Q1 2020 attractive to institutional investment. Vacancy rates are decreasing as more housing is coming on the market in recent years. However, demand remains high.29 In the Commercial Market innovation and research are an attractive driver for real estate investment. Support from these sectors, as well as development strategies from the public sector, are ripe to work hand-in-hand to develop the city’s commercial market in a way that is

attractive and reflective of New Haven’s character.30 LONG WHARF BUSINESS ANALYSIS Long Wharf is home to several large and important businesses like IKEA, Yale-New Haven Hospital, Long Wharf Theatre, La Quinta, Assa Abloy, Jordan’s, and the Food Truck Paradise consortium. The total value of New Haven’s existing industrial and commercial inventory analyzed within the Long Wharf study area is estimated to be worth over $780 million. With a mix of education, medical, commercial, industrial, and hotel uses, the area has the potential to be a vibrant center with the appropriate physical interventions. A number of recent developments in Long Wharf indicate the area’s potential. The Marchel Brueur building near the Ikea parking lot was recently sold for $1.2 million to Bruce Becker, a local developer designing a “net-zero energy boutique hotel and conference center.” The city has approved plans for the building and coastal site, including 165 rooms, 129 parking spaces, 200 square feet of bicycle storage, and stormwater management and landscaping improvements.31 After the current pandemic, these industries are likely to be impacted in diverse ways. For example, Assa Abloy is a major fabricator of hotel keys. Exploring how these developments continue into the long term are important 105

1 3

12 4

5 6 7 8

18 17

13 14

15 16

106

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18

Union Station, Metro-North - New Haven Yard and Facility United States Postal Service The Marchel Brueur Building Ikea La Quinta Inn Bank of America Financial Center Mobile Gas Station Yale Reproductive Endocrinology Assa Abloy Food Truck Paradise Long Wharf Theatre Food Terminal HazWaste Central and South Central Connecticut Regional Water Authority Hyde Leadership School Jordan’s Furniture New Haven Schools Yale New Haven Hospital Spine Center New Haven Village Suites

The Long Wharf Census Tract has – • • • • •

224 Total Businesses 9,561 Total Employees 1,508 Total Residential Population $1,215,264,000 in 2019 Total Sales Additional support to the regional economy The New Haven Line plays a vital role in supporting the nearly $3 trillion economy of the Northeast Megaregion

Biggest Employers New Haven Rail Yards 1600 Assa Abloy Security 700 Assa Abloy 600 Sargent Manufacturing 600 Police Department 600 Ikea 400 UE Union 350 1-3 Long Wharf Drive 300 South Central Regional Water 265 DCF New Haven 200 AT&T 200

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to take into consideration in identifying future use markets. INFRASTRUCTURE CONTRIBUTION The New Haven Rail yards support a number of economic activities critical to the region and to New Haven. It hosts America’s busiest rail line, a 60-mile stretch of track that carries commuters between New York City and Connecticut, and long-distance travelers throughout the Northeast. 39 million passengers ride on Metro North’s New Haven main line and its branch lines.32 Amtrak’s Northeast Regional route served almost 9 million passangers in 2019.33 Union Station is the major railroad hub in New Haven and serves over 700,000 passengers annually.34 The Cargo Terminal is a key financial generator for the city. The Port of New Haven is the largest port in Connecticut and the second largest port in New England in terms of total tonnage as of 2016, ranking only behind the port of Boston. 8.8 million tons represented about 24 percent of all waterborne commerce in New England and about 81 percent of all waterborne commerce in Connecticut. The port’s hinterlands include the greater New Haven region, the state of Connecticut, and much of the American Northeast. Petroleum products imports have historically constituted approximately 80 percent of channel tonnage, followed by salt, sand, and cement imports used for immediate local use. Scrap metal is the largest single export commodity by weight. The state and the city are currently undertaking a

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dredging project to remove 800,000 cubic yards of sediment to restore the harbor channel to its federallypermitted depth after storms Sandy and Irene reshaped the harbor floor. Without these measures, lighter loading of the dry bulk, break-bulk, and tank ships has restricted operations and translated into costs for the national economy.

ECONOMIC DEVELOPMENT INCENTIVE PROGRAMS

Both federal and state incentive programs exist for both real estate and business development. New Haven and the core project site lie in a number of qualifying zones for economic development incentives. OPPORTUNITY ZONES Opportunity Zones (OZ) provide substantial tax benefits to investors via Opportunity Zone Funds. Opportunity Zone Funds may invest in qualifying businesses, real estate or infrastructure substantially located within a federally designated OZ. They offer decreased federal tax burdens through preferential treatment of capital gains in three key ways — • Temporary Tax Deferral on capital gains reinvested in an Opportunity Zone Fund • Subject to Tax Deduction based on step-up in the basis of any current capital gains reinvested into an Opportunity Fund — increased by 10 percent of the unrecognized capital if held for a minimum of 5 years, and 15 percent if held for a minimum of 7 • Permanent Tax Exclusion of any capital gains if the investment is held at least 10 years

•

commercial, retail, industrial and mixed-use developments. Businesses - Any growing business that will take equity investors in control or non-control positions. Businesses should operate within the Opportunity Opportunity Zones

Qualifying investments include — • Real estate projects - either new development or an existing building in need of substantial renovation. Qualified real estate investments can include multi-family and single-family housing,

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•

Zone (at least 70 percent of their operations) and derive most of their revenues from sales within Opportunity Zones (at least 50 percent of sales). Energy-related projects - Energy efficiency and renewable energy projects also qualify and may derive their appreciation value from reliable longterm cash flow.

OZ Prospectus Opportunity Zones function by drawing investors into an Opportunity Zone Fund, which can then invest directly into developments and businesses located in a zone. Cities, developers, and businesses attract investors through documentation called a prospectus and advocacy meetings. Erie, Pennsylvania is seen as the current gold standard in Opportunity Zone prospectuses.35 The prospectus is comprehensive, easy to read, and organized as follows — • • •

•

• •

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Community and Investment Profile Opportunity Zone Description Opportunity Zone by Typology . Industrial Development Hub . Distressed Industrial Corridor . Investment Core . Residential Development Opportunities Institutional Capacity . Loan Activity . SEED Funding . Regional University Pipeline Inclusionary Strategy . Public Schools, Community Centers, Leadership Market Strengths and Challenges . Anchor Institutions . Diverse Economy . Current Investment

In 2019 Yale School of Management conducted Opportunity Zone analyses for New Haven, creating brief prospectuses for five of New Haven’s seven Opportunity Zones, including Long Wharf and Hill tracts as “Hill South”. Tract Level Data is divided by — • • • • •

Statistics Assets and Anchors Momentum Key Asset - Food Terminal Local Stakeholder Engagement

In addition, the report features a background on the project, community engagement, inclusive economic development models, and key recommendations. Key Long Wharf takeaways include Union Station as an asset and Yale New Haven Hospital is an anchor, as New Haven’s biggest employer and a national top tier hospital with one million patient visits per year. It also identifies the multiple historic district areas, which offer additional opportunities for national and state preservation funding. Investment momentum is critical to highlight for investment prospectuses. The report includes Shell and Bones Oyster Bar and Restaurant in the City Point Historic District (2015), the Canal Dock Boathouse as a $40 million dollar project (2018), the Hill to Downtown Corridor Phase I with 110 residential units and over 2,000 square feet of retail space across from Union Station, and the Long Wharf Responsible Growth Plan.

Sample pages from the Erie, Pennsylvania Opportunity Zone Prospectus. Much of the material in this document can be used.

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ENTERPRISE ZONES The Connecticut Department of Economic Development established a statewide Enterprise Zone Program in 1982, in which businesses can receive tax incentives for developing properties in distressed areas. Companies involved in manufacturing and certain services can receive — •

•

a five-year, 80 percent abatement of local property taxes on qualifying real estate and personal property (note: the company must be new to the municipality’s grand list); and a 10-year, 25 percent credit on the portion of the corporate

Enterprise Zones

112

•

business tax and increasable to 50 percent based on number of new jobs created. Newly formed corporations qualify for a 100 percent corporate tax credit for their first three taxable years and a 50 percent tax credit for the next seven taxable years.

Eligible activities include — •

• •

renovating an existing facility by investing at least 50 percent of the facility’s prior assessed value in the renovation; OR constructing a new facility or expand an existing facility; OR acquiring a facility that has been idle for a stated minimum timeframe (sliding scale dependent on average number of employees for previous six months) . (if 19+ employees) at least one year . (if 6-19 employees) at least six months . (if 5 or fewer employees) no idleness requirement applies

Connecticut Program

Description

Administering Agency

General Statute

Urban Action Bond Assistance

Funding for certain physical development

Office of Policy and Management

§4-66c

§8-240k to §8-240n

projects Community Economic Development

Funding for small businesses and

Department of Economic and

Program

community projects that create jobs

Community Development

or physically improve distressed neighborhoods Residential Mortgage Guarantee

Loans to cover down payments on home

Connecticut Housing Finance

Program

mortgage loans

Authority

Malpractice Insurance Purchase

Malpractice liability insurance for eligible

Department of Public Health

§19a-17m

Program

health care professionals providing

§32-80

§8-286

primary health care services to low-income patients at community health care centers Enterprise Corridor Zone

Certain Public Investment Communities

Department of Economic and

Designation

may request Enterprise Corridor Zone

Community Development

designation (a prerequisite for corporate business tax credits and certain property tax relief programs for eligible claimants)

STATE DISTRESSED MUNICIPALITY AND PUBLIC INVESTMENT COMMUNITY FUNDING The DECD identifies and annually updates a list of the state’s most economically distressed municipalities called the Distressed Municipality (DM) Rankings. Rankings are set based on tax base, personal income, and residents’ need for public services. This list is used to target funds for programs related to housing, insurance, and economic development. In addition, the Connecticut OPM prepares the Public Investment Community (PIC) index, which is determines eligibility

for several financial assistance programs that various agencies administer. New Haven is on both of these lists. The list above states the eligible state funding based on the Distressed Municipality and Public Investment Community rankings.36

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1 2 3 4 5

7 8 9

10 11

12 13

16 17 18

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The New Haven Preservation Trust. nhpt.org/oyster-point The New Haven Preservation Trust. nhpt.org/howard-avenue The New Haven Preservation Trust. nhpt.org/wooster-square The New Haven Preservation Trust. nhpt.org/river-street U.S. Army Corps of Engineers (2019) Coastal Storm Risk Management Draft Integrated Feasibility Report & Environmental Assessment. www.nae.usace.army.mil/Portals/74/docs/Topics/ FairField/Draft-Main-Report-EA-13DEC2019.pdf U.S. Army Corps of Engineers (2019) Coastal Storm Risk Management Draft Integrated Feasibility Report & Environmental Assessment. www.nae.usace.army.mil/Portals/74/docs/Topics/ FairField/Draft-Main-Report-EA-13DEC2019.pdf Hurricanes Blizzards Noreasters. Hurricane Bob. www.hurricanesblizzards-noreasters.com/HURRICANEBOB.html NOAA (2012) Tropical Cyclone Report. www.nhc.noaa.gov/data/ tcr/AL182012_Sandy.pdf FEMA Floodplain Management. udfcd.org/wp-content/uploads/ uploads/services/floodplain management/pmr/blackcobra/FIRMInsurance_Impacts_8.4.16.pdf CT Eco Hurricane Surge Inundation. www.cteco.uconn.edu/guides/ Hurricane_Surge_Inundation.htm U.S. Army Corps of Engineers (2019) Coastal Storm Risk Management Draft Integrated Feasibility Report & Environmental Assessment. www.nae.usace.army.mil/Portals/74/docs/Topics/ FairField/Draft-Main-Report-EA-13DEC2019.pdf GNHWPCA (2012) gnhwpca.com/wp-content/themes/gnhwpca/ assets/docs/pdfs/01_120608_GNHWPCA_WetWeather_Nitrogen_ Allan Appel (2019) New Haven Tops 200 Bioswales. New Haven Independent, 9 December 2019. www.newhavenindependent. org/index.php/archives/entry/bioswale_city/#:~:text=The%20 bioswales%20have%20landed%20%E2%80%94%20New,the%20 city’s%20storm%2Dsewer%20system. Connecticut Water Quality Standards. ctdeep.maps.arcgis.com/apps/Cascade/index.html?appid=7acb585cb77841a18573b6123f360fbe Mark Dorfman, MSPH (2004) Swimming in Sewage. environmentalintegrity.org/wp-content/uploads/2016/11/2004-02_Swimming_ in_Sewage1.pdf Urban Tree Canopy Metrics. uri.yale.edu/maps/urban-tree-canopy-metrics USACE. www.nae.usace.army.mil/Portals/74/docs/Topics/New%20 Haven/EIS/2-DraftNHH-EIS.pdf?ver Between 1992 and 2060, the number of energy facilities exposed to storm surge from a weak (Category 1) hurricane could increase by 15 to 67 percent under a high sea-level rise scenario from the recent

ENDNOTES

19 20

21 22

23 24 25

26 27

30 31

National Climate Assessment. The total number of facilities that are exposed to storm surge from Category 3 storms is much greater. www.energy.gov/sites/prod/files/2015/07/f24/QER%20Analysis%20 -%20Climate%20Change%20and%20Energy%20Infrastructure%20 Exposure%20to%20Storm%20Surge%20and%20Sea-Level%20 Rise_0.pdf, https://www.govinfo.gov/content/pkg/CZIC-tp6925-p48-1980/html/CZIC-tp692-5-p48-1980.htm Dragon Boat Ragata. dragonboatregatta.canaldock.org Food Truck Festival on Long Wharf, with new Dragon Boat Regatta. www.nhregister.com/entertainment/article/Food-Truck-Festival-onLong-Wharf-with-new-11336480.php Dragon Boat Ragata. dragonboatregatta.canaldock.org New Haven Asthma Rates. nccd.cdc.gov/500_Cities/rdPage.aspx?rdReport=DPH_500_Cities.InteractiveMap&islCategories=HLTHOUT&islMeasures=ARTHRITIS&islStates=09&rdRnd=72512 Connecticut Asthma Rates. portal.ct.gov/-/media/Departments-and-Agencies/DPH/dph/hems/asthma/pdf/Fullreportwithcoverpdf.pdf?la=en FHWA Vehicle Clearance. safety.fhwa.dot.gov/geometric/pubs/mitigationstrategies/chapter3/3_verticalclearance.cfm Regional Plan Association (2014) Getting Back on Track. rpa.org/ uploads/pdfs/RPA-Getting-Back-on-Track.pdf New Haven Resources for Trail Information. https://www.newhavenindependent.org/index.php/archives/entry/canal_trail_/, https://www.newhavenindependent.org/index.php/archives/entry/ dot_looks_to_scrap_vision_trail/, https://www.newhavenct.gov/ civicax/filebank/blobdload.aspx?blobid=27499, https://fchtrail.org/ pages/default.asp Kalibrate Technologies (Q3 2019) generated through ESRI Business Analyst Online. UConn Connecticut Crash Data Repository. www.ctcrash.uconn. edu/. The data obtained is from a three-year period, between January 1, 2017 and March 2, 2020. City of New Haven (2019) Long Wharf Responsible Growth Plan. https://www.newhavenct.gov/gov/depts/city_plan/plans_n_projects/ long_wharf.htm Marcus and Millichap (2019) Connecticu Local Apartment Report. www.marcusmillichap.com/-/media/marcus/reports-pdf/2q19connecticut-local-apartment-report.pdf CBRE (2019) New England Market Outlook. www.cbre-ne.com/ flipbook/2019-nemo/mobile/index.html#p=79 Paul Bass (2020) “360 State Builder Buys IKEA Hotel Site”. New Haven Independent, 6 January 2020. www.newhavenindependent. org/index.php/archives/entry/ikea_hotel_site/ Regional Plan Association (2014) Getting Back on Track. rpa.org/

33 34

uploads/pdfs/RPA-Getting-Back-on-Track.pdf Amtrak FY19 Ridership (2019) media.amtrak.com/wp-content/ uploads/2019/11/FY19-Year-End-Ridership.pdf Thomas Breen (2019) “Denver Union Station Eyed As Model Rehab”. New Haven Independent, 20 August 2019. www. newhavenindependent.org/index.php/archives/entry/union_station2/ City of Erie Investment Prospectus Building Opportunity | Restoring Hope | Transforming Erie. www.eriepa.com/uploads/ resources/899556_investment-prospectus-2.11.19.pdf Office of Legislative Research (2018) Distressed Municipalities and Public Investment Communities. www.cga.ct.gov/2018/rpt/ pdf/2018-R-0049.pdf

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VISIONS GOALS TACTICS

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Based on interviews and assessment, our objective for this report is to offer viable steps to catalyzing the city’s vision for the Harbor District as a mixed use, vibrant neighborhood centered around its strong presence at the heart of the New Haven waterfront. The scope of our recommendations is therefore focused on catalytic activities, relying on the Responsible Growth Plan to itemize the broader more long-term approach to site design and interventions.

We begin by identifying four visions that we seek to support for the site. This is followed by itemizing four key goals for supporting these visions. These goals are interconnected and dependent on each other for the project to be successful. Reviews of a number of best practice tactics provide a foundation of support for these goals, which are utilized based on the site investigation in the final recommendations and proposals section of this report.

