National Recreation Area · New York

May 2000

Gateway

National Recreation Area · New York

United States Department of the Interior · National Park Service

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The National Park Service proposes to construct a multi-use pathway along the west side of Cross Bay Boulevard partially within the Gateway National Recreation Area boundary. The project area is on Rulers Bar Hassock in Jamaica Bay Wildlife Refuge. The refuge is one of four management units in Gateway. The project sponsor is the New York State Department of Environmental Conservation (NYSDEC).

The proposed facilities would improve the condition and utility of non-street facilities along Cross Bay Boulevard, enhance the visitor experience, and reduce safety hazards for bicyclists and pedestrians along Cross Bay Boulevard. Potential impacts to cultural and natural resources are evaluated as required by the National Environmental Policy Act, as are the consequences to the human environment.

This transportation enhancement project, with a total project cost of $1,250,000 is funded by the Federal Highway Administration through the New York State Department of Transportation. The federal share would be $950,000. New York State Department of Environmental Conservation (NYSDEC) would also provide funding. The National Park Service is providing planning and design services. The project includes two phases: phase IIA, the Cross Bay Boulevard segment, and phase IIB, the Spring Creek connector. The current estimate for the construction of the Cross Bay Boulevard segment is $750,000. Because only the Cross Bay Boulevard segment would be constructed at this time, this document focuses only on that segment. Additional planning will take place for the Spring Creek segment. Alternatives for the Cross Bay Boulevard segment were derived from interagency collaboration and public input over several years.

Under the proposed action, a sidewalk in poor condition on the west side of Cross Bay Boulevard would be removed and replaced by a 10-foot-wide asphalt pathway from North Channel Bridge to the Broad Channel trailhead (8,600 feet). The new pathway would parallel Cross Bay Boulevard, setback 9 linear feet from the curbline. Options are available to move the alignment eastward to reduce the total area of refuge required, but this reduces the buffer from Cross Bay Boulevard. The area east of the pathway would be landscaped to screen the it from the street and provide a physical barrier to Cross Bay Boulevard.

This proposal is one in a series of greenway projects that have been completed or are projected for development. This proposal would eventually link Jamaica Bay Wildlife Refuge to the existing network of greenways at Gateway National Recreation Area and the New York City Bicycle Master Plan.

Issues and impact topics analyzed include habitat, species of concern, wildlife, land use, visitor use, and safety. They were derived from scoping and public review of the environmental assessment distributed for public review in 1997.

Comments on this environmental assessment may be sent to:

Superintendent

Gateway National Recreation Area

Headquarters Building 69

Floyd Bennett Field

Brooklyn, NY 11234-7097

Purpose and Need *

Table 1: Summary of Alternatives *

Schematic Greenway Plan *

The purpose of the Cross Bay Boulevard segment of the Rockaway Gateway Greenway is to provide an alternative transportation and multiple use pathway that improves the visitor experience along Cross Bay Boulevard, and provide a safe and convenient transportation alternative between Howard Beach and the Rockaways. People of all abilities would be able to travel Cross Bay Boulevard in a setting that greatly improves the quality visitor experience and access to the Jamaica Bay Wildlife Refuge visitor center.

Legislation establishing Gateway National Recreation Area identified the preservation and protection of the natural and cultural resources of the area for the benefit and enjoyment of the people. The General Management Plan (1979) for Gateway established the direction for management and development, consistent with the legislative mandate.

The General Management Plan established policy regarding internal circulation. The GMP stated bicycle paths would be established in all Gateway units and provide access to most major areas of the park. Based on the policy of providing alternate access to all units, placement on a pathway on the boundary adjacent to the Cross Bay Boulevard corridor is consistent with GMP goals.

The proposed action is needed for the following reasons:

This document conveys results of analysis and the impacts associated with the alternatives developed to meet National Park Service goals for this segment of the greenway. It will serve as the design approval document for the New York State Departments of Environmental Conservation and Transportation, the state agencies disbursing funds provided through the Intermodal Surface Transportation Act (ISTEA).

This project is a partnership between the New York City Departments of City Planning and Transportation, New York State Departments of Environmental Conservation and Transportation, the U.S. Department of Transportation, Federal Highway Administration, and the National Park Service.