VISIONS

GOALS

T T T

TACTICS

T T

117

VISIONS

Envision a connected waterfront that improves the health and wellbeing of city residents. Establish a more holistic

development approach that addresses 21st century issues, including economic resilience, climate

change, and equitable access to a clean environment. Foster a model for public private partnership and investment opportunities that grow prosperity in place.

Perkins Eastman Responsible Growth Plan

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Develop in a way that reflects New Haven as a small scale, friendly city with a strong and engaged community.

GOALS

Flood Mitigation

The study area is within the floodplain, which is both a pressing barrier to redevelopment as well as a significant risk to current building owners and users. It is our goal to address flooding mitigation by finding either flooding defense or accommodation to our site in a way that is feasible and can be carried forward for further exploration.

Connectivity

Part of its isolation in an industrial area makes the site feel incredibly far from the surrounding population centers. While Wooster Square, the Green, and Fair Haven’s Grand Avenue are all within a mile of the site, it feels much longer due to the barren underpasses and streets that prioritize vehicular traffic. Improving connectivity both in terms of pedestrian friendly infrastructure and was of engaging visitors to shorten the appearance of wait times.

Placemaking

In the middle of an industrial area, the site lacks the foot traffic, built infrastructure, and land use to give it a sense of place. We seek to identify means of injecting a sense of place into urban spaces.

Development

Each of these goals is intended to combine to serve an ultimate goal to redevelop the Harbor District in a fashion that establishes it as an asset for New Haven. This includes development that follows a number of principles that build of off the nature of the catalytic activities. Namely, development seeks to be of New Haven and for New Haven, engaging with the community, offering goods and services required by the surrounding neighborhoods, and designed in a fashion fitting the city.

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TACTICS

ENVIRONMENT AND FLOODING

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FLOODING MITIGATION

FLOOD RISK

This section outlines guidance, best practice, and rules of thumb related to environmental improvement and flooding mitigation related to the particular project site. With the project site and important existing infrastructure entirely within the floodplain, flood protection must take a layered, mosaic approach. In order to do so strategically, mitigation measures should— • identify the level of acceptable flood risk to both property and the environment, • weigh the consequences of choosing defending or accommodating strategies, • evaluate the viability of different protection measures, • and address coastal permitting needs.

There are a number of design factors to consider for flooding mitigation. First is the type and cause of flooding. Flooding can be coastal (otherwise known as surge flooding), fluvial (or river flooding), and pluvial (or surface flooding). The occurrence and consequences of each of these types of floods will continue to increase with climate change and sea-level rise. Coastal flooding can include low wave action events like extreme tidal conditions, or high-wave action events like storm surge, when high winds from hurricanes and other storms push water onshore. Coastal flooding can be minor with a moderate amount of beach erosion; moderate with erosion and damage to some coastal property, or major, with serious threats to property, infrastructure, road flooding, and life. River flooding can occur when excessive rainfall occurs within a short period of time. This can cause overbank flooding, or when water rises over the edges of a river or stream, or flash flooding, when an intense, high velocity torrent occurs in an existing river channel with little notice. Surface water flood is also caused by heavy rainfall, which can either saturate urban drainage systems or runoff from high land to low land. Each has potential risks associated with water velocity and wave action, as well as inundation. As an urban harbor, the Harbor District faces threats of all three. The Harbor District is at risk to Category 2 storms and greater. The perimeter is within the VE-16 zone while the 121

remainder of the site is within the AE-13 FEMA special hazard area. CIRCA’s recommendations suggest an additional 20 inches to the base flood height based on sea level rise projections.

DEFENDING AND ACCOMMODATING There are two basic approaches to mitigating flood risk, defending and accommodating. Choosing between the two depends on balancing risks and benefits. Risks include identifying potential damage to property under a no action scenario, as well as risks to the environment due resultant from flood protection implementation. These risks are weighed against the value of existing infrastructure as well as the value of potential land use that would benefit from flood proofing. Accommodating offers the opportunity to allow some level of inundation, taking measures to protect critical infrastructure or optimizing land use to those that allow for inundation. Accommodating can occur at both the building and the district scale. At the building scale, wet flood proofing buildings, raising critical utilities, and raising the buildings themselves allow for water to enter the built footprint while minimizing damage. Accommodating at the district scale would include managed retreat, or removing buildings from the floodplain. Land use planning and programming are key to adding value to sites where accommodation is used. There are powerful examples of parks designed to be flooded, occupied when dry and left when submerged. Public space with vegetation that can survive sea floods is a high value coastal use. Elevating buildings also offers opportunity for creative use of the ground floor in ways that can handle floods. From covered parking lots to 122

examples of flooding accommodation, from top to bottom Water Square, Rotterdam, De Urbanisten | Public plaza with basketball court and permeable paving becomes a temporary water storage space during extreme flood events.

Zalige Bridge, Nijmegen, NEXT Architects and H+N+S Landscape Architects | Footbridge that becomes partly submerged when the water levels rise. Enghaveparken, Copenhagen | Large dike surrounding the park collects rainwater, creating several spaces that accommodate different functions depending on weather.

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covered parks, there are a number of ways to use first floor space that is within the floodplain. Defense occurs when water is prevented from entering a site or a building. The longevity and applicability of defense measures depends on the strength and frequency of flooding events, as well as the nature of the site or building being protected. Existing infrastructure most often requires defense mechanisms. Defense measures can also be mixed with accommodation measures on a given site to achieve different resilience goals. In choosing between the two, seeking to identify appropriate risk and maximize benefit--for occupants, economics, and the surrounding environment--should serve as a key metric for decision making.

PROTECTION MEASURES To evaluate appropriate means of protection, several common measures for flood protection and mitigation are explored. These are measured along a series of spectrums to aid decision making about their drawbacks and benefits. This list builds off of the Army Corps of Engineers list in the Long Wharf Feasibility Study, which excludes some options from review due to impact or feasibility limitations. We find that by taking a patchwork approach to protection as well as including a future development added value, we argue that additional options are worth reviewing. Public versus Private Temporary versus Permanent Risk versus Impact Hard versus Nature-Based The review is divided into three sections — buildingbased strategies, structural-based district-wide strategies, and nature-based protections. 124

building-based

BUILDING-BASED • Privately executed and managed, potential for public funding via USACE • Permanent (structural) or temporary (nonstructural) • Viability varies depending on commercial or residential • Risk varies depending on the level of flood protection provided and to which flooding scenarios provided to

structural-based district-wide

PERMANENT BUILDING BASED INTERVENTIONS include wet and dry floodproofing, erecting flood barriers, and elevating the first floor and utilities in buildings. Wet floodproofing consists of measures that provide resistance to flood damage while allowing water to enter a structure, including proper anchoring, flood resistant materials, elevating and protecting mechanical and utility equipment, and flood vents or breakaway walls. It is a technique under the National Flood Insurance Program (NFIP) and is limited to enclosures below elevated residential and nonresidential structures and to

nature-based

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accessory structures with variances. Wet floodproofing applies to commercial buildings if it is combined with a flood warning, flood preparedness and flood response plan. Dry floodproofing protects the building envelope. It functions for both residential and commercial buildings but is recognized for commercial buildings by flood insurance. Masonry or concrete buildings can generally be dry flood proofed up to 3 to 4 feet. Buildings with basements or crawl spaces must be made impermeable all the way up the first floor. Due to the fact that coastal flooding is projected higher than 4 feet on the central site, application may be limited. Floodwalls are reinforced barriers, usually built out of concrete, that surround a building or a series of buildings. This option is unique as it can be deployed by a single property owner or collectively. A variety of designs, including types of above and below-ground stabilization, are available for review through FEMA’s website. While an interesting design opportunity, depending on the height of the flood waters barriers can prove imposing. Small levees or berms, built to ring a single building or a several adjacent buildings can reduce flood risk without eliminating floodplain management and flood insurance requirements. The Army Corps study deemed the existing buildings on Long Wharf too close together to evaluate this option. As our study is taking a piecemeal approach to protection, in which multiple mechanisms for protection can be used on the same site, we believe that this option should be retained for review.

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Wet floodproofing

Dry floodproofing

Wet floodproofing vents are engineered to allow water to flow safely out of crawlspaces.1

Door blocks and membranes keep the lower portions of a building protected.2

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Elevation provides the greatest amount of flood risk management. Local building codes determine the maximum height to which a structure can be elevated, though the developer can apply for a variance. Buildings can be elevated on solid concrete foundation walls (AE-zone) or appropriately designed piers (VEzone). Appropriate access must be provided, as well as a dry means of egress. While elevation was outlined as one of the potential measures in the Army Corps study, because the study does not include potential development it was omitted from the final assessment. Particular design considerations for these alternatives include the height necessary, type of substrate, water drainage, and unclosed edges. The higher the walls, the greater the pressure exerted on the barrier. Increased mass and footing necessary increase the space and the cost. Wall heights can block desirable views. Water must have a proper drainage out from the site, while also preventing water from curling around barrier edges into the site. TEMPORARY, MOBILE, AND NON STRUCTURAL building based interventions include mobile flood barriers, flood preparedness plans, and NFIP resources. In many cases, both structural and nonstructural, flood preparedness plans are necessary to ensure that occupants remain safe and building management knows how to use flood protection mechanisms.

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Floodwalls

Levees and Dikes

Floodwall in Sunbury, Pennsylvania becomes part of the landscape.3

House in Zevenhuizen, Netherlands is surrounded by a dike.4

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Mobile flood barriers are available in several types, including water-filled, sandbag, and corrugated plastic. Temporary barriers can be reused, and must be cleaned and stored property for their longevity. There is an FM Standard for Flood Abatement Equipment for riverine floods up to 3 feet, though it does not include testing for coastal flooding. As saltwater is denser than freshwater, a barrier filled with freshwater will float in a coastal flooding situation. Hybrid flood barriers consist of permanent footing and mobile closures prevent views from being obstructed. These hybrids can be executed at the building level, or at the district level. Flood Preparedness Plans should be combined with all building based measures. Comprehensive storm warning systems and evacuation plans are currently in place on our site, so adding additional features to accommodate for updates has a high likelihood of ease and success. Property owners including Fusco and Knights of Columbus would need to be engaged, as well as any future owners and property managers. Five mitigation programs exist within the National Flood Insurance Program (NFIP). The hazard mitigation grant program (HMGP), pre-disaster mitigation grant program, flood mitigation assistance program, repetitive loss program, and severe repetitive loss program. Comprehensive flood insurance and educational programs are supported by the city, which is a Community Rating System (CRS) community. CRS is a voluntary incentive program that encourages community floodplain management activities that exceed the minimum NFIP requirements.

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Elevation

Mobile flood barriers

The Chesapeake Bay Foundation headquarters in Annapolis, Maryland elevates the occupied space and uses the ground level for parking. 5

A Noaq Boxwall Flood Barrier protects from up to 1.5 feet of water, though it is best for urban surface flooding conditions.6 Aquafence protects the new World Trade Center.7

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STRUCTURAL DISTRICT PROTECTIONS • Publicly executed and managed • Benefits multiple land owners • Designed to protect from inundation, wave action, erosion, or all three • Risk varies depending on the level of flood protection provided and to which flooding scenarios • Hardened shorelines risk coastal erosion, damage, and habitat degradation Closure structures protect openings in structured protection measures, particularly where roads cross berms or underneath other elevated byways. There are several road underpasses within the study area that create pathways for coastal storm surge to flood the New Haven Rail Yard and low elevation businesses landward of I-95. Permanent deployable flood gates are critical to managing flooding via these pathways. Floodwalls and seawalls are re-enforced structural walls that run along or parallel to the shoreline for an extended stretch. The current granite walkway along the waterfront functions as a seawall, though it is currently below base flood elevation. The Army Corps study suggests an inland floodwall along the I-95 embankment. At the shoreline, floodwalls increase erosion by deflecting wave action downward. Hardened revetments are used to stabilize beaches and riverbanks. Cobble berms or “dynamic” revetments offer similar protection. Exact design is dependent on the desired level of protection. Construction of hardened edges along sandy beaches inevitably results

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Hybrid flood barriers Mobile flood barrier in Grien, Austria is erected before floods to protect the city from the Danube. An underground wall also protects from groundwater elevation.8

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in loss of the beach in front of the structures. Dikes are earthen embankments that protect parcels of land from flooding. They can be fortified in a number of ways, as well as integrated with other forms of infrastructure like roads or pedestrian paths. The Army Corps study determined a dike along the coast of Long Wharf to be economically infeasible, but we consider them further due to their great potential for flood protection for other areas of the site. Pump stations are integrated with other structural measures to prevent flooding from interior drainage during large storm events. The Army Corps study includes pump stations in its feasibility study landward of I-95. Surge barriers are often a structure that closes prior to a storm and reopens to transport goods and reopens to allow goods, ships, fish, and tidal flows pass. This was not considered in the Army Corps study due to the environmental impacts associated, extremely large costs, and navigation and coastal use constraints.

Closure Structures The Potomac Park Flood Levee in Washington, D.C. protects the White House from rising waters. A stone wall ties into an earthen berm, and a steel gate is installed with flood warnings.9

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Floodwalls

Hardened revetments

A seawall in Seattle and a bulkhead in Maryland.

Rock and block revetments protect the shoreline behind its boundary from erosion. Hornsbergs Strandpark in Stockholm at top, Cleveleys New Wave Promenade in England to bottom.11

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Nature Based District Protections • Publicly executed and managed • Benefits multiple land owners • Designed to protect from wave action and erosion, but not inundation Natural and Nature-Based features can have great impact on wave attenuation and offer cobenefits including improved water quality; enhanced habitat for birds, fish, and bivalves; and creation of public amenities. They serve as complementary measures to structural modifications to buildings and land or to development retreat. The City of New Haven in partnership with the state of Connecticut is currently working on a suite of nature based protection measures along Long Wharf, including a floating wetland to the south west of our central site. Rock Sills are natural yet structural protection methods that attenuate wave energy from low magnitude, high frequency coastal storms. They serve as a measure in the current Long Wharf Living Shoreline project. Depending on the navigational needs around our site, it could prove useful to decrease wave heights. Beach Fill and Dunes are natural yet structural protection methods successful for both coastal erosion and flood risk management. Wetlands absorb storm damage by buffering floods and high waves, and stabilize shorelines by preventing erosion. these services are valued at over $23 billion in the US annually. Living Shorelines is an umbrella term that encapsulates all of the above measures. They use nature-based

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Dikes A road slopes over a dike that is part of the Stamford, Connecticut Hurricane Barrier. The map shows the location of above-ground structures, which tie into the natural topography.12

Pump Stations

Surge Barriers

The pumping station for Stamford, Connecticut’s flood protection barrier lies along Dyke Lane in the Southend neighborhood.14

This storm-surge barrier is part of the Stamford Hurricane Barrier. It is operable for navigation purposes.13

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erosion control techniques. The Living Shoreline project along Long Wharf Drive to the south of the core site will serve to improve the general harbor quality and ecosystem, but have limited impact on flooding mitigation.

Hybrid approaches to hard and soft protection and store and retreat accommodation will be key to creating a waterfront that is healthy, sustainable, accessible, and a generative force for the area. All of these mechanisms offer opportunities for creatively thinking through how to overlay public space and habitation, so that flood protection in and of itself becomes an elevating asset to our public realm.

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Living Shorelines Sacred Heart’s Living Shoreline Project in Stratford, Connecticut includes the installation and assessment of reefballs along the shore.15 Oyster castle breakwaters protect Florida’s coast.16

New York City’s Living Breakwaters incorporates Living Shoreline Principles in an urban context. A network of hubs connect people to the water and encourage water-based activities.17

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COASTAL PERMITTING The site’s location requires several layers of permitting to ensure natural protection. The central guidance for coastal development is the state of Connecticut’s federally approved Coastal Management Program, administered through the CT DEEP Office of Long Island Sound Programs. It is pursuant to the Federal Coastal Zone Management Act (CZM), and defines coastal zone boundaries and developed policies for evaluating projects within the designated coastal zone under the 1980 Connecticut Coastal Management Act. Connecticut has a Coastal Management Manual that provides useful site plan examples, defines the coastal management and permitting process, and offers resources to municipalities looking to define their coastal strategies. In terms of permitting and land use, the coastal management district exists to ensure that the development, preservation, or use of the land and water resources proceeds in a manner consistent with their capability without disrupting the natural environment, sound economic growth, and public access along the city’s waterfront. New Haven Zoning Code defines a summary of review process, statutory authority, and uses permitted. The coastal management district permits uses in the same manner as in the underlying zone, provided a coastal site plan review determines potential adverse impacts to coastal resources and future waterdependent development activities are acceptable within the Connecticut Coastal Management Act. Connecticut General Statute 7-148 defines Municipal authority to determine flood hazards. Besides the coastal management boundary, two additional boundaries exist at the shoreline: the mean high-water mark, which divides private coastal property 140

National Oceanic and Atmospheric Administration (NOAA) approved by

Federal Coastal Zone Management Act federal legislation

CT DEEP

CONNECTICUT’S COASTAL MANAGEMENT PROGRAM

administered by

Connecticut’s Coastal Management Act (CCMA)

LOCAL

(1980) CGS 22a-90 – 22a-112

MUNICIPAL PLANNING ZONING defines development under CCMA policies

Coastal Management District Section 55

Flood Damage Prevention District

Structures Dredging and Fill

STATE

FEDERAL

Federal Emergency Management Agency (FEMA) NFHL FIRMs NFIP

22a-359 – 22a-363f

Tidal Wetlands Act 22a-28 – 22a-35

Section 56

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from public trust lands, and the coastal jurisdiction line (CJL, as of 2012), which determines if a permit is needed for work within tidal waters (4.6’ above the North American Vertical Datum of 1988 (NAVD 88) for the City of New Haven). In terms of building permitting, the State Building Code defines the design of use and egress based on flood elevation. The state code is based on the International Building Code (IBC) and the International Residential Code (IRC). The bottom of the lowest horizontal structural member supporting the lowest floor must be elevated to above Base Flood Elevation (BFE) plus 1 foot in V Zones and Coastal A zones, limiting ground floor use to parking, building access or storage. However, DEEP and CIRCA requirements now set sealevel rise to be 20 inches higher than the national tidal datum in Long Island Sound by 2050.