Since this project is a Transportation Enhancement, the conditions of section 4(f) apply. Construction within the boundary of Gateway National Recreation Area constitutes a use. A constructive use occurs when the capability to perform any of the site’s vital functions is substantially impaired by the proximity impacts from a transportation project. The degree of impairment is determined in consultation with the officials having jurisdiction over the resource.

This project requires approval by the Federal Highway Administration because it is the origin of the funds and because the proposal calls for the use of publicly owned park land for transportation purposes. This requirement comes from Department of Transportation Act of 1966 (Section 4(f)). The Secretary of Transportation may approve a transportation program or project requiring the use of publicly owned land of a public park, recreation, or wildlife and waterfowl refuge, or land of an historic site of national, State, or local significance (as determined by the Federal, State, or local officials having jurisdiction over the park, recreation area, refuge, or site) only if:

1) there is no prudent and feasible alternative to using that land; and

The US Department of Transportation, Federal Highway Administration, issued a programmatic Nationwide Section 4(f) evaluation and approval for federally-aided highway projects with minor involvement with public parks, recreation lands, and wildlife and waterfowl refuges. Projects which meet the criteria of the programmatic section 4(f) evaluation require no individual Section 4(f) evaluations. The conditions described in the programmatic evaluation are adequately met for this project.

The proposed project provides transportation alternatives, improve the operational characteristics, and safety on essentially the same alignment, the Section 4(f) lands are publicly owned and adjacent to the existing highway, and the amount and location of the land to be used will not impair the use of the remaining Section 4(f) land, in whole or in part, for its intended purpose.

The amount of land required is less than 1 percent of the site, proximity impacts will not impair the use of the Recreation Area and Refuge for its intended purpose, and the officials having jurisdiction over the Section 4(f) lands agree with the impacts and proposed mitigation.

The refuge consists of 2,300 acres of Jamaica Bay. The use would be less than 4 acres. The programatic section 4(f) evaluation allows no more than 1% use for areas greater than 100 acres. This project would use less than 0.2% of the refuge area.

To do nothing would not correct the safety considerations on Cross Bay Boulevard, it is not feasible and prudent to avoid Section 4(f) lands, and there are no new alignments available that would solve existing transportation and safety problems.

Appropriate measures to minimize harm would be applied, including replacement of lands, restoration and landscaping of disturbed areas, and incorporation of design features and habitat features where necessary to reduce of minimize impacts to the Section 4(f) property.

Gateway National Recreation Area, authorized by Congress in October 1972 (P.L. 92-592, 85 Stat. 1308), is composed of four management units: Sandy Hook, Staten Island, Breezy Point, and Jamaica Bay. The Jamaica Bay unit consists of the most of the lands and waters of Jamaica Bay which are designated as a wildlife refuge (approximately 2,300 acres).

Gateway National Recreation Area is the only extensive public natural area in the New York City region. It provides a large zone of undeveloped land where people can experience nature and leave behind the troubles, noise, and views of city life. The proposed action would take place in the Jamaica Bay Wildlife Refuge, which preserves an estuary and the birds, animals, and other varieties of natural flora and fauna that inhabited the region before modern development. Specific areas of the refuge have been opened to the public as recreational areas, although they are more limited than in other management zones.

The management zones defined in the General Management Plan for Gateway National Recreation Area (1979) were established to identify specific types of activities in appropriate areas and to provide for special protection of natural and cultural resources. There are four management zones in this project area: protection, use-by-reservation, unstructured reservation, and development support. The protection and use-by-reservation zones are areas where only minor amounts of land disturbance are permitted. The proposed project would be constructed on the edge of the use-by-reservation zone, adjacent to a major transportation corridor.

The visitor center and headquarters for the refuge are on Rulers Bar Hassock, in the approximate center of the Jamaica Bay. This area is accessible only by Cross Bay Boulevard. The East and West Ponds are focal points of the refuge. Development consists of a single structure serving as visitor center, administration, and maintenance, a parking lot, and a primary loop trail circling the West Pond. Trails also provide access to East Pond on the east side of Cross Bay Boulevard.

A General Management Plan was prepared for Gateway National Recreation Area in 1979. The GMP provides direction in the management, operation, and maintenance of the area, including Jamaica Bay wildlife refuge. As described previously, there are four management zones in this project area: protection, use-by-reservation, unstructured reservation, and development support.

A Concept and Alternatives document was prepared for this project in 1996.

An environmental assessment was submitted for review in March 1997. A great deal of concern was raised over the alignment presented in that document. The NPS and cooperating agencies have reevaluated the project based on public input and have new alternatives to present.

All across the United States greenways are helping to preserve and connect natural and cultural resources. Many greenways with multiple use pathways allow for the enjoyment by walkers, wheelchair users, in-line skaters, and cyclists, often allowing for two-way flow. Greenways provide recreational opportunities, link residential and activity centers, encourage alternative modes of transportation, promote health, stimulate economic development, and provide educational experiences. Whether along streams, highways, or abandoned rail corridors, greenways play a vital role in providing natural areas commonly used by many species of birds and animals.

The New York City Department of Transportation, together with the Department of City Planning, completed the New York City Bicycle Master Plan in May of 1997. The plan identifies a 500-mile on-street network of bicycle lanes and another 400 miles of greenways to make a comprehnsive network aimed at making bicyclingt a more viable mode of transportation in New York City (see Schematic Greenway Plan). Many of the routes in the plan are in design or construction. These include the Queens portion of the Brooklyn/Queens Greenway, which links parkland in Queens creating a 22-mile route for cyclists and pedestrians; the Hudson River Greenway, with segments included in the Route 9A reconstruction and the Riverside South Project as well as segments through Riverside Park in Manhattan; the Mosholou/Pelham Greenway with extensions to Orchid Beach, City Island, and the City Line; the Hutchinson River Parkway Greenway; and the Bronx River Greenway.

The Rockaway Gateway Greenway would provide a vital New York / New Jersey transportation corridor connection that is key to the East Coast Greenway. It would join the units of Gateway National Recreation Area, linking the Sandy Hook unit in New Jersey with the Staten Island, Breezy Point, and Jamaica Bay units in New York. Pivotal to the overall Gateway Greenway vision is the Rockaway Gateway Greenway. These greenways would complement the Shore Parkway Greenway, which is now being constructed in phases by the New York City Department of Parks and Recreation. In addition, the Rockaway Gateway Greenway would provide connections to the Robert Moses Shore Bicycle Path, the Laurelton Parkway Greenway, and other routes in the area, allowing access to the beaches on the Long Island south shore and other destinations.

The Rockaway Gateway Greenway is proposed by the New York State Departments of Environmental Conservation and Transportation. The approved phases of the greenway have been funded as enhancement projects under the federal Intermodal Surface Transportation Efficiency Act. The greenway is a 20 mile loop around Jamaica Bay with a connection between Howard

Figure 1Schematic Greenway Plan

Beach and the Rockaways (see Vision Map). The greenway connects several important recreation, natural, and cultural sites in Gateway National Recreation Area, including Jamaica Bay Wildlife Refuge visitor center, Canarsie Pier, and Floyd Bennett Field. Other sites include Jacob Riis Park, Fort Tilden, and Breezy Point on the Rockaway Peninsula.

The pathway would improve facilities for and encourage the use of alternative transportation by residents of the surrounding communities in Queens and Brooklyn. The Cross Bay Boulevard segment would help to achieve this by creating a multiple use pathway to connect the Rockaway peninsula to the Shore Parkway Greenway, being developed by the New York City Department of Parks and Recreation.

The Shore Parkway Greenway and the Rockaway Gateway Greenway are both priority routes in the New York City Bicycle Master Plan (1997) greenway system because they possess the following attributes:

In June 1995 the National Park Service began the planning process portions of the greenway. The application document, Rockaway Gateway Greenway "ISTEA" Project: November 1995, contains outlines for the Flatbush Avenue segment, as well as the Cross Bay Boulevard segment and the Spring Creek segment.

The Cross Bay Boulevard segment of the greenway would improve transportation options for residents of the Rockaways and Howard Beach. This pathway would provide a safe alternative for a range of users, including pedestrians, wheelchair users, cyclists, and in-line skaters. The on-street bicycle lane created by the city’s Department of Transportation would remain an option for cyclists preferring a faster, more direct route while providing the multi-use pathway for more casual recreational riders and other users.

Figure 2Vision, Rockaway Gateway Greenway

The pathway would allow bicyclists and pedestrians of all abilities to experience a separate, safe, scenic tour route around parts of Jamaica Bay, the Rockaway Peninsula, and Breezy Point. In addition to recreational opportunities, the public would be able to visit and learn about the wealth of historic and natural features, processes, and events in the area. Along these segments of the greenway, wayside exhibits would provide information, orientation, and interpretation of significant resources. Greenway travelers would also be encouraged to take side excursions to park sites.