EXISTING RESOURCES There are a number of existing resources specific to Connecticut and New Haven. CIRCA has created a number of guidance documents, including a City of New Haven Commercial Industrial Toolbox.18 According to the summary, the document “serves as a guide to promote resilient construction and renovation techniques applicable to commercial and industrial properties within flood-prone areas.”

In terms of flood insurance, New Haven has established a Flood Damage Prevention District based on FEMA’s Flood Insurance Study for the city. The uses and permitting processes are defined by the city’s Flood Damage Prevention Ordinance.

CIRCA and NOAA partnered in 2017 to present a Green Infrastructure for Coastal Resilience Training. Presentations cover green infrastructure concepts as well as permitting requirements.19 The same year, CIRCA and DEEP also held a Connecticut Living Shorelines: Projects into Practice Workshop, which builds on the information from the prior session.20

In addition, the waters of our site are classified as estuarine and deepwater wetland, and subject to CT DEEP permitting for proposed projects that may alter the natural character of wetlands and their functions and/ or values.

In addition, CIRCA has published a Floodplain Building Elevation Standards White Paper to offer guidance on building and upgrades for Connecticut municipalities.21 The State of Connecticut offers a Flood Insurance Fact Sheet.22

Based on our policy research, coastal permitting at both the state and local level currently show a misalignment of environmental requirements and community development needs.

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DESIGN FOR HIGHWAY PROXIMITY The project site’s proximity to the highway as well as the large amount of impermeable pavement should be considered in design measures. There is design guidance and rules of thumb related to highway adjacency, including mitigating air pollution and noise pollution. The EPA offers recommendations on the physical characteristics of roadside vegetation that can provide a local air quality benefit.23 The species and landscaping with greatest improvement feature the following— • Thick vegetation with no gaps or openings from ground to crown can decrease downwind pollutant concentrations by as much as 50 percent. This can be achieved by combining vegetation types to include low, mid, and canopy level leaf cover. However, field studies show that highly porous vegetation stands can actually increase downwind pollutant concentrations.24 • Vegetation should be subject to little seasonal variation, like coniferous trees, shrubs and bushes. • Waxy and hairy leaf surfaces can enhance particulate removal through diffusion and interception. • Vegetation implemented must also be resistant to air pollution and other traffic stressors like water pollution and salt. • The Federal Highway Administration has a native state plant listing for reference in Connecticut.25 Noise pollution is best mitigated through hard structures like walls and earthen berms. In addition, wind has

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a significant impact on sound carrying capacity. Environmental factors like air temperature, humidity, and turbulence have an impact on sound within 200 and 500 feet of a roadway. The City of San Diego has a fact sheet with recommendations on how to design barriers and land use to improve sound quality around vehicular traffic.26 Working across city, state, and federal DOT’s to ensure that best practice and cobenefits are followed for mixed use development along roadways will be important to elevating the quality and health of the project site.

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FLOOD MITIGATION DESIGN PRECEDENT |

RESILIENT BRIDGEPORT

The State of Connecticut DOH, the City of Bridgeport, and Bridgeport residents and business owners developed a resilience strategy and pilot project for the Bridgeport’s South End and Black Rock Harbor areas. This work is funded by HUD through Rebuild by Design and the National Disaster Resilience Competition. Rebuild by Design, launched as part of a federal response to the extensive damage to communities throughout the Northeast after Hurricane Sandy in 2012, awarded the City of Bridgport $10 million in project funds in 2013. Two years later, the National Disaster Resilience Competition broadened federal support for resilience efforts to communities across the nation. Through NDRC, the Connecticut DOH received an additional $42 million in part for a pilot project in Bridgeport’s South End.27 Funded projects are designed to create team responses to improve urban and regional resilience, prepare for the anticipated effects of climate change, and generate and implement prototypical solutions.

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City responses to flooding mitigation can fall within zoning designation, form-based codes, and design guidelines. The following reviews examples from city’s across the country. ZONING DESIGNATION

case studies and a methodology for retrofit as follows • Identify Your Flood Risk • Identify Your Flood Level • Review Relevant Codes and Regulations • Identify Your Mitigation Strategies • Design Your Strategy • Short-Term Adaptation Measures32

New York City has adopted flood Resilience Zoning Text through a city-wide zoning ammendment. The Flood Text encourages flood-resilient building construction throughout designated floodplains by removing regulatory barriers that hinder or prevent the reconstruction of storm-damaged properties. It also enables new and existing buildings to comply with new, higher flood elevations.28

Boston has a similar guide for retrofits and new construction, which includes • Building Form • Building Envelope and Access • Building Systems • District-scale Strategies • Supporting Strategies33

Boston has an overlay zone for the 1 percent annual floodplain with 40 inches of sea level rise.29

FEMA also has guidance on design considerations for floodproofing.34

Maryland offers a variety of zoning recommendations for elevating structures and improving drainage.30 DESIGN GUIDELINES New York offers design guidelines for Climate Resilient Design, including a full spectrum of climate concerns increased heat, increased participation, and sea level rise. It offers a toolkit that identifies a design process that involves exposure screening, risk assessment, and cost benefit methodologies.31 New York has a comprehensive illuminated guide for retrofitting buildings for flood risk. The guide includes 148

FLOOD MITIGATION PLANNING PRECEDENT |

ZONING AND DESIGN GUIDELINES

page from New York Guidelines

page from Boston Guidelines

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TACTICS CONNECTIVITY

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COMPLETE STREETS Ensuring that site improvements are in line with best practice in connectivity are critical for the success of this isolated site. Here we look into the following areas– • Complete streets designed for pedestrians and multimodal transportation • Street designation for appropriate use and speed • Path creation for overcoming physical barriers including rails and roads • Urban acupuncture to decrease travel time from proximate urban nodes

COMPLETE STREETS DESIGNED FOR PEDESTRIANS AND MULTIMODAL TRANSPORTATION Complete streets shift the paradigm of traditional roads by returning the public right of way to the public. They establish high value benefits for the community outside of cars, not just in them. They embrace the vernacular of place and improve the cycling and pedestrian experience, promoting alternative modes of transportation. They make streets feel more like a place instead of an unfriendly viaduct. These qualities will be important in improving the connectivity of our site to the rest of the city, as much of its limitations are defined by extended stretches of pavement and roadway. In 2008 the New Haven board of alders founded the nine-member Complete Streets Steering Committee with the mission to “develop and promote a safe, contextsensitive transportation network that serves all users and integrates the planning and design of complete streets

that foster a livable, sustainable and economically vibrant community”. The manual defines complete streets as street that are “designed and operated to enable safe access for all users, including pedestrians, bicyclists, motorists and transit riders of all ages and abilities. Complete Streets may look different and contain different elements depending on the location. The concept of Complete Streets goes beyond safety, tying in with issues of human health, equity, aesthetics, economic development, environmental protection, and livability, all within a specific neighborhood context.”35 The New Haven Complete Streets Manual uses national best practice to define guiding principles for complete streets, creates a complete streets design process including funding and neighborhood engagement, establish a complete streets toolbox, and identifies data measurement methodologies to build on design lessons. A number of key design elements for complete streets apply to the Harbor District site. These include– • Roadway separation between cars and other modes of transportation • Planting and shading • Wayfinding • Street designation for appropriate use and speed Roadway separation Principles of comfort and connectivity indicate that bike lanes benefit from physical buffers from car traffic. While there are 151

stanchions along the newly installed bike paths, stakeholder interviews indicated that these insufficient barriers are frequently knocked down by cars. While tactical measures are beneficial at first, phasing in more permanent structures like planters or improved barriers can have a great impact on the attractiveness and usability of a lane.36

quality of spaces along its path becomes elevated.37 Wayfinding for directing pedestrian and bike traffic Signage, road painting, and creative wayfinding sculptures are important ways of identifying destinations and bringing people to the site from across the city.

Plantings and trees add multiple benefits by creating dynamism, shade, cleaner air, and urban water management. Plants are a critical part of the urban realm. If roadside planting is curated with care, the

New Haven Complete Streets Guiding Principles Safe and slow vehicles Connectivity Human health Livability Context Equity Aesthetics Economic development

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Toolbox Sidewalk widening ADA curb cuts Street furniture Cross walks Street trees Sidewalk and roadway material treatment Pavement marking Speed bumps Refuge islands Diverters Roads closures Traffic patterns Bike routes Bike boulevards Bike parking

Walking Pleasant Visual Environment Continuous and connected pedestrian facilities separated from vehicle traffic Short street crossing distances A good mix of land uses Pedestrian scale lighting Slow and controlled motor vehicle movements

Cycling A well-connected network of bicycling facilities Safe travel routes Direct travel routes Slow and controlled motor vehicle movements

Sidewalk Labs Complete Street Transition Designs39

Responsible Growth Plan Complete Street with central bioswale38

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STREET DESIGNATION STREET DESIGNATION FOR APPROPRIATE USE AND SPEED Our site would be greatly benefited by bisecting into smaller blocks. This opens the opportunity to designate new streets for pedestrian and bike use only. Designing streets appropriately for these uses, as well as site use and building frontages, can increase the walkability and sense of place in the area. Connecting the rear of buildings to vehicular streets allows continued freight access.40

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PATH CREATION PATH CREATION FOR OVERCOMING PHYSICAL BARRIERS INCLUDING RAILS AND ROADS Integrating site design in a way that leaves room for pedestrian connectivity to Union Station through Long Wharf is important. While our stakeholder interviews indicated that a pedestrian tunnel or bridge is likely 10 years away, current development opportunities exist and are being explored to take this critical step in integrating Long Wharf into the city and the region.41

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URBAN ACUPUNCTURE URBAN ACUPUNCTURE TO DECREASE TRAVEL TIME FROM PROXIMATE URBAN NODES Studies show that people need regular stimulus on city street fronts to not get bored. This is a lesson for the future commercial design of the developed site, but also offers an important lesson in improving connectivity. Urban acupuncture techniques of art installations, active parks, or instagramable signs along the stretch of long empty road can make a commute feel shorter and more comfortable.42

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CONNECTIVITY PRECEDENT |

DENVER’S UNION STATION

The Denver Union Station is part of Regional Transportation District (RTD) 2004 voter-approved FasTracks plan to expand transit service to the city and metro area. It is a $7.8 million Public-Private Partnership on 19 acres of publicly owned land and 23 acres of privately owned land. The station is now an intermodal hub with light rail, Amtrak rail service, commuter and intercity rail, bicycle and bus routes, and pedestrian paths. Most significantly for the New Haven site, the station design is adept at overcoming the barrier of the tracks between neighborhoods. A grand staircase goes up one side of the station, and down the other, conveying pedestrians from one distinct neighborhood to another. The 17th Street Promenade provides 30,000 square feet of public space with benches and drought resistant plants. It is at grade level and links the Train Hall to the Denver Union Station train terminal. Rezoning for Transit Oriented Development was a catalyst for this particular form of development.

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The Barcelona Superblock Model aims to regain the streets as public space by reducing the area occupied by vehicles. Alternating roads are closed to vehicle traffic and parking, increasing room for healthy and lowcarbon means of transit including pedestrian, bicycle, and public transport. The Superblock model opens land area to more greenspace and vegetation, either in ground or in elevated planters. The model promotes community involvement during the design, implementation, and evaluation. Moreover, these interventions can save hundred of lives and cut air pollution by a quarter in the city of Barcelona.43 The layered interventions can be categorized as— Basic functional change in the area’s mobility Tactical tactical improvement of public area without permanent infrastructure Structural permanent infrastructure that consolidates functional change, green infrastructure, and biodiversity areas

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CONNECTIVITY PRECEDENT | BARCELONA CURRENT MODEL

SUPERBLOCK MODEL

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TACTICS PLACEMAKING

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The New Haven Harbor Resilience Catalyst envisions the Harbor District as a waterfront destination that can be achieved by creating a sense of place. Project for Public Spaces defines placemaking as a process whereby the public realm is shaped or designed to maximize a shared value. Placemaking allows people to create a connection to the public realm and imagine creative ways to use the physical space and incorporate cultural or social identities.44 The placemaking objectives are to attract people, make physical improvements, activate the space, and brand the site. The following parameters help to achieve these objectives. • Engage throughout the seasons at different times of day • Create a laboratory for artistic events • Identify minimal infrastructure for a safe engaging environment • Grow projects from temporary to permanent impact Project for Public Spaces also offers a time-tested roadmap for public space improvements, shown to the right. Place is inherently for people and of people, and this methodology helps to incorporate local visions with implementation power to ensure sustainable and successful developments.

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These metrics are kept in mind to inspire a full spectrum of placemaking efforts that are comprehensive and dynamic.

temporary installations

eventbased

permanent improvements

INVESTMENT VARIATION

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daily

seasonal

TEMPORAL VARIATION

open spaces

intimate spaces

Concerts, festivals, fairs that can benefit from movable furniture and tents

Intimate, engaging art interventions, tactical and interactive, destination and instagramable

SPATIAL VARIATION

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NARRATIVES FOR PLACE

Creating a sense of place by establishing a narrative helps to make areas stand out in the mind of the public. Branding is a key methodology to establish this relationship, in which names, logos, front, and color are cohesive across development. Branded material can then be exported elsewhere in a city, through fliers, stickers, signs, and websites. An intervention that brands the Harbor Site in a way that reflects the land, the people, and the water can help reveal and reinforce the value of the site.

Thor Urbana’s design of The Harbor shopping plaza in Merida, Mexico lights up the night, branding the space and attracting tourists and locals alike. The sign is popular and visitors are often found taking selfies next to it.45 164

BRANDING PRECEDENTS |

MERIDA & MILWAUKEE

The Milwaukee Harbor District serves as a vital example of placemaking design and development. The City As a Living Laboratory (CALL) is spearheading the Watermarks project that show illuminated letter markers throughout Milwaukee. These markers point to water resources in the area and information of these sites can be accessed through an app. The app informs community members about programming taking place in the watermark area. Moreover, the project will work with local artists to implement water-related art and programming throughout the city. Habitat hotels provide underwater habitats for plants and fish that are retrofitted for steel sheet piling. A total of three Habitat Hotels are installed in Milwaukee’s Harbor district that allow for community engagement opportunities for creation of the fish artwork to label hotel sites. Design of the ADA-compliant Harbor View Plaza with a kayak and canoe launch, boardwalk with play structure, artwork, and seating area.46 Permanent and temporary installations combine with uniform branding across the city to draw people to this increasingly vibrant area.

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PLACEMAKING FOR ACTIVATION

A place needs people to be considered active or activated. Seeing new things or events in the space will encourage people to visit the site. Participation in different activities or in uses of the space can promote community-building and trust. Placemaking events can also encourage healthy activities, such as biking. The Harbor District site has appropriate space to implement cycling programming that can be leveraged by complete street interventions.

Ciclovia, Open Streets, and BiciRutas to activates space through cycling. CicloviaMKE is presented by the Cesar Chavez Business Improvement District and Clarke Square Neighborhood Initiative in Milwaukee, Wisconsin. Ciclovia MKE is an annual summer event and completed its fifth year in 2019. It’s a free public event that opens a one-mile route of streets blocked to car traffic in the city’s southside.

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ACTIVATION PRECEDENTS |

CICLOVIA

In Merida, Mexico, the municipal government sponsors a Biciruta, a cycling route that spans 5.2km that runs through the city’s historic district. The services offered along the root include portable bathrooms, hydration stations, bike rentals, and first aid stations. Along the route, food vendors and artists line the sidewalks. The city also sponsors musical events, dance performances, and youth cycling lessons. The most popular Biciruta is the one that crosses the historic Paseo Montejo. The route opens every Sunday from 7am to 12pm. On the first Saturday of every month, the city hosts Biciruta Montejo PM, from 5pm to 9pm. The event attracts local residents and tourists visiting the Yucatan peninsula. The most famous Ciclovia or Open Streets event is the Cicloruta in Bogota, Columbia. In 1976 the municipal government established La Ciclovia as an official program of the city government. The route includes 75 miles of streets and highways shut down for cyclists, runners, skaters, and walkers. The route is open from 7am to 2pm and runs through the city’s 20 historic districts. Notably, the Merida and Bogota cycling events are held all-year round due to favorable warm temperatures. Milwaukee, on the other hand, holds the cycling event during its summer season as temperatures start dropping in the Fall.

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TEMPORARY INSTALLATIONS

Temporary art installations can bring a sense of occasion to a place, while also being less capital and permitting intensive than permanent installations. Lights, murals, furniture, and tactical signage can activate places for a day, a night, or a season.

The Swing Time installation in Boston was designed by Höweler and Yoon Architecture. The swings are lit by different colored LED hoops that change colors as you swing. This installation would be great in underused green spaces such as the green space between Lenny and Joe’s Fish Tale and the Fusco owned buildings. As the installation can be temporary, this does not prohibit use of the space for development or other permanent use. Illuminating the site allows the space to feel attractive and safe and become a destination for nighttime use.47 168

INSTALLATION PRECEDENTS |

INFRASTRUCTURE AS ART

Trash is a concern in the study area that can be addressed by use of severals interactive interventions such as the “Goby Fish” sculpture to encourage throwing away plastic and smart “TetraBins” that facilitate a gaming experience.48 49 Moreover, inspired by Baltimore’s “Trash Wheel,” the structure can be stationed in the water to attract visitors while also educating the public on plastic and trash pollution in the water.50

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PERMANENT IMPROVEMENTS

Physical improvements to the site include temporary or permanent projects that increase the use of space and enhance visitor experience. The improvements can include interventions such as lighting and art that lead to beautification and an increased sense of safety. The physical infrastructure improvements can unite and include community residents, rather than excluding or dividing people from the waterfront. The improvements will animate public and private spaces, improve public safety, and bring diverse people together to be inspired.

Bentway The City of Toronto is home to the Bentway, a mile long linear public space built under an expressway that bisects 7 downtown neighborhoods. The public space was opened in 2018 and hosts art installations, public markets, musical performances, and an ice skating trail. The Bentway Conservancy group was formed to provide year-long programming in the space. Partnership with artists has allowed for dynamic programming and beautification of the space seen through art sculptures and murals, musical installations, and theatre performances. Notably, the site has featured the traveling Waterlicht installation, a virtual flood created by LED lights, and paired with sounds and stories about Toronto’s waterfront, sparking a conversation on water and climate change.51

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INFRASTRUCTURE PRECEDENTS |

UNDER THE BRIDGE

The Infra Space Program The Infra Space Program is a Massachusetts Department of Transportation Initiative that looks at elevated roads, bridges, and viaducts for redevelopment opportunities to promote better use of space through arts, event space, multimodal paths, parking areas, and lighting. The Infra Space Pilot Project in Boston is a half mile project under a viaduct with parking area, stormwater capture and diversion, LED lighting, and a multimodal path.52

Bridging Lanterns Local light and mural projects have been proposed by Architects of Atelier Cue. Their proposed light interventions, called “bridging lanterns”, aim to illuminate the bridge overpass at State Street and Mill River. Similar projects can be incorporated in underpasses in or close to the study area, such as I-95 and Long Wharf Drive, I-95 and Canal Road Drive, I-95 and Hamilton Street, or I-95 and East Street. Lighting in these areas can create a sense of safety and beauty while promoting connectivity for pedestrians and bikers entering the study area. The project was granted $20,000 through The Could Be Fund, a project of the Elm CIty Innovation Collaborative.53

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TACTICS

REDEVELOPMENT

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HOUSING

SMALL BUSINESS

ENVIRONMENTAL

Redevelopment tactics, in order to be vibrant, successful, sustainable, and inclusive, must have strategies at the outset to frame itself around these visions. Redevelopment in challenging, environmental and economically distressed communities require developers and cities to be creative, tapping into existing resources in a way that ensures that base values are upheld. This section outlines a number of resources available

in the state that can be utilized to broaden economic development capabilities.

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BROWNFIELD REDEVELOPMENT

A brownfield is defined by the Connecticut General Statutes as “any abandoned or underutilized site where redevelopment, reuse or expansion has not occurred due to the presence or potential presence of pollution in the buildings, soil or groundwater that requires investigation or remediation before or in conjunction with the restoration, redevelopment, reuse and expansion of the property.” The challenging status of sites once used for industrial and commercial purposes can make it difficult for communities and developers to restore their use. Revitalizing these sites, however, have an outsized benefit for cities and communities by improving environmental conditions and creating jobs and housing. DEEP’s Remediation Division oversees the assessment and cleanup of brownfields and other contaminated sites in Connecticut in coordination with DEEP’s Bureau of Materials Management and Compliance Assurance on remediation of releases from underground storage tanks, PCBs, and illegal waste disposal sites. DECD also offers loans of up to $4 million with potential forgiveness for projects that include income-restricted housing units for renters earning under 80 percent of the Area Median Income, mixed-use transit-oriented development projects, and projects that enable the creation of more than 100 permanent jobs. Brownfields may be encountered on some of the sites

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under review for development, particularly the Fronteir warehouse office and the Sportstech site. Connecticut DEEP has a series of useful support documents for brownfield redevelopment to minimize risks associated and support successful development through their PREPARED Workbook.54 PREPARED supports brownfield development by walking municipalities through catalytic steps— • Identify, clarify, and gain support for brownfield reuse goals and objectives, • Identify and assess options for involvement in a particular brownfield property, • Evaluate the risks associated with different levels of involvement, and • Formulate strategies for eliminating or minimizing those risks.

SMALL BUSINESSES AND INNOVATION

Place-sensitive development will need to craft buildings and users in tandem. There are a number of capital and incubator programs to service small and growing businesses, an ideal tenant for future development. The Connecticut Center for Advanced Technology (CCAT) runs a number of Small Business Incubator Grant Program that support start-up companies in Connecticut incubator facilities. Connecticut Innovations (CI) is a quasi-public organization that serves as Connecticut’s strategic venture capital arm, offers strategic guidance and equity investments to help promising businesses thrive. Crossroads Venture Group (CVG) offers guidance for high-growth enterprises. The Community Economic Development Fund (CEDF) provides loans and technical assistance to small businesses. Connecticut Community Investment Corporation (CTCIC) offers access to capital and financing opportunities for expanding real estate and equipment purchases. BDC Capital offers loans, mezzanine and equity investments, guarantees, and financial services through pooled funds to share the risks of helping promising companies expand. The Connecticut Department of Economic and Community Development has a comprehensive listing of small business support, 55 as well as small business lending partners.56 EDC Rex offers a similar list for new businesses and real estate developments.57

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AFFORDABLE HOUSING

Affordable housing was a key criteria for many in the stakeholder meetings conducted for this report as well as for the Responsible Growth Plan. Affordable Housing legislation, funding, and development is a niche and challenging field. It is necessary to tackle affordabillity from both a legislative side, as well as a development side. From the legislative perspective, New Haven’s Affordable Housing Task Force, active between March 2018 and January 2019, published six major recommendation areas of how to improve housing affordability in the city, including continued advocacy efforts, land use efficiency, regional integration, and improved access.58 The Board of Alders voted to approve these measures in April of 2019. Inclusionary Zoning is a key tool used elsewhere in the country to support affordable housing development. The city has been undergoing inclusionary zoning research, which suggests a strong enough housing market to support a required percentage of new development be deemed affordable housing. Newark, New York, Cambridge, and Burlington are some of the cities with varying forms of inclusionary zoning, which were reviewed and evaluated as part of a study with City Plan in January 2020.59 In addition, the mayoral transition team suggests developing a local fund to help subsidize the creation

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and maintenance of affordable housing. The beginning of this Affordable Housing Fund was established in late 2019, when an existing New Haven city-wide tax assessment deferral program was updated. The existing program was first implemented in 1975 and seeks to incentivize construction in the city by phasing-in taxes for properties improved by 35 percent as opposed to charging outright.60 Its latest amendment differentiates between development that includes integrated affordable housing and those that do not, with money gained from the faster phase-in rate going into a municipal affordable housing fund distributed by the newly established Affordable Housing Commission.61 Groups like the Open Communities Alliance (OCA)62 and the Affordable Housing Alliance of Connecticut (AHA)63 are groups knowledgeable in growing affordable housing in the area. From the development perspective, understanding the legislation as well as funding sources and structures are critical. There are several existing resources in the state and the city that are well versed and could prove valuable potential partners. The New Haven Housing Authority,64 South Central Regional Council of Governments, and Neighborworks New Horizons65 all have experience in this space. State affordable housing funds are listed on their

website, including annual funding schedules, incentive programs, and CHAMP Funding.66 Important federal programs include the Low-Income Housing Tax Credit (LIHTC), HOME Funds, Block Grants, among many others.67 Legal and financial modeling assistance may be necessary to broaden developer capabilities to take on affordable housing projects. Some potential areas to develop these include the DECD, the Ludwig Center for Community and Economic Development at Yale Law,68

as well as the Inclusive Economic Development Lab at Yale School of Management.69

Tax Assessment Deferral Described Development without Affordable Housing

20 Y1

40 Y2

60 Y3

80 Y4

100

Development with Affordable Housing

The pre-2019 annual assessment phase-in schedule assessed development sites in the city at 20 percent, 40 percent, 60 percent, 80 percent, 100 percent new value over five years. This slow phase-in rate now remains for developers who commit to setting aside at least 10 percent of new apartments at rents affordable to 60 percent or less regional area median income (AMI). The projects must— • must be restricted affordable for at least 20 years • must be evenly distributed throughout the project, not segregated to one floor

AFFORDABLE HOUSING FUND

Other projects without affordability have an accelerated annual assessment phase-in schedule of 25 percent, 45 percent, 65 percent, 85 percent, and 100 percent over five years. The 5 percent increase is put into a dedicated municipal affordable housing fund.

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State Investment $8,000,000 Targeted Brownfield Development Loan $1,000,000 Regional Brownfield Grant Program $450,000 Municipal Brownfield Pilot Program Total Investment Approximately $3,500,000,000 Jobs 2,500, one of the largest combined TOD Brownfield remediation projects underway in the United States Developer Building and Land Technologies via Harbor Point, LLC Specs 6,000,000 square feet of floor space 4,000 units of residential housing Retail, office and commercial space Waterside School Over a dozen acres of new public parks

Harbor Point is a multi-phased, mixed-use development located in five areas on a brownfield overlooking Stamford Harbor. The project is a 10-minute walk from the Stamford Transportation Center (STC), and infrastructure improvements within the district are partially funded through the Harbor Point Infrastructure Improvement District, a tax-increment financing vehicle.70

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BROWNFIELD REMEDIATION PRECEDENT |

HARBOR POINT, STAMFORD

The project is extraordinary in that it Includes pollution cleanup of a Petro fuel site and a former Manger Electric site. In addition to four $2,000,000 Targeted Brownfield Development Loans provided to the developer, OBRD granted $1,000,000 to the South Western Regional Planning Agency (SWRPA) for additional brownfield remediation and site improvements. Harbor Point is a winner of the Brownfield Coalition of the Northeast (BCONE) Sustainable Communities Brownfield Redevelopment Award and is a LEED-ND gold-certified, mixed-use, transit-oriented development. Remedial actions have included excavation and off-site disposal of more than 200,000 cubic yards of polluted soil, installation of more than 50 acres of geomembrane engineered controls, construction of vapor barriers and mitigation systems, and reuse of more than 100,000 cubic yards of crushed concrete and recycled stone.

district, and residential sections. It is estimated to have protected $38.4 million. The city operates and maintains the barrier while the Corps operates and maintains the navigation gates. The project consists of three elements. The first, a barrier at the east branch of Stamford Harbor, consists of a 17-foot tall, 2,850 foot-long earthfill dike with stone slope protection. A pump station discharges interior drainage and a 90-foot-wide opening is provided for navigation. The second is a barrier that protects the west branch of the harbor, a 17-foot tall, 1,350-footlong concrete wall with 2,950 feet of earthfill dike with stone slope protection and a pumping station. The third is a 4,400-foot earthfill dike with stone slope protection having a maximum elevation of 19 feet that protects Westcott Cove with two pumping stations. The Reservoir Control Center (RCC), in Concord, Massachusetts constantly monitors river levels and weather conditions and send operation signals via satellite and radio.

A key catalytic element that is little understood in its connection to development in Stamford is the Hurricane Barrier. Built by the U.S. Army Corps of Engineers, the barrier was built in 1969 after hurricanes in 1938 and 1954 caused millions in damages. It is raised when large storm surges are expected, protecting over 600 surrounding acres from flooding while temporarily closing the harbor to maritime traffic. The project cost $14.5 million at the time, and protects principal manufacturing plants, a portion of the main commercial

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Smart Vent Products. continuingeducation.bnpmedia.com/courses/ smart-vent-products-inc/floodproofing-nonresidential-buildings/2/ FEMA. Dry Floodproofing. www.fema.gov/media-library-data/20130726-1608-20490-9182/fema_551_ch_07.pdf Wikimedia Commons. commons.wikimedia.org/wiki/File:Floodwall_in_Sunbury,_Pennsylvania.JPG Personal Architecture modernises the Dutch Dike House. www. mark-magazine.com/news/personal-architecture-modernizes-the-Dutch-dike-house Alex Wilson (2015) Fundamentals of Resilient Design: Wet Floodproofing. www.resilientdesign.org/fundamentals-of-resilient-design-wet-floodproofing Noaq Boxwall Flood Barrier. www.floodcontrolinternational.com/ PRODUCTS/FLOOD-BARRIERS/noaq-boxwall.html Aquafence Products. www.aquafence.com Imagur and www.nachrichten.at. www.elitereaders.com/mobileflood-walls-austria-machlanddamm/ Potomac Park Flood Levee. www.atlasobscura.com/places/potomac-park-flood-levee seattlemag.com/seattle-seawalls-no-longer-shore-thing conceptlandscape.tumblr.com/post/115144436292/landscape-a-design-waterfront-location; commons.wikimedia.org/wiki/ File:Wave_run-up_on_a_Dutch_dike_with_Haringman_blocks.jpg; www.flickr.com/photos/9190307@N05/2828109693 Andrew Morang (2016) “Hurricane Barriers in New England and New Jersey: History and Status after Five Decades.” Journal of Coastal Research, 32(1), 181-205. bioone.org/journals/ journal-of-coastal-research/volume-32/issue-1/JCOASTRES-D-14-00074.1/Hurricane-Barriers-in-New-England-and-NewJersey--History/10.2112/JCOASTRES-D-14-00074.1.full Credit Torsten Henning. www.houstonchronicle.com/local/gray-matters/article/Barriers-canals-fake-islands-What-other-cities-6388327. php#photo-8317366 U.S. Army Corps of Engineers. Stamford Hurricane Protection Barrier. www.nae.usace.army.mil/Missions/Civil-Works/Flood-Risk-Management/Connecticut/Stamford-Hurricane-Barrier CIRCA Receives 2017 NOAA Coastal Resilience Grant to Evaluate Living Shorelines to Reduce Flood Risk. circa.uconn. edu/2017/07/18/circa-receives-2017-noaa-coastal-resiliencegrant-to-evaluate-living-shorelines-to-reduce-flood-risk National Wildlife Federation (2020) Softening Our Shorelines. nwf.org/-/media/Documents/PDFs/NWF-Reports/2020/Softening-Our-Shorelines.ashx Rebuild by Design. www.rebuildbydesign.org/our-work/all-proposals/ winning-projects/ny-living-breakwaters

CIRCA (2016) City of New Haven Commercial Industrial Toolbox Final Report. circa.uconn.edu/wp-content/uploads/ sites/1618/2016/03/CIT-CIRCA-Final-Report-With-JPEG-Appendices-attached.pdf CIRCA (2017) Advancing High Resolution Coastal Forecasting and 19 Living Shorelines Approaches in the Northeast. circa.uconn.edu/ coastal-forecasting CIRCA (2017) Connecticut Living Shorelines: Projects into Practice 20 Workshop. circa.uconn.edu/2017/10/18/ct-living-shorelines-nov20-workshop CIRCA (2018) Floodplain Building Elevation Standards. circa.uconn. 21 edu/wp-content/uploads/sites/1618/2018/03/Floodplain-Building-Elevation-Standards.pdf State of Connecticut Insurance Department. Flood Insurance Fact 22 Sheet. portal.ct.gov/CID/General-Consumer-Information/Flood-Insurance-Fact-Sheet EPA (2016) Recommendations for Constructing Roadside Vegetation 23 Barriers to Improve Near-Road Air Quality. cfpub.epa.gov/si/si_public_record_report.cfm?Lab=NRMRL&dirEntryId=321772&simpleSearch=1&searchAll=Recommendations+for+constructing+roadside+vegetation+barriers+to+improve+near+road+air+quality Deshmukh, P., V. Isakov, A. Venkatram, B. Yang, K. Zhang, R. Logan, 24 and R. Baldauf (2018) The Effects of Roadside Vegetation Characteristics on Local, Near-Road Air Quality. Air Quality, Atmosphere & Health. Springer Netherlands, Dordrecht, Netherlands, 12(3), 259-270.cfpub.epa.gov/si/si_public_record_Report.cfm?dirEntryId=344953&Lab=NRMRL Federal Highway Administration State Plant Listings. www. 25 environment. fhwa.dot.gov/env_topics/ecosystems/roadside_use/ vegmgmt_rd_ct.aspx City of San Diego (2014) South 805 Traffic Noise Basics Fact Sheet. 26 SAN_I805S_FS_Traffic_Noise_Basics_Fact_Sheet_120814.sflb.ashx Reslient Bridgeport. resilientbridgeport.com/about 27 28 NYC. www1.nyc.gov/site/planning/zoning/districts-tools/flood-text. page Boston Planning (2019) Coastal Flood Resilience Design Guidelines. 29 www.bostonplans.org/getattachment/d1114318-1b95-487c-bc36682f8594e8b2 30 Maryland. www.completecommunitiesde.org/planning/sustainable/ strengthen-codes-and-ordinances NYC (2019) Climate Resiliency Design Guidelines. www1.nyc.gov/ 31 assets/orr/pdf/NYC_Climate_Resiliency_Design_Guidelines_v3-0. pdf NYC (2019) www1.nyc.gov/assets/planning/download/pdf/ 32 plans-studies/retrofitting-buildings/retrofitting_complete.pdf