At key access points, waysides would identify the greenway route and its creation as a partnership between the Friends of Gateway, agencies of the city and state of New York, and the NPS. Users also would be introduced to the entire Gateway National Recreation Area and the specific functions and services available at each unit.

As a loop route, the greenway would have no beginning or end point, but provides a transportation alternative to motorized vehicle use. Users would access the greenway from neighborhoods, adjacent bus or Metropolitan Transit Authority (MTA) stops; or parking near the greenway.

The greenway on the south side of the Shore Parkway is one of the city’s best multiple use pathways. Phase I of the city’s project, implemented by the Department of Parks and Recreation, is using state and municipal funds to improve the Shore Parkway pathway from Knapp Street to Pennsylvania Avenue. A portion of this phase would be part of the Rockaway Gateway Greenway route.

Phase II continues from Pennsylvania Avenue eastward to Cross Bay Boulevard and to JFK International Airport. It will provide continuous alternative transportation and recreation opportunities to 10 miles of Jamaica Bay shoreline, with connections to Canarsie Pier, where the National Park Service has recently rehabilitated and constructed a visitor center. Standards for the Shore Parkway Greenway call for a substantial trail surface (12-foot width), separation from traffic, plantings, and multiple use identifications and/or signs.

As greenways are established along the eastern seaboard, there is an opportunity to establish a integrated system connecting metropolitan and rural areas from Main to Florida. The East Coast Greenway would be a 900-mile route connecting the major urban centers between Boston and Washington, D.C. One day it would be expanded to stretch from Maine to Florida. Imagine the day one would be able to walk, pedal, or glide along separate protected corridors from New England to the Middle Atlantic States, and beyond. New York City fits prominently in the middle of that vision. Our nation's heritage, its natural and cultural resources, would be more accessible to uplift our spirits. The urban centers of liberty, immigration, commerce, and government, as well as the rural places that connect them, would offer unparalleled opportunities for rest, refreshment, contemplation, education, recreation, interpretation, and environmental study.

The implementing regulations of the National Environmental Policy Act direct agencies to determine the scope of issues to be addressed and significant issues related to the proposed action.

Issues were identified through scoping conducted in 1996 by the National Park Service, New York City and State agencies and offices, community, and special interest organizations. Public review of a draft EA in 1997 identified additional issues. Impact topics were selected for analysis based on scoping and comments on the review of the 1997 EA.

Subsequent discussion of the affected environment and environmental consequences focuses on:

Habitat: Comment on the 1997 EA identified concern regarding loss or fragmentation of habitat and potential adverse affect on wildlife resources, conflicting with the purpose for which the refuge was established. The concern raised was that construction of a pathway may adversely affect the function of the habitat.

Rulers Bar Hassock provides habitat for migrant and resident songbirds that may be adversely affected. Native and introduced vertebrate species may be affected, including several reptiles.

Species of Concern: Discussion of special status species is included to document effects to species identified by the U.S. Fish and Wildlife Service and the New York Department of Environmental Conservation as threatened, endangered, or species of concern.

Wildlife: Rulers Bar Hassock provides habitat for resident and migrant wildlife. Concern over the effects from constructing a pathway in the refuge were expressed during review of the 1997 EA. This topic is include to present the effects identified in the analysis.

Land Use: The Recreation Area was established "…to preserve and protect for the use and enjoyment of present and future generations an area possessing outstanding natural and recreational features..." Some commentors feel one or more alternatives may conflict with the purpose and current management zoning of the project area.

Visitor Use: Visitor use is analyzed to identify changes in use patterns and how the visitor experience is affected. The introduction of a new type of user within the refuge boundary may conflict with existing use patterns.

Safety: Concern for the safety of inexperienced users on the on-street bike lanes is one of the primary factors behind the proposal to construct the greenway. Comments on the 1997 EA raised the issue of safety for greenway users.

Floodplain Management: The proposal would be constructed above the base flood elevation (1% flood ) and does not involve overnight occupation. This type of action is an excepted action according to the Floodplain Management Guideline (NPS, 1993) and further analysis is not required. Natural floodplain values would be maintained.