ENDNOTES 33

Boston Planning (2019) Coastal Flood Resilience Design Guidelines. www.bostonplans.org/getattachment/d1114318-1b95-487c-bc36682f8594e8b2 FEMA. Design Considerations in Floodproofing. www.fema.gov/ 34 media-library-data/643d07bceee8ade17eef8e11cf7a2abb/P-936_ sec2_508.pdf City of New Haven Complete Streets Manual. www.newhavenct.gov/ 35 civicax/filebank/blobdload.aspx?blobid=23184 Sidewalk Labs Street Design. sidewalklabs.com/streetdesign 36 City of Sacramento. www.cityofsacramento.org/Public-Works/ 37 Engineering-Services/Projects/Current-Projects/Franklin-CompleteStreet Long Wharf Responsible Growth Plan Meeting (2018) www. 38 newhavenct.gov/civicax/filebank/blobdload.aspx?blobid=32357 Sidewalk Labs Street Design. sidewalklabs.com/streetdesign 39 Sidewalk Labs Street Design. sidewalklabs.com/streetdesign 40 41 Perkins Eastman (2019) Long Wharf Responsible Growth Plan. www. newhavenct.gov/gov/depts/city_plan/plans_n_projects/long_wharf. htm Gehl Institute (2020) Public Life Diversity Toolkit. gehlpeople.com/ 42 wp-content/uploads/2020/02/20160301_Public-Life-DiversityToolkit-V2_HighQuality-1.pdf Burgen (2019) Barcelona’s car-free ‘superblocks’ could save 43 hundreds of lives. www.theguardian.com/cities/2019/sep/10/barcelonas-car-free-superblocks-could-save-hundreds-of-lives thecityateyelevel.com/biglearning/80-lessons/ 44 45 mexiconewsdaily.com/news/new-mall-is-one-of-the-largest-inmexico Milwaukee Harbor District. harbordistrict.org 46 www.designboom.com/design/howeler-yoon-architecture47 swing-time-09-12-2014/#:~:text=’swing%20time’%20by%20 h%C3%B6weler%20%2B,as%20individuals%20or%20in%20groups. Intelligent Living. Karnataka Yoshi Fish. www.intelligentliving.co/ 48 yoshi-goby-fish-eating-plastic TetraBins. www.tetrabin.com 49 50 Baltimore Trash Wheel. inhabitat.com/baltimores-floating-trasheaters-have-intercepted-1-million-tons-of-debris www.thebentway.ca 51 www.landing-studio.com/infra-space-1 52 www.ateliercue.com/on-the-boards https://www.ateliercue.com/ 53 on-the-boards PREPARED Municipal Workbook. portal.ct.gov/DEEP/Remedi54 ation--Site-Clean-Up/Brownfields/PREPARED-Municipal-Workbook-Main-Page CT DECD Small Businesses. portal.ct.gov/DECD/Content/Busi55

ness-Development/01_Type_of_Business/Small-Businesses CT DECD Small Businesses. portal.ct.gov/DECD/Content/Business-Development/05_Funding_Opportunities/Lending-Partners REX Starting a Business Incentives. www.rexdevelopment.org/index. 57 php?option=com_content&view=article&id=92&Itemid=280 Affordable Housing Task Force (2019) Affordable Housing Report 58 and Recommendations. 24 January 2019. www.newhavenindependent.org/archives/upload/2019/01/Tom/AHTF_Report.pdf Thomas Breen (2020) Crew Redies Inclusionary Zoning Push. New 59 Haven Independent. www.newhavenindependent.org/index.php/ archives/entry/inclusionary_zoning New Haven Livable Cities Initiative. www.newhavenct.gov/gov/depts/ 60 lci/developers/other.htm Thomas Breen (2019) Tax Breaks Pass, With Affordable Incentive. 61 New Haven Indedpendent, 3 December 2019. www.newhavenindependent.org/index.php/archives/entry/assess_program. Shipman & Goodwin LLP. www.shipmangoodwin.com/recent-changes-to-the-new-haven-real-estate-tax-assessment-deferral-program 62 www.ctoca.org 63 ahact.org 64 www.elmcitycommunities.org neighborworksnewhorizons.com 65 66 portal.ct.gov/Services/Land-and-Environment/Housing/Affordable-Housing-Funds 67 www.localhousingsolutions.org/fund/federal-funding-for-affordable-housing; www.hud.gov/program_offices/comm_planning/ affordablehousing/programs/home; www.urban.org/urban-wire/ how-affordable-housing-gets-built Ludwig Center for Community & Economic Development. law.yale. 68 edu/studying-law-yale/clinical-and-experiential-learning/our-clinics/ ludwig-center-community-economic-development Inclusive Economic Development Lab. iedl.yale.edu 69 70 Stamford Harbor Point. portal.ct.gov/DECD/Content/Community-Development/05_Sucess_Stories/Harbor-Point---Stamford, www. harborpt.com/2019/01/environmental-milestone-reached-at-harbor-point-remediation-completed-on-90-acres-of-former-brownfields 56

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RECOMMENDATIONS

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DEVELOPMENT LAYER

PLACEMAKING AND CONNECTIVITY LAYER

FLOOD MITIGATION LAYER 183

Using a layered approach, recommendations are defined in three integrated fields – 1) flooding mitigation and infrastructure, 2) placemaking and connectivity, and 3) redevelopment Each layer provides iterations based on levels of risk, benefit, and funding capacity. Iterations engage across layers, and are intended to offer a starting point for how programming and design elements can interact. Flooding mitigation and infrastructure provide a base layer, serving as a means to protect existing structures, address stormwater, and ensure that development is viably to code. The next layer, placemaking and connectivity, serves as the key catalyst for development. Connecting the site to the city by both establishing an engaging identity as well as improving accessibility is a critical element to attract developers and users alike. Redevelopment recommendations offer a series of principles to follow when moving from catalytic stages to complete site design and development. Phasing these layers with each other depends on the types of interventions recommended. While flooding mitigation is the base layer, placemaking and connectivity projects should begin before flooding infrastructure is implemented. Engaging stakeholders early will be integral to ensuring that the Harbor District project genuinely serves community needs, giving the site the sense of ownership and identity.

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redevelopment

placemaking

flooding

LAYER TIME

Diagram of potential phasing shows that while flooding functions as the base layer, placemaking can occur first with shorter design and implementation stages.

Design and outreach Implementation

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LAYER 1

| FLOODING

MITIGATION SITE DESIGN

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Existing Conditions 1’ contour 0 Elevation | NAVD 88 Special Flood Zone Change Site Base Flood Elevation | 13’ Site Base Flood Elevation + 2’ | 15’ FEMA Zone VE FEMA Zone AE

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Flood risk reduction serves as the base layer for all design interventions. Any development along the Harbor will require flood protection to ensure that the existing uses remain strong and future development is viable and to code. Three possible iterations are outlined – raised perimeter boardwalk, raised Long Wharf Drive, and raised Water Street egress. Each has varying levels of protection, public investment, and site impact. These recommendations build on site elevations and FEMA flood designations. The water’s edge of the site appears to fall within the VE-16 SHA zone, which would be a significant barrier to locating any perimeter protection directly at the coastline. Building at the edge would likely require either a new base flood elevation designation, or added wave attenuation and gradient modification to convert the VE designation (100-year floodplain with wave action) to an AE designation (100year floodplain without wave action). The first iteration recommended assumes a reclassifcation of the water’s edge to the FEMA classifaction AE-13 just inland from the coastal edge. The Living Shoreline Project has the potential to instigate a FEMA floodmap revision to allow for this.1 According to Connecticut LiDAR data, the circular patch on the central coastal edge of the site is already at 188

the AE-13 zone’s base flood elevation, and thus would require only 20-inches more of height to meet CIRCA’s futureproofing design guidelines. To the west, the Lenny and Joe’s walkway is at 5-feet above the American Vertical Datum, while the restaurant is slightly above that at 10-feet. To the east, the Office Complex arcade is 10-feet and the area to the water’s side of the sewage treatment plant is 8-feet. Each alternative is assessed using the following key. + Pro - Con 0 more analysis necessary

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RAISED PERIMETER BOARDWALK ITERATION I

Very high public investment, high risk reduction, high site impact, greater alignment with Responsible Growth Plan Can vary in risk protection, can vary in site imposition + If above base flood elevation, structurally protects the entire site and limits the need for future development to be elevated. Thr later would require achieving FEMA certification and a Letter of Map Revision (LOMR) to the FIRM. If below base flood elevation, provides some risk reduction and minimizes site impact. - If above base flood elevation, has a significant impact on-site due to its height in some sections, blocking views and light. If below base flood elevation, does not take the site out of floodplain and future development must be elevated. Overly difficult and expensive to build. 0 Site drainage and integration with the outfalls needs to be evaluated. Requires FEMA remapping VE-16 to AE-13.

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Water Street Fo

W ng

v rf A

Raised Perimeter Boardwalk Special Flood Zone Change FEMA Zone VE FEMA Zone AE Closure Structures Section Lines

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A raised perimeter walkway that simultaneously protects parcels from flooding and offers waterfront access and views was a key recommendation of the Responsible Growth Plan. This alternative evaluates the design options necessary to make this feasible, with an eye to CIRCA’s sea level rise design recommendations as well as the existing infrastructure on site. Higher elevation at the central landscaped circle means that only three steps worth of additional height would be required to meet CIRCA’s recommendation for BFE +20”. At 5-feet, the boardwalk in front of Lenny and Joe’s Restaurant is too low to be raised the 10-feet needed for future-proofing standards, though the berm that the restaurant sits atop could be raised to create a separate platform terraced above the waterfront walkway. The sewage treatment plant site would need

an additional 7-feet of protection to meet CIRCA guidelines. The Army Corps study discouraged a floodwall due to difficulty building on the existing bulkhead as well as design and construction limitations. One of the key factors that makes a floodwall difficult is the office tower, which directly abuts the current granite walkway with an arcade and glazed wall that looks out onto the water. Typical interventions would be difficult to fit into this space, and difficult to do so while maintaining the quality of experience for occupants of the building. However, it is possible to mix architectural interventions with a walkway to make this protection measure more feasible. This would include—

DESIGN ITERATION A | East to West Section Looking South

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EXISTING CONDITION | Office Tower

DESIGN ITERATION A

DESIGN ITERATION B

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•

Incorporating the seawall into any redevelopment of the Lenny and Joe’s building. The coastal walkway would stay at a lower elevation along the water’s edge, and step up to reach the top as it wraps around the site. A road closure would be necessary to tie from the highway berm to the west into the new structure to the southwest in order to ensure continuous protection. An elevated path could cross the front of the office building, blocking the views from the ground floor but providing a new external promontory from which to view the harbor. This elevated intervention could provide the co-benefit of protecting open spaces at the ground level under and adjacent to the arcade from wind.

A series of differentiated spaces would be created ranging from the depressed, sheltered garden at the inland side of the walkway to wide and exposed views up on the platform promenade. An elevated perimeter would have to be continuous across the entire Harbor District—including the Magellan Terminals or as a wall inland therefrom—and up to the berm that approaches the Forbes Avenue Bridge. Alternatively, the perimeter elevation could be lowered further, falling short of even the FEMA designated base flood elevation, but protecting it from some significant flooding events shy of the annual 1-percent risk mapped in the FIRM. This type of intervention would reduce flood

BFE +20”

BFE

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EXISTING CONDITION | Restaurant

BFE +20” BFE

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DESIGN ITERATION

risk to some degree for the existing structure but would still require any and all new buildings to be developed with their habitable floors and mechanical systems at or above BFE plus 1 foot at a minimum. A flood risk reduction intervention in the form of elevating the water’s edge above BFE (or further elevated to CIRCA standards) would provide some flexibility for building elevations constructed behind that line. This is assuming that it achieves FEMA certification and results in a Letter of Map Revision (LOMR) to the FIRM, though a belt and suspenders approach would still elevate structures above at least BFE plus 1 foot in that scenario as well.

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Water Street Fo

W ng

v rf A

Raised Perimeter Boardwalk Special Flood Zone Change FEMA Zone VE FEMA Zone AE Closure Structures

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RAISING LONG WHARF DRIVE ITERATION 2

High public investment, high risk reduction for new development, low risk reduction for existing infrastructure, medium site impact, moderate alignment with Responsible Growth Plan Can vary in risk protection, can vary in site imposition + Removes the majority of future development parcels out of the floodplain. Moderate site impact that can be incorporated well into future design development. The views for the existing office towers are not blocked. - Does not provide significant protection to current infrastructure. Future development to the south of Long Wharf will have to be elevated, which is more expensive. 0 Site drainage and integration with the outfalls needs to be evaluated. Exact overpass heights need to be determined. Integrating existing parking garages will be necessary.

This strategy would not protect current infrastructure, which would have to be protected with building-based measures, and would require all new development to the south of Long Wharf to elevate habitable floors and mechanical systems between 5- to 10-feet above current grade, depending on where it is on the site. Long Wharf Drive rises above the base flood elevation just north of the I-95 overpass, where it can readily tie into grade above base elevation. It would also need accompanying structural protection along the Mill River to ensure that rising waters did not come around and overwhelm the

Alternative based on phased-out oil tanks

Iteration Two Raising Long Wharf Drive offers the opportunity to take future sites for development out of the floodplain. The key to this strategy is tying into existing land masses that are above base flood elevation (assuming they are structurally able to achieve FEMA certification) and connecting them with an elevated raised roadway to ensure continuous protection and remove the landward parcels from the 100-year floodplain. Similar principles apply to any new roadways that would be constructed through decommissioning the oil terminal.

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EXISTING CONDITION | Long Wharf Drive facing north

site from the east. In order for this option to be viable there must be enough clearance under the overpasses north of Water Street even with an elevated road underneath. A preliminary analysis was conducted using LiDAR data to ensure that roads could be elevated without obstruction. The road elevation under the overpasses is 9-feet above NAVD88, meaning that it would need to be elevated another 5-feet for dry egress. The lowest bridge on the site would still remain within the minimum clearance necessary for urban streets at 16’. The roadway berm would need to be a prominent design feature of future redevelopment. To prevent the sensation of being in a bowl, the protected parcel

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bounded by Long Wharf Drive to the south and east, Water Street to the north, and the highway berm to the west could have a different first floor elevation on the front and the back of the building, with the front entrance to the south at the finished elevation of the roadway berm and the back entrance to the north at an effectively landscaped lower grade. The raised road could also help to incorporate distinction between car traffic and pedestrian and cycle traffic by designing them at different elevations. Flooding prevention measures to the south of the raised roadway for the existing office towers would need to protect the building from up to 5 feet of flooding. Installing flood doors and retractable shutters along

EXISTING CONDITION | Long Wharf Drive facing north

DESIGN ITERATION

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DESIGN ITERATION | Long Term | Bermed road integrates into new development Courtyard bioswale helps to address stormwater

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CURRENT CONDITION | Long Wharf Drive at center site

DESIGN ITERATION | Short Term | Improved separation

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DESIGN ITERATION | South of Long Wharf Drive

dry egress

building-based dry floodproofing around highest value buildings and critical pumping infrastructure — combine floodproof doors and hybrid floodwalls

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ground floor parking allowed to flood with evacuation plan

new development elevated

the windows for the entire span at the upper flood height would be necessary to qualify under the NFIP. Alternatively, a combination of sculptural permanent floodwalls could be coupled with temporary flood walls around the building, decreasing the amount of site intervention needed as well as decreasing the setup time for the temporary barriers effectively forming a site-specific berm integrated into the surrounding landscape design. Future development south of the raised roadway will also have to be elevated to base flood elevation plus one for building code and plus two for CIRCA recommendations. This varies across the site between 9- and 4- feet above grade. Encouraging low impact development for this side of the site, such as club houses, small restaurants, and community spaces, could pair well with the elevated typology, becoming part of the branding of the waterfront area. Alternatively, a similar approach to the redevelopment of the inland parcel could result in northern entrances to these buildings at the elevated grade of Long Wharf Drive while the southern entrances facing the harbor could be at a lower elevation nearer to existing grade but including non-habitable commercial space such as restaurants and bars.

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Raised Perimeter Boardwalk Special Flood Zone Change FEMA Zone VE FEMA Zone AE Closure Structures Dry Egress

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RAISING WATER STREET ITERATION 3

High public investment, high private investment, lower risk reduction, moderate site impact, moderate alignment with Responsible Growth Plan + Provision of dry egress for all redevelopment sites. Offers resilient, dynamic, floodable public realm underneath raised development. The views for the existing office towers are not blocked. - Does not provide significant protection to current infrastructure. All future development will have to be elevated, which is more expensive. Depending on the design, programming a lower open floor can be an asset or a drawback. 0 Site drainage and integration with the outfalls needs to be evaluated. Exact overpass heights need to be determined. Integrating existing parking garages will be necessary. The key to this strategy is raising the road in a way

that removes Water Street out of the floodplain, serving as an elevated means of dry egress from future development to the south to areas outside of the 100year floodplain. Water Street rises out of the floodplain to the west near the Metropolitan Business Academy (MBA). The base flood elevation falls just east of MBA, while base flood plus two falls just west of it. Tying this into the elevated berm at the base of the Water Street Bridge to the east of the site, if coupled with flood risk reduction measures to address riverine flooding along the Mill River, offers protection to Wooster Square to the north as well as creates a spine of dry egress along which new development can be oriented. The elevation, both absolute and above grade, is estimated based on CT 2016 LiDAR data. Additional, shorter berms or bridges would need to be constructed to link vehicular egress paths from each of

EXISTING CONDITION | Water Street facing West

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DESIGN ITERATION | New development north of Long Wharf Drive West to East Section

New construction between Water Street and Long Wharf Drive has ground floor parking and flexibly programmed enclosed spaces on the streetfront. These uses are within regulation and keep important permanent infrastructure out of the floodplain while keeping ground-level vital. Dry egress ramps connect to the elevated Water Street from the second floor, with openings for air and lighting to the

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ground floor. Flood mitigation for existing infrastructure to the south of Long Wharf Drive have the same design features suggested in the previous iteration.

the intersecting streets to this corridor to provide safe exit from the site and through traffic surmounting the berm. Like the previous iteration, this design would need to include building-based protections for existing infrastructure. In addition, all new development across the site would need to be elevated to an absolute elevation of 14 feet for current building standards (BFE +1’) or 15 feet for CIRCA recommendations (BFE +2’). This translates to between 9- and 5- feet across the site. The significant new blank spaces constructed beneath the new buildings necessary to bring their habitable floors up to those elevations could serve to accommodate a range of interesting alternative uses. Common uses of these types of spaces include parking garages which would ramp up to meet the means of dry egress. Less traditional alternatives include an underground skate park and station for future food trucks that would add character and value to the neighborhood above. These uses would be dependent on the footprint and size of the buildings as well as other building interventions to ensure that they were neither too cavernous to feel human-scaled nor too small to feel dark or crowded. Introducing light and air into the space through skylights and ventilation will be important.

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LAYER 2 | PLACEMAKING AND CONNECTIVITY

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The close nature of placemaking and connectivity combine in a series of frameworks and pilot project recommendations for the site. These are divided into five sections — • Engage local actors grows ideas and engagement for placemaking to ensure that interventions are both reflective of community as well as stewarded and maintained • Subdivide the site breaks-down the scale into manageable zones that can be focused on for connectivity and character. At 68 acres, the core site is too large to have a single unified approach. Breaking it down into smaller, identity-based districts defined by site use and feel helps to tailor locations for pilot projects that can develop into permanent districts. • Branding the gateway establishes a sense of identity and connection to help overcome the long stretches of pavement and disengagement between the site and its nearest population centers. • Passage to place connects temporary and long term interventions that move along the gradient from the site periphery to its center. The interventions vary in terms of permanence and level of investment. Using the tactical urbanism principle of pre-vitalization, low-cost and temporary use projects are implemented, while encouraging the transition to higher cost and permanent infrastructure projects. • The Sapphire Necklace serves as a combined branding mechanism, wayfinding method, and green infrastructure network that connects the city as a whole to its waterfront.

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LOCAL ACTORS AND PLAYERS

Through stakeholder interviews, we found that engaging local community members, local artists, and partnering with local organizations and businesses is an important opportunity to create a sense of place. Community makers, for example, can be part of the design and implementation of placemaking interventions. Public and private stakeholders can help initiative and attract investments or leverage resources to projects that better weave our site into the fabric of the city. The placemaking tactics outlined below provide a guiding framework that can be further reviewed and tailored to meet the needs of the New Haven community.2 Engaging current local actors and players will be critical to increase capacity, funding, and appeal of any activation activity. Tapping into existing structures builds on capacity, as well as comes with an established following. This will help to bring interested organizers and participants, as well as help to ensure that activation is place-based and organic. Placemaking activities as well as potential partners can vary widely – arts and entertainment, food, nature, history, cycling, or education (with particular focus on nearby schools). The list below outlines actors as well as past events on site as well as elsewhere in the city that serve as inspiration.

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NEIGHBOR HOODS

ARTS ENTERTAINMENT ENTERTAINM

FOOD

NATURE

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Greater New Haven Chamber3 New Haven Community Management Teams4

• • • • • • • • • •

Connecticut Commission on Arts and Culture International Festival of Arts and Ideas Artspace – Holds City Wide Open Studios each year Rodeo Tierra Caliente – Held Jaripeos Rancheros Rodeos at 600 Long Wharf Atelier Cue – Design group focusing on placemaking in New Haven Kwadwo Adae – Mural Painter in New Haven See Click Fix – Innovation center in New Haven Make Haven – Critical maker space SiteProjects – Did Night Rainbow and a number of other projects Projects for a New Millennium / Luminous Environments

• • • •

City Seed – Hosts farmers markets Connecticut Cycling Advancement Program – Hosts the Food Truck Festival New Haven Food Policy Program Northeast Organic Farming Association

• • • • • •

New Haven Land Trust Urban Resources Initiative Canal Boathouse City Planning Environmental Advisory Council Save The Sound The Sound School

HISTORY

• • • •

New Haven Preservation Trust New Haven Museum Yale Urban Design Workshop New Haven Urban Design League

• •

• • •

Bike New Haven – the official New Haven Bike Share program Elm City Cycling – a volunteer-run, member-supported non-profit organization, monthly Bike to Work Breakfast. New Haven Bike Month – works closely with New Haven neighbors and neighborhoods Go New Haven Go – a sustainable transportation coalition, hosts the CarFree Challenge and month of events every September CTRides – free program that helps commuters find the best way to get to work or school East Coast Greenway Alliance – connecting 15 states, 450 cities and towns, and 3,000 miles of people-powered trails from Maine to Florida Bradley Street Bike Co-op – community bike shop with a bicycle recycling program, open shop hours, and a used bike shop New Haven Friends of the Farmington Canal Greenway – community group fostering stewardship and public safety New Haven Department of Transportation (DOT) Bike New Haven Elm City Cycles – shop Connecticut Cycling Advancement Program – organizes events

• • • • • •

Department of Education Conte West Middle and High School Metropolitan Business School Highschool in the Community Common Ground The Sound School Barnard Environmental Magnet School

• • • •

CYCLING

• •

EDUCATIO EDUCATION

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SUBDIVIDE THE SITE The site spans 68 acres with varying microclimates and uses. We suggest breaking down this large site into smaller, identity based districts defined by site use and feel. Pilot projects reflect the nature of these site designations, inspired by the land use and connectivity recommendations from the Long Wharf Responsible Growth Plan. While designed for more tactile interventions in Layer 2, we suggest taking these designations into consideration for land use planning at the redevelopment stage in Layer 3. The interventions vary in terms of permanence and level of investment. Using the tactical urbanism principle of pre-vitalization, low-cost and temporary use projects are implemented, while encouraging the transition to higher cost and permanent infrastructure projects. The projects range from being cheap and attractive, such as signs promoting events, to larger scale light and art installations, requiring higher investment.

The Water

The Landscape Sliver

The waterside of the site has beautiful views of the harbor throughout the day, but can also become too windy for prolonged nighttime use. We therefore suggest coupling shorter activities at the water’s edge that focus on the viewshed with activities or structures that can be “retreated” to. Individual sculptural wind barriers can offer seating, tables, and moments of repose, while more lively activities at the center of the site can draw people away from the water to warmer events toward the center of the site.

The Office Towers are large with manicured lawns and several open elements, contiguous with the parking lot at Lenny and Joe’s. These areas are south of Long Wharf Drive but not quite characterized as fully waterfront. Based on stakeholder interviews, office workers will often take lunch on the lawns when the weather is nice and not too windy. Using similar wind-protection strategies as the water’s edge area, pockets of protected seating can be created sheltered by sculptural elements or landscaping, while still maintaining the open space. Lenny and Joe’s parking lot could serve as a location for popup events and temporary activation that is near the water but more spacious and sheltered.

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Recommended Zones

Responsible Growth Plan Comparison

The Heart The center of the site includes the sections north of Long Wharf Drive on either side of Hamilton Street. These areas are currently used by Frontier in the warehouse-style office and Winner’s restaurant and entertainment center. Much of this area is dedicated to parking, which is currently under utilized. These parking lots are ideal staging areas for larger popup events. Markets, fairs, or projected movie nights work well as a temporary use of space. These areas are also sheltered enough from both the open wind from the waterfront and the highway noise and particulates to merit residential development in the future. Hosting events here focused on quality of life can make visitors feel comfortable and enliven the space today, while laying the foundation for the site evolving into a place to live in the future.

The Edge The highway and street edge has its own distinct space, hugging the berm to the west and open to traffic from Water Street to the north. Any activation of these edge conditions must both engage the activity at the street level (applicable to Water Street) as well as protect from highway noise and pollution. The lack of direct neighbors here presents an opportunity for larger events with greater nuisance potential from noise or other externalities that may have a difficult time finding a temporary home elsewhere in the city.

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BRANDING THE GATEWAY

The construction of I-95 left the city feeling isolated from its waterfront. There are long stretches of road open before reaching the water, marked by open areas of asphalt and large highway overpasses. Yet the study site is adjacent to vibrant neighborhoods with unique identities. From under the I-95 overpass to the west, Water Street connects Wooster Square and 9th Square. From under the I-95 overpass to the north-east Street connects the site to Fair Haven. Restitching the site to the city will require active intervention along the roadway, ranging from tactical to permanent, point based to system based. Signage and wayfinding projects that direct foot traffic from residential centers help to direct attention to the site from where people are already at. Signage that is bilingual and reflects neighborhood makeup and history helps to connect the whole of New Haven in its shared history telling a story along the route. Signage along bike and pedestrian paths will usher people further along the site, and create routes that feel shorter, safer, and connected. Approaches can vary from tactical and temporary to long term.

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Atelier Cue “Intersection to Connection” at Chapel and State.5

Concentrated areas of art installations. Focus on art in all three dimensions—along walls, along the ground, stand alone figures.

The project features a gateway wall and ground paint.

“Bridging Lanterns” engages walls and underpass structure above. 219

To the south of the site along Long Wharf, this takes the form of a memorial gateway in honor ot the history William Lanson’s accomplishments in growing Long Wharf. This gateway provides a threshold to the site from the Hill neighborhood, and serves as an important testament to the contributions of African Americans throughout New Haven’s history. To the north of the site, this activation takes the form of activating the many underpasses. The amount of space available under the bridges as well as their nature offer much opportunity for occupation, linear parks, art installations, and lighting. Hanging lanterns and illuminated highway beams transform infrastructure from urban backdrop to a wild forest of concrete worth visiting.New Haven’s wealth of artists and placemakers participate in creating mosaics and murals with images highlighting the natural history of the area and the adjacent neighborhood identities. The site’s location and history offer many opportunities to transform signage into narrative. The signage will highlight the history of the area, from its geological formation in the ebb and flow of glacial forms, to the human reclamation of land from the Sound. Beautiful signage will portray the Harbor’s abundance of marine life, from oyster beds to schools of fish, that has sustained people for generations - from the Quinnipiac tribe to the Oyster Point Historic District. The signage will also have messages that are representative of a land that is resilient and embracing a dynamic and changing environment.

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DESIGN ITERATION | Southern Gateway along Long Wharf

A memorial wall with the history of Lanson’s contributions to Long Wharf sits at the entrance of the new mixed-use area. It can tie into flood protection measures by integrating it with a closure structure in the elevated platform where Lenny and Joe’s currently is. Other Lanson recongitoin sculpture plans6 and African American monments7 in New Haven are shown. 221

The I-95 overpasses can tap into New Haven’s art scene for a mix of low- and high-investment projects to brand and improve site quality. Work by Atelier Cue,8 Kwadwo Adae,9 Sheila de Bretteville (left),10 and Site Projects (far left)11 have lit up New Haven for years. The Northern overpass connects parts of Wooster, Fair Haven, and an industrial stretch along East Street to the core site to the south. Illumination, signage, and sculpture can transform this street from an artery out of the city to a welcome to the water.

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DESIGN ITERATION | Northern Bridge along East Street

DESIGN ITERATION | Western Bridge along Water Street

The Western overpass is the main connection to the site from Wooster, Downtown, and much of the rest of the city. Intervention at this site is likely to have the greatest visual impact for city residents. With long concrete limbs holding up tall flyways, positioning this area as an interpretive site for the land’s natural history offers unique artistic opportunity. 223

Short-Term Stickers and tactical interventions around town bring attention to the waterfront. Inspired by Watermarks in Milwaukee.

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Mid-Term Murals can have a high level of community engagement with relatively low installation costs in comparison to other forms of infrastrucrtre. Artist Kwadwo Adae and Farmington Canal Trail Mural.12

Long-Term The Bentway in Toronto has a combination of lights, seating, planting, and painting to convey a brand beautifully. Signage points to the site from across town.13 Short-Term

Medium-Term

Long-Term

Partners

• Develop a working group to

• Fusco

• Establish point people at the city and at the site interested in developing the space

• Research and apply for grants • Continue to create calendar of programming

connect to developers • Apply for development funding

• Site Projects • CT Arts and Tourism

• Connect to the alderperson

• Include nighttime events

and business development

• Atelier Cue

• Reach out for partners to create

• Build momentum to identify

growth funds

• Kwadwo Adae

working group or join working

lighting and planting needed in

group

the area

• Call for vendors, focus on

• Apply for development funding

• Art Space

and business development

• CT DOT

growth funds

• NH TT&P

artists and food, city promotes • Partner with local maker spaces like make haven • Establish daytime event

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FROM PASSAGE TO PLACE

Events can be place-based like markets and fairs, or journey-based, like Rock to Rock or on9 shop and restaurant crawls. Since there is little foot traffic in the area now, we suggest building momentum around Long Wharf beginning with journey-based activities coupled with tactical place-based ones. The pilot projects listed below are designed to be mixed and matched, and also co-created with local groups. Activating the site means bringing people to the space during the day as well as the night. Active and diverse programming can bring community members to the site and engage them in envisioning the future of the site, expanding from the signage and gateway projects. The activation centers are the spaces where active programming will happen, geared toward attracting community members to the site. Past programming projects include the New Haven food truck festival, rodeo, and fair. A friends committee for the site could be created to tap into existing events and groups in order to build momentum and identity.

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PASSAGE Pilot Project 1 | Ciclovia The site will host consistent family-friendly biking education. Different stations within the site can be organized into stations for biking education, bike maintenance, and helmet giveaways. Moreover, other physical activities can complement the space such as setting up different game stations. This intervention can be paired with open streets/ciclovia events that go beyond the site and requires closing Long Wharf Drive, East Street, and Hamilton Street to through traffic for pedestrian and cycling safety. This event would require consistent timing so that it’s easy to remember, such as the first or last Saturday of the month. It also provides opportunities for partnerships with local organizations such as Make Haven, Elm City Cycle, Bradley Street Bicycle Co-op, Rock to Rock, and New Haven Bike Month. Inspiration | Merida Biciruta, Bogotá Ciclovia, Milwaukee Open Streets

Ciclovia Milwaulkee

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New Haven Cycling New Haven has established cycling events like Rock to Rock and New Haven Bike Month. Rock to Rock is an annual fundraising Earth Day event that hosts family rides, 12-mile, 20-mile, 40-mile, and metric century routes throughout New Haven.14 The routes cut through city park’s, streets, and neighborhoods from West Rock to East Rock, including Long Wharf on their 12-mile route. The New Haven Bike Month is a celebration of biking culture in May.15 Events are organized by neighborhood groups, community members, and business partners. Businesses, employees, and neighbors of the study area can host bike events to promote safe biking in the city. These existing events are an excellent way to continue engaging people in the cycling community to connect with the city’s waterfront by adding associated events to the site. Through stakeholder interviews, the City of New Haven has acknowledged strong support for ciclovia events. In the medium term, including Water Street, East Street, or Long Wharf Drive on the roster of Ciclovia routes can ease access to the site and the waterfront.

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DESIGN ITERATIONS Rock to Rock Modified Route

First weekend in summer - Wooster Cyclovia Route 7 miles roundtrip

Third weekend in summer - The Hill Cyclovia Route 5 miles roundtrip

Third weekend in summer - Fair Haven Cyclovia Route 10 miles roundtrip 229

PLACE Pilot Project 2 | Makers Market and Outdoor Games A regional makers market can attract people from around New Haven and the state to the site. This can include artists, like those currently featured during City Wide Open Studios, as well as farmers and food vendors like Food Truck Paradise and City Seed. Events could have a smaller budget for simple infrastructure like food trucks and popup tents, or a bigger budget that could include picnic tables, string lights, and streamers. Place-based games like corn hole, bocci, four-square, futsal, interpretive centers for local ecology, and art installations add to these types of placemaking events. Pilot Project 3 | Night Taco Trucks and Light Shows Nighttime activities are fun, special, and help foster a stronger sense of community. Extending the hours of the taco trucks on specific days, coupled with an event like light shows or installation openings, can bring the site to life at night. Opportunities for local partnership abound for these types of projects. Under-bridge lighting installations by Atelier Cue or light shows like Yvette Mattern’s Night Rainbow and Projects for a New Millennium’s Terra Tractus create a sense of occassion. Pilot Project 4 | Pocket Parks Creating pocket parks and places of engagement at the edge of the site create moments of connection in the interstital space between the site and the surrounding neighborhoods. Outdoor seating for Cody’s Dinner and the existing food trucks bring down the scale of the large site and cater to existing needs. Pilot Project 5 | Seasonal Fairs and and Skating Rinks The installation of seasonal activities are medium term

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DESIGN ITERATION Zones for activation on site

Night food trucks from around the world, including seating and lighting.16

Projects for A New Millennium’s Terra Tractus - light lasers and dance commemorate the geological history of the Stony Creek Quarry in Connecticut with animated projections on the cliff face.17

Site Projects hosts Yvette Mattern’s Night Rainbow, illuminating New Haven from the top of East Rock Park.18

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ways to activate the under-utilized parking lots. This type of project would require investment in infrastructure, but could bring revenue. Connecticut’s County Fairs are a successful example of summertime events, while New York City’s Bryant Park seasonal rink a successful example in winter. The same space seres multiple purposes across seasons. The site is ideal as it allows for a large installations for multiple uses. A rink, for example, can be used by local schools for outdoor hockey as well as a track for ice skating for families. Place Pilot Recommendation | Community Feedback Sessions Coupling events with community feedback sessions about both the short and long term development of the site would greatly benefit the quality and viability of revitalization work. In the short term, interpretive signage workshops will allow for community participation in choosing design elements such as color, imagery, and language to ensure that narrative and design resonate. In the long term, community participation in development greatly increases the sense of ownership around a project, increasing the level of community engagement both as organizers as well as patrons. Interviews and surveys at the events can be helpful. It is also important to establish a platform to save and share feedback, as a means of institutional knowledge.

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DESIGN ITERATION | Linear Pocket Park under I-95

Short-Term • Get representative on a cycling committee in New Haven • Get site on Rock to Rock • Scope Cyclovia Board

Medium-Term • Establish Cyclovia Event • Upgrade pedestrian, lighting, biking infrastructure to support events • Scope developers interested

Long-Term

Partners

• Create events that are annual and parks that are maintained

• New Haven Transportation and Parking Department • Rock to Rock • New Haven Bike Month • Bradley Street Bike Coop

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THE SAPPHIRE NECKLACE Inspired by Olmsted’s Emerald Necklace in Boston, the plan suggests establishing the Harbor as a jewel in a New Haven Sapphire Necklace19. The Sapphire Necklace tactilely connects the city to the waterfront by tracing water through the city. Green infrastructure upland includes interpretive signage directing readers to the waterfront, sending them on a chase. Visually interlinked pocket parks themselves serve as wayfinding, as well as storm water mitigation. The result is an exciting pedestrian experience that inspires. Chains of green spaces can be realized through partnerships both with local environmental agencies as well as adoption programs from neighboring businesses. Green Buffers | Planting trees along highways can help mitigate air and noise pollution. Trees can also help reduce stormwater runoff, stabilize the soil, reduce Urban Heat Island effect, and provide habitat for bird species. The tree species must be appropriate for the site conditions and able to tolerate air pollution, oil, grease, and metals. Vegetation planted on both traffic berm slopes and filter strips in flat areas should be landscaped to include shrubs, grasses, and trees that can together flourish across seasons. Planting also must be tailored to tolerate fill material. For example, the pin oaks planted near the Maritime Center towers had difficulty surviving in the fast-draining fill. Planters can also serve as buffers to create safer spaces for pedestrians and cyclists, while also beautifying the space and improving local air quality and temperature.

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Bioswales | Bioswales are vegetated stormwater catchments that slow down the flow of stormwater so that it absorbs into the water table, rather than into the sewer system. Bioswales are also created with specialized soil mixes to absorb contaminants. Stormwater runoff stresses the sewer system and can lead to combined sewer overflows that overwhelm the water treatment system and empty into the harbor untreated at the waterfront, causing unwanted smells. Because bioswales have an aggregated impact in the sewershed, bioswales constructed in the downtown area will mitigate runoff at the waterfront. Therefore, the city’s current initiative to construct bioswales is benefiting the waterfront, and an increase to the number of bioswales in this project will benefit the waterfront. Creating Pocket Parks | Pocket parks are small outdoor public spaces that are the size of a residential lot or smaller. The creation of pocket parks around the site can mitigate urban heat island effects, enhance aesthetics, and provide a place for visitors to rest. The parks can be created by ripping off asphalt in selected areas and planting trees or installing planters. Amenities such as benches and picnic tables can enhance use of space.

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Inspired by the Milwaukee Harbor District, large iconic lighting on existing structures creates a visual terminus hub.20 Walls and pavement in a similar hue create identifiable paths.21 Bioswales in New Haven have interpretive signage in select locations.22

Short-Term • Work with the city and designers to identify locations and interpretive design • Creation of an alliance “Friends of Long Wharf”

Medium-Term • Create plan for watering and other maintenance needs • Apply for funding

Long-Term

Partners

• Phased installation

• CT DOT • New Haven Engineering Department • Urban Resources Initiative • New Haven Land Trust

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LAYER 3 | REDEVELOPMENT PRINCIPLES

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The final layer of our approach is long-term redevelopment of the vacant and underutilized sites. Given the relatively blank slate nature of the site relative to other parts of the city and the concepts already articulated in the Responsible Growth Plan, our recommendations for this layer consist of principles that build on the vision articulate in that plan and these should govern any ultimate re-use through permanent structures that fit into the framework established by the first and second layers. Ultimately, we seek to stress that resilience and placemaking can be encouraged and enhanced by redevelopment rather than undermined by it. Creating land uses that reflects the nature of the site, activating ground level with use types that build on the culture established in the catalytic phase, stakeholder engagement, and creating designs inspired by New Haven are key take-aways from this section.

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Land Use that Reflects Site

Ground Floor Activation

New Haven Resilient Design Guidelines

Build on Local and State Sustainability Resources

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Develop Renewable Energy

Include Residents From Surrounding Neighborhoods

Utilize Funding Creatively for Cleanup and Affordable Housing

Craft Development by Crafting Uses

Planning for the Future

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LAND USE THAT REFLECTS SITE Land use responds to the flooding interventions, embracing berms, seawalls, or elevations, as well as the nature of the different adjacencies. Wind shelters should be offered along the water, and land uses less sensitive to noise should be concentrated along the edge of roadways. The site should continue to be broken down into distinct areas of identity to make the large swath more intimate. Land use should respond to the variations within the site. Flooding, wind, and noise are all factors that should influence land use choices, as developers seek to make the site more welcoming to visitors. Understanding these factors and continuing to divide the site into distinct identity and use areas can make the large swath more intimate.

GROUND FLOOR ACTIVATION Concentrating activities along the ground floor that reflect the vibrant culture set defined in the placemaking layer will be critical to ensuring that the district is vibrant. With the opportunity for significant building

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footprints difficult to achieve in the core of downtown or other neighborhoods, there is an opportunity here for larger format active uses such large-scale destination retail, ramped up makerspaces and applied-tech incubators, institutional-scale education and workforce development, and indoor recreation. These uses are active and interesting to walk past but cannot typically fit in the ground floor of an infill mixed-use building and therefore will complement rather than compete with the downtown or other walkable commercial streets of the city.

NEW HAVEN RESILIENT DESIGN GUIDELINES The architecture of waterfront development tends to feel universal. Rotterdam, South Boston, and San Diego are difficult to distinguish by their 21st Century fabric. Establishing a New Haven-based set of design guidelines that incorporate flood resilience can help the area feel in context, and friendlier to existing residents. The historic districts surrounding offer a useful precedent. Fair Haven in particular has beautiful brick architecture that could be at a more developer-sized scale than the typical subdivided house, while remaining

in the New Haven vernacular. Depending on the strategy deployed from the three options presented in the first layer, building masses above the raised resilient elevation can take a different, more human-scaled form. The top of the podium presents an opportunity to create intra-block networks of pedestrian paths that break down the blocks into a series of “buildings” that express this New Haven aesthetic above the surface. The New York City and Boston resilient design guidelines are a useful model to follow.

BUILD ON LOCAL AND STATE SUSTAINABILITY RESOURCES Redevelopment should be guided by existing goals outlined by the state and the city for sustainability. The New Haven Sustainability Plan offers comprehensive guidance for development that is carbon-neutral by 2050, while the Governor’s Council on Climate Change offers robust recommendations for cutting carbon emissions by 80 percent statewide. These initiatives are also active in working with stakeholders to better service their citizens’ sustainability needs, and would be worthwhile engaging.

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DEVELOP RENEWABLE ENERGY Residential, commercial and industrial buildings account for 35 percent of the state’s greenhouse gas (GHG) emissions. Reducing energy use and adopting clean energy technologies will ensure that the site design partners both climate adaptation in its flooding resilience and mitigation in reducing fossil fuel consumption. There are a variety of resources available to support these efforts, including the C-Pace Program.23 Additional opportunities are outlined in the Appendix. Further, redevelopment at the district scale creates potential for the site to serve as a resilient hub for electricity and heat. Mixed-use development can balance renewable generation and storgage with steady demand to create a ripe environment for distributed generation from a range of low or zero carbon sources (e.g. solar, fuel cell, micro-turbine). By locating supply close to demand, generation can better be tailored to community needs. Additionally, opportunities would exist to capture the ‘waste’ heat to create a thermal loop, providing heating (and even cooling) to the development—negating the need for on-site fossil fuel boilers. Opportunities to support decarbonization efforts include developments that have “EV Ready’’ charging infrastructure for electric vehicle commuters. 244

CRAFT DEVELOPMENT BY CRAFTING USES Place sensitive development will need to craft buildings and users in tandem. There are a number of capital and incubator programs to service small and growing businesses, an ideal tenant for future development. The Connecticut Center for Advanced Technology (CCAT) runs a number of Small Business Incubator Grant Program that support start-up companies in Connecticut incubator facilities. Connecticut Innovations (CI) is a quasi-public organization that serves as Connecticut’s strategic venture capital arm, offers strategic guidance and equity investments to help promising businesses thrive. Crossroads Venture Group (CVG) offers guidance for high-growth enterprises. The Community Economic Development Fund (CEDF) provides loans and technical assistance to small businesses. Connecticut Community Investment Corporation (CTCIC) offers access to capital and financing opportunities for expanding real estate and equipment purchases. BDC Capital offers loans, mezzanine and equity investments, guarantees, and financial services through pooled funds to share the risks of helping promising companies expand.

INCLUDE LOCAL RESIDENTS Community member participation is important in a number of ways. It ensures that economic development activities directly cater to the community in addition to the city budget. Well-crafted community engagement also inspired creative ideas for design and use. Individuals invested in the process become ‘owners’ of the outcome and are more likely to be the future residents, tenants, occupants, visitors, and customers of the redevelopment.

UTILIZE FUNDING CREATIVELY FOR CLEANUP AND AFFORDABLE HOUSING The site poses a number of challenges, but there are several public resources and established private consultancies capable of transitioning the site to its highest and best use. Portions of the site may need brownfield assessment and/or cleanup. Addressing this early on in the process will be critical to ensuring that the developer remains in

play for assessment and any necessary cleanup. State and federal brownfield funds are competitive, but based on the ultimate land use financing can be accessed more cheaply than for other purposes. These funds can be leveraged with affordable housing financing. Working with the city and the state to grow integrated affordable housing stock is likely to increase interest in the project across stakeholders. Engage affordable housing experts when modeling costs and profits. Engage at the state and the federal level to create more adaptive uses like community spaces and incubation hubs. Creative leasing, like temporarily subsidizing leases for high potential businesses like the Detroit Fisher building, can broaden the pool of tenants and increase the liveliness and public benefit of the tenants. 245

Immediate Recommendation | Capitalize on OZ •

• •

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The DECD features an interactive map of potential projects in Opportunity Zones across the state. Including a mini-prospectus from developers and land-owners on this website can get a property established on funding radars. More information at www.ctozmap.com/tives/Opportunity-Zones. Create a prospectus for the Harbor District and seek investment through an OZ Fund. Seek businesses as tenants looking to use New Haven-based OZs for funding.

PLANNING FOR THE FUTURE In light of COVID-19, it is important to address and prepare for future shocks. Developers can plan redevelopment efforts by addressing recovery in the hardest hit sectors, including small businesses. Increasingly, development that employs local and vulnerable workers in sectors with increasing labor demand will be critical for economic resilience. Medical companies, information and community technology, robotics, and warehouse distribution centers are some examples of industries that are growing during the pandemic and expected to boom after the recession.24

Cities are taking this opportunity to close streets entirely to return space to pedestrians. However, projections estimate that this change is only temporary. Once businesses begin to open up and people return to work, planning professionals expect that single-occupancy vehicle travel will surge as many veer away from public transit. From how public space is designed to how shops and offices are designed, planning for a future that responds to our present will be important to accelerate development post-pandemic.

Improving pedestrian and biking connectivity can ease the transition back to work in a way that prevents singleoccupancy congestion. Highway traffic in the state has gone down by as much as 50 percent in the past two months with the shut down. Around the world air quality is improving with this reduction in vehicular traffic.

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ENDNOTES 1

FEMA. Flood Map Revision Processes. www.fema.gov/flood-map-revision-processes 2 www.newhavenbikemonth.com/2019 3 www.gnhcc.com/list/ql/family-community-civic-organizations-9 4 nhsofnewhaven.org/community-management 5 Atelier Cue. www.ateliercue.com/on-the-boards 6 “Randall Beach: Former slave’s good works at last will be commemorated.” New Haven Register. 6 September 2014. www.nhregister. com/columnists/article/Randall-Beach-Former-slave-s-good-worksat-11370960.php#item-85307-tbla-1 7 The Connecticut Twenty-Ninth Colored Regiment, C. V. Infantry. www. hmdb.org/m.asp?m=23085 8 Atelier Cue. www.ateliercue.com/on-the-boards 9 Kwadwo Adae in Brian Zahn (2018) “Women in focus on Farmington Canal trail mural in New Haven”. New Haven Register. 12 October 2018. www.nhregister.com/news/article/Women-in-focuson-Farmington-Canal-trail-mural-in-13303847.php Sheila de Bretteville. Lighting Your Way. siteprojects.org/sheila-de10 bretteville-lighting-your-way 11 Site Projects. siteprojects.org/felice-varini-square-with-four-circlesnew-haven-2010 Brian Zahn (2018) “Women in focus on Farmington Canal trail 12 mural in New Haven”. New Haven Register. 12 October 2018. www. nhregister.com/news/article/Women-in-focus-on-Farmington-Canaltrail-mural-in-13303847.php The Bentway. www.thebentway.ca 13 14 New Haven Bike Month. www.newhavenbikemonth.com 15 New Haven Bike Month. www.newhavenbikemonth.com 16 theculturetrip.com/middle-east/united-arab-emirates/articles/a-complete-guide-to-food-trucks-in-dubai, www. thenational.ae/lifestyle/top-10-enjoy-top-food-trucks-at-truckers-summer-warehouse-and-some-fun-with-the-laughter-factory1.227968?videoId=5708559149001 Terra Tractus. matthewragan.com/portfolio/terra-tractus-the-earth17 moves Vette Mattern. Night Rainbow | Global Rainbow. siteprojects.org/ 18 yvette-mattern-night-rainbow-global-rainbow-2013 Theodore S. Eisenman (2013) “Frederick Law Olmsted, 19 Green Infrastructure, and the Evolving City.” 12(4), 287311. Journal of Planning History. journals.sagepub.com/doi/ abs/10.1177/1538513212474227?journalCode=jpha Mary Miss Watermarks. www.cityaslivinglab.org/watermarks 20 21 Simple Most.www.simplemost.com/sidewalk-bumps, Tokyo by Bike. www.tokyobybike.com/2017/06/what-tokyos-cycling-infrastructure-can.html

22 The Hixon Center. hixon.yale.edu/practice/bioswales 23 portal.ct.gov/DEEP/Energy/Renewable-Energy/Renewable-Energy, https://www.cpace.com/, https://ctmirror.org/2019/08/08/sharedsolar-program-heading-towards-approval-complaints-in-tow/, https://www.energizect.com/, https://portal.ct.gov/pura, https:// ctmirror.org/2019/08/08/shared-solar-program-heading-towardsapproval-complaints-in-tow/, https://www.energizect.com/, https:// portal.ct.gov/pura, https://www.newhavenindependent.org/index. php/archives/entry/comm_choice_agg/, https://www.transit.dot. gov/funding/applying/notices-funding/pilot-program-transitoriented-development-tod-planning-2019-notice, https://news. energysage.com/congress-extends-the-solar-tax-credit/, https:// portal.ct.gov/DEEP/Energy/Renewable-Energy/Renewable-Energy, https://portal.ct.gov/DEEP/Energy/Renewable-Energy/RenewableEnergy, https://portal.ct.gov/PURA/RPS/Renewable-PortfolioStandards-Overview, www.ibisworld.com/industry-insider/coronavirus-insights/five-indus24 tries-set-to-outperform-due-to-covid-19-part-2/ www.forbes.com/sites/serenitygibbons/2020/04/16/3-industries-that-should-prepare-now-for-post-covid-life/#2c7a93f05057 www.investopedia.com/articles/stocks/08/industries-thrive-on-recession.asp www.investopedia.com/articles/stocks/08/industries-thrive-on-recession.asp

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CONCLUSION

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New Haven is a coastal city that has extended into the water over time. As the city continues to grow, it is important that development addresses the challenges based on this history. These problems are not unique to New Haven. Many coastal cities are struggling to balance the risks of climate change and the public benefits of an active and unique waterfront. With changing climate and economic pressures, public-private partnerships are a critical element to address redevelopment prospects through enhanced environmental resilience and creative placemaking.

equitable housing, and small business growth can offer a new model for coastal development for cities worldwide. With the proper design, stakeholder engagement, and a keen eye to diverse opportunities, the Harbor District could be a leader in a new approach to our urban waterfronts.

Flood risk reduction is a base necessity for the Harbor District, ensuring that development is possible by complying with state and federal codes. Connectivity improvements are necessary to bring the site back into the fold of the city. Placemaking is important to give a sense of identity and value. Based on these three goals, redevelopment can have enough support to create a social and economic asset along the Harbor. While these goals are interconnected, they are designed to be phased in a way that allow incremental improvements to build over time. For example, a number of placemaking recommendations and building-based flood protections can occur in the short- and mid-term, tactically building interest and value for longer-term flood mitigation and development projects. Catalyzing future development by combining flood protection measures with ecological restoration,

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APPENDIX INTERVIEWS

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The stakeholder and expert interviews offered a wealth of knowledge. The following are brief summaries with potential avenues to pursue further.

ALEX FELSON

Director of Design for Resilience & Deputy Executive Director, Connecticut Institute for Resilience & Climate Adaptation Interviewed April 2020 There is potential value in the land for public benefit. But before identifying what that is, it is important to identify who the key stakeholders are. To actualize that benefit, it is best to create scenarios that distill a series of approaches across risk gradients. Ultimately it will be important to define what is the right amount and form of development for the City, its populous, and its ecology. The fact that there is critical infrastructure in the pumping station on the site, as well as the Railway to the west, will be key as a means to both actualize and tailor development. How can development be appropriate to the environment, to code, and meet the needs of stakeholders? Useful resource — circa.uconn.edu/2017/10/18/ct-living-shorelines-nov20-workshop

DOUG HAUSLADEN

Director, City of New Haven Transportation, Traffic & Parking (TT&P) Interviewed April 2020

Hausladen offered an abundant amount of information related to roadway and parking design, accessibility and frequency, tools to improve connectivity, and useful transportation models from around the world. Roadway and parking – Plan for vehicle type and population need. Large critical vehicles must have sufficient access first, then design for pedestrians. Angled parking helps to slow down traffic. Opportunities for underground trash pickup in new development is worthwhile as it keeps more of the public realm open for public use. Parking geometry is important. Angled parking slows down traffic for an improved public right of way. New Haven is working on reconnecting Orange Street to stitch together both sides of the city. Pre-tax commuter benefits are valuable for employees as well as employers, but rarely capitalized on because of knowledge gap. Looking to encourage its use. Frequency and access – Are directly related. The amount that walking, riding the bus, or cycling adds to a commute that can otherwise made in an individual car tightens non-car owners’ opportunities for work, housing, and recreation. Increasing frequency of public transportation and the walkability and bikeability of an area is a great public need. Buses need to be connected to a hub. Suggested reading list — Jeff Speck Feet first philosophy www.jeffspeck.com Donald Shoup on Parking and the City uskin.ucla.edu/ person/donald-shoup Jarrett Walker on public transit humantransit.org A large fan of the Barcelona Superblock as well as the Ciclovia models.

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DAWN HENNING

Project Manager, City of New Haven Engineering Department Interviewed April 2020 The Engineering Department is in progress with a large Downtown Bioswale installation. The site outfall appears to be outside of the main sewershed of intervention, which ends around the Boathouse. There is a long-term recognition that the oil tanks will likely become less of a need over time. The Food Truck Paradise is important investment, which successfully stimulated visitors to Long Wharf.

ROBERT KLEE

Former DEEP Commissioner Interviewed March 2020 Things to think about when thinking through energy options— Anaerobic digestion must incorporate truck traffic. Waste processing is generally odorless but the raw material can cause smell issues. Fuel cells are currently designed to run off of natural gas, so not carbon neutral. But can be connected to an anaerobic digester to decrease carbon intensity. Local generation benefits most when incorporated with a heat off-taker like schools, pools, or hospitals with steady demand. Worthwhile creating a multiple owner and user combined heat and power ecosystem. California Port is a good example of an anaerobic digester, feeding a fuel cell, tied to sewage treatment plant. Post wastewater treatment sludge can be burned locally, which it currently is in Hartford. Much of the state bond money in microgrids have been used, but ZREC and LREC incentives remain an option

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for large generators. Competitive auctions occur twice a year, payments are per rec, though the future is uncertain with the state phasing-out net metering. www.verogy.com/connecticut-net-metering-phase-out Local production and consumption— Coop’s for clean energy deployment. 360 State in New Haven has experience with fuel cells and behind the meter measuring, which is a new option in the state. Other states have done shared solar or virtual net metering. Brownfields— Berming the site as a whole is an interesting option, as it can make the cover and cap of brownfields cheaper and easier.

GINNY KOZLOWSKI Executive Director, EDC of New Haven REX Development Interviewed May 2020 COVID— Thinking through COVID’s impact in this area. Two of the largest city employers are currently under stress (Hospital and Yale shrinking and hiring freezes). Assa Abloy works with a lot of companies that may need more of or may no longer need their services. Time will tell. Development— Suggested potential for tapping into federal Economic Development Districts. www.eda.gov/edd Eds and meds remain strong in the area, and the Becker project is going strong. The Post Office parcel remains highly desirable.

NORA RIZZO

Director of Sustainability, Fusco Interviewed February 2020 Fusco has been working in New Haven for almost 100 years, and remains committed to its holistic development. Stressed the desire to have development be for New Haven and of New Haven. Having development fit into the scale of the city that speaks to its intimate neighborhood atmosphere is important. Renewable energy is vital for new development, as well as determining how to incorporate it into existing office space. Flood insurance rates increasing is a concern.

MICHAEL TAYLOR

President, Vita Nuova Interviewed May 2020 Vita Nuova works on redeveloping complex sites. Any development that will break the cap on these sites will require a brownfield Phase I, II, and III based on its industrial past. The site therefore will need appropriate due diligence, especially if exchanging hands. Assessment will require a Licensed Environmental Professional (LEP), as well as appropriate payment and protections for the seller and the developer. Developer commitment to pay for assessment and cleanup (supported by state funding) prior to sale can keep the development viable. The PREPARED Workbook is a useful tool to walk through necessary steps. portal.ct.gov/DEEP/Remediation--Site-Clean-Up/ Brownfields/PREPARED-Municipal-Workbook-Main-Page

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DAVID WEINREB

Corresponding Secretary, Fair Haven Community Management Team Interviewed May 2020 Long Wharf is an important area for Fair Haven. Food trucks owned by Fair Haveners. The bike route is not so dangerous so people have access. There are boats in the Fair Haven Marina that can be taking their boats to the Canal Dock. Fair Haven is very connected to the water. People fish often, the time bait and tackle shop is an important venue. The oystering business has shrunk from its past but remains. Any use that brings jobs and affordable housing will benefit Fair Haven. The Health Center District is also an important benefit, as citizens need increased access to healthcare. This will require working across districts to make it a beneficial hub. Interested in physical ways of engaging the community to improve the public realm. Murals that are community based and built by communities are valuable. Bilingual signage is critical. Green spaces and picnic areas also beneficial and used. Suggest West Side Highway in Washington Heights in NYC as a model. • unencumbered green space • bike lane; easy access to water • Space to spread out (good for COVID) • shade • URI treeing could benefit • Process and design is community based and therefore maintained • Uses for different hours of the day COVID— Ask people that run businesses, the food truck owners for 256

ways to make their businesses more healthy Lead the way by ask proprietors of the area Department of Public Health representative come to where people are to make sure its safe. What public health outreach work can we do in the interim? Public space can be a place to deploy public health campaigns. Big picture of what it looks in the next 5 years.

AICHA WOODS

Executive Director, City Plan at City of New Haven Interviewed February 2020 The Responsible Growth Plan was approved by the Board of Alders to be a part of this year’s Comprehensive Plan, showing a city commitment to its redevelopment vision. They are also looking into a new Coastal Zoning Ordinance to incorporate climate resiliency goals. The Living Shoreline project can incorporate and strengthen appropriately sized development. Biotech interest is growing on Long Wharf. The connection to Union Station is also critical to integrate the city with the region.

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APPENDIX RESOURCE MAPPING

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This section is intended to provide a roadmap of additional local, state, and federal policies, resources, and programs for the city and developers to tap into.

SUSTAINABILITY RESOURCES GOVERNORS REPORT FOR CLIMATE CHANGE In 2018, Connecticut set out the goal of achieving a 45% reduction by 2030 in greenhouse gases by targeting decarbonization in the transportation, building, and electricity sectors. The benchmark goal will help guide efforts to reach an 80% statewide reduction goal by 2050. As the state is working to advance clean energy goals, developers and municipalities can implement decarbonization strategies through the redevelopment and construction of new building infrastructure and modifications to electricity usage and sourcing. Goals are set in the Governors Report for Climate Change (GC3). Sustainable Connecticut (Sustainable CT) is a nonprofit that is part of the working group committee working on the reduction goals outlined in the Governors Report for Climate Change. They serve as a resource hub that facilitates sustainability initiatives across the state. They work with cities and a variety of stakeholders to promote sustainability through municipal action. Aggregation of local action can help achieve statewide goals. The following action items in the report can also be used by developers to advance decarbonization goals. Transportation Sector Connecticut’s transportation sector is responsible for 38% of greenhouse gas emissions, and the GC3

Report calls for 29% emissions reduction to below 2014 levels by decreasing the miles that polluting vehicles travel, and deploying Zero Emission Vehicles. Since the transportation sector is the largest source of emissions in the state, local actions are important for achieving the 2030 statewide reduction goals. Development related action items that align with Sustainable Connecticut include— • Implement Complete Streets – Tactical and low-cost improvements based on different models. Investment in alternative infrastructure that promote accessibility, safety, and biking infrastructure. • Promote Effective Parking Management – incentives can be made available that promote less driving and encourage commuting to the site such as employer commuting benefits to encourage alternate transit such as biking, walking, or public transit. • Support Zero Emission Vehicle Deployment – Support free-metered parking for Zero Emission Vehicles EVs and encourage developers to have “EV Ready” charging infrastructure available to employees and visitors. • Support Transit Oriented Development (TOD). Electricity Sector Connecticut’s goal is to produce 66% of zero-carbon electricity by 2030 and 84% zero-carbon electricity by 2050. The state is already making advances towards reaching this goal, with 49% of the grid considered zero-carbon (including 31% nuclear). 18% is produced by wind, hydro, other renewables, and storage (ISOENE 2019). 48% of Connecticut’s electricity comes from natural gas, the least emissions intensive fossil fuel. Suggestions include— • Buildings install renewable thermal technologies, including electric heat pumps.

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Invest in measures that reduce peak demand, including energy-efficiency, efficient exterior lighting, and lighting in government buildings. Support deployment of commercially distributed solar and fuel cells through zoning and municipal energy plans, smart-meters, and other smartmanagement technologies in municipal, residential, and commercial buildings.

Sustainable CT Action Items for zero-carbon electricity include— 4.6 Streamline solar permitting for small installations 6.1 Benchmark and Track Energy Use 6.4 Increase Use of Renewable Energy in Municipal Buildings 6.5 Develop a Municipal Energy Plan Residential and Business Energy Plan 6.7 Install Efficient Exterior Lighting 6.8 Implement a Community Energy Campaign Building Sector The GC3 report targets emissions from residential, commercial and industrial buildings, as they account for 35% of statewide emissions. The goal is to reduce emissions by 30% through energy efficiency and adoption of renewable energy. Action items for the Building Sector in this site that are in line with Sustainable Connecticut and the GC3 recommendations include the following— • Tracking and Measuring – Track existing energy use in the site • Energy conservation – encourage building improvements to conserve energy through building envelope improvements such as, air-sealing, insulation, and installing efficient windows • Renewable Energy – promote Renewable Thermal

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Technologies (RTTs) such cold climate air and ground source heat pumps CITY OF NEW HAVEN CLIMATE & SUSTAINABILITY FRAMEWORK www.newhavenct.gov/civicax/filebank/blobdload. aspx?blobid=31458 The City has set an interim goal of reducing greenhouse gas emissions by 55% of 1999 levels by 2030, and strives to be carbon neutral by 2050. Recommendations fall along the following categories • Electric Power • Buildings • Transportation • Materials Management • Land Use and Green Infrastructure • Food A greenhouse gas inventory from 2017 serves as the base. Suggestions directly related to development include reducing electricity and water consumption in new development and through behavioral change. Encouraging alternative modes of transit besides single use vehicles also have a role to play in the development of large mixed-use sites.

RENEWABLE ENERGY RESOURCES LOCAL New Haven Environmental Advisory Council Created to allow for residents to be able to present ideas and information to the mayor’s office and Board of Alders regarding environmental initiatives. Board of Alders Community Choice Aggregation is when a municipality

and an existing power company collaborate to create a new nonprofit that uses municipal bulk buying power to purchase electricity for its residents. The existing utility company maintains ownership and control over the distribution of electricity — the polls and meters — while the new CCA nonprofit purchases energy from a variety of sources. The city has debated CCAs over the past two years. STATE Connecticut’s Renewable Portfolio Standard (RPS) is a state policy that requires electric providers to obtain a specified percentage or amount from renewable sources. This policy incentivizes development by ensuring a market and steady revenues. Qualifying renewable generators under one of the three classes of Connecticut’s RPS receive one renewable energy certificate (REC) for every megawatt-hour (MWh) of electricity they produce. These RECs are tradable commodities that are bought and sold separately from the energy commodity itself, creating an additional market value. A renewable generator can either contract to sell its energy “bundled” with the accompanying REC value at a premium above the wholesale electricity price, or can “unbundle” and sell them separately in regional wholesale markets. Separate portfolio standards are required for energy sources classified as “Class I,” “Class II,” or “Class III. The program is a competitive auction run twice a year. Class I - solar power; wind power; a fuel cell; geothermal; landfill methane gas, anaerobic digestion or other biogas derived from biological sources; thermal electric direct energy conversion from a Class I renewable energy source; ocean thermal power; wave or tidal power; low emission advanced renewable energy

conversion technologies (zero emission low grade heat power generation); some run-of-the-river hydropower facilities; a biomass facility that uses sustainable biomass fuel Class II - trash-to-energy facilities Class III - combined heat and power system with 50% minimum operating efficiency via customer-side distributed resources; a waste heat recovery system that produces electrical or thermal energy via preexisting waste heat or pressure from industrial or commercial processes; electricity savings from conservation and load management programs; demand-side management projects FEDERAL The current Federal Solar Tax Credit policy is part of a 2016 federal spending bill extending the solar tax credit by 5-years. 2016-2019 – tax credit remains at 30% of the cost of the system, 2020 – new residential and commercial solar can deduct 26% of the system cost, 2021 – new systems can deduct 22%, 2022 – only new commercial systems can deduct 10% from this year and onwards, and the residential program sunsets. Additional information in the interview with former DEEP Commissioner Robert Klee is in Appendix A. FUNDING PROVIDERS Connecticut Green Bank C-PACE (Commercial Property Assessed Clean Energy) www.cpace.com

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ECONOMIC DEVELOPMENT RESOURCES LOCAL EDC Rex; ConnCat STATE Partners • Department of Economic and Community Development (DECD) • Office of Small Business Affairs • Connecticut Center for Advanced Technology, Inc (CCAT) • Connecticut Innovations (CI) • Community Economic Development Fund (CEDF) • DECD Direct Assistance Resources • Enterprise Zones • Economic and Manufacturing Assistance Act Small Business Express Program • Brownfields Grants • DECD Direct Assistance for small business • Economic and Manufacturing Assistance Act (MAA) – low-interest loans and incentive-driven direct loans with strong economic development potential - for equipment, construction, leasehold improvements, training • Small Business Express Program – loans and grants to spur job creation and growth • Connecticut Center for Advanced Technology, Inc (CCAT) – Small Business Incubator Grant Program, grants to start-up companies in Connecticut incubator facilities • Connecticut Innovations (CI) – quasi-public organization that serves as Connecticut’s strategic venture capital arm, offers strategic guidance and

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equity investments to help promising businesses thrive Crossroads Venture Group (CVG) – guidance for high-growth enterprises Community Economic Development Fund (CEDF) – provides loans and technical assistance to small businesses Connecticut Community Investment Corporation (CTCIC) – access to capital and financing opportunities for expanding real estate and equipment purchases BDC Capital – loans, mezzanine and equity investments, guarantees, and financial services, pools money from many financial institutions to share the risks of helping promising companies expand

FEDERAL • Opportunity Zone Incentives • Federal Development Block Grants • Small Business Administration – provides loans and loan guarantees through lending institutions • Brownfield Grants – Multipurpose, Assessment, Cleanup FUNDING PROVIDERS Governor’s Commission on Climate Change Sustainable Connecticut Connecticut Department of Energy and Environmental Protection DEEP Office of Brownfield Remediation and Development Governors Report on Climate Change POTENTIAL PARTNERS New Haven Transportation, Traffic & Parking

State of Connecticut Department of Transportation U.S. Department of Transportation Federal Transit Administration Grants cms7.fta.dot.gov/grants

FLOODING AND WATER MANAGEMENT LOCAL AND STATE • Save The Sound • The Sound School • New Haven Sustainability Plan • City of New Haven Coastal Management Area • City of New Haven Land Use Planning • CT DEEP Working Group • Adapt CT, UCONN • Connecticut Institute for Resilience and Climate Adaptation (CIRCA), UCONN • Connecticut Sea Grant, UCONN • University of New Haven • Urban Design Workshop • Urban Design League • Yale University

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