Wetlands: Although the proposal would be constructed near to tidal and constructed wetlands, no wetlands would be affected. Construction would not occur in wetlands and there would be no erosion or sediment entering waters of the United States during or after construction. There would be no placement of fill material in wetlands and no Clean Water Act, section 404 permit from the U.S. Army, Corps of Engineers would be needed. (Executive Order 11990, Protection of Wetlands, Clean Water Act).

Cultural Resources: Inventory of the project area revealed no cultural resources (archeological, historic, or ethnographic) within the project area. Construction would occur primarily on fill material and in disturbed areas and archeological resources are unlikely to be discovered.

Water Resources: There would be no short-term or long-term discharge to the waters of Jamaica Bay associated with this project. Storm water runoff during construction would be managed to prevent erosion from affecting water quality.

Air Quality: The effect on air quality would be negligible, lasting only the duration of construction. Best management practices such as the application of water to the construction site would provide effective control of dust. No data is available for vehicle-miles of travel, but the Bicycle Master Plan indicates a strong interest in bicycle commuting, particularly for trips less than 10 miles. This translates to an important reduction in air pollutants locally and regionally. The lack of data is a city wide concern identifient in the NY Metropolitan Transportation Council’s long range plan. The Council has secured funding to collect such data.

Prime and Unique Farmland: There is no prime and unique farmland in the project area.

Hazardous Materials: Records and previous use indicate there are no known hazardous materials in the project area.

Environmental Justice: There would be no disproportionately high and adverse human health or environmental effects to minority or low income populations or communities in the area.

Socioeconomic Resources: The project would not alter local population densities or distribution nor result in increased development. Use projections do not translate to significant amounts of money expended by greenway users. Expenditures would improve economic conditions slightly if at all.

In planning for this project, some potential alternatives were considered and subsequently dismissed. Such alternatives are described at the end of this chapter, and the reasons for their rejection are discussed.

The National Park Service produced a document called Concepts and Alternatives: Cross Bay Boulevard ISTEA Project / Rockaway Gateway Greenway, Gateway National Recreation Area. That document was released for project partner review in November of 1996. Its purpose was to create a number of possible alternatives with input from all project partners. After review, alternative D of that document was considered to be the only alternative that would meet the recreational, transportation, and environmental needs and successfully resolve the concerns and issues expressed by the project partners concerning the proposed project. That former alternative will be referred to as the proposed action throughout the rest of this document. Alternatives A, B, and C were considered impractical and were rejected as possible project alternatives.

      c) 5 feet from the back of curb

Typical cross sections of the alternatives are provided (see Pathway Sections).

Figure 3 Alternative 1998

Figure 4 Alternative 2000 (Proposed Action)

Figure 5 Pathway Sections

In the Concepts and Alternatives document (1996), several alternatives were evaluated, one of which became the alternative presented in the 1997 EA. Alternatives A, B, and C from that document are identified here.

Figure 6 Alternative A

Figure 7 Alternative B

Figure 8 Alternative C

The measures described below would minimize, reduce or eliminate adverse effects to the natural resources and recreational activities on Rulers Bar Hassock:

The affected environment and environmental consequences are described for each impact topic. The environmental consequences include short-term and long-term, direct and indirect, and cumulative impacts.

Rulers Bar Hassock was a Spartina marsh with low upland meadow, similar to other hassocks in Jamaica Bay. Construction of Cross Bay Boulevard required placement of fill material to prevent flood and storm damage. The roadway fragmented the hassock and created conditions for upland vegetation. On the recommendation of the US Fish and Wildlife Service, two large wetlands were constructed in 1953. Manipulation of the upland began with plantings by New York City Parks Department. Comparison of aerial photographs from 1975 and 1994 document succession from grass and shrub to a shrub thicket of bayberry, winged sumac, and several other species. Native and non-native trees include black cherry, Japanese black pine, sassafras, Alianthus altissima, American holly, and gray birch. Small pockets of grass remain (about 10% of the project area), populated by little bluestem, switch grass, and panic grasses. Much of the project area has been colonized by non-native vegetation. About 2 acres near the visitor center are managed as butterfly habitat. The shrub thicket adjacent to Cross Bay Boulevard is marginal for nesting because of traffic disturbance. The value as forage is higher, depending on the tolerance of individuals and species to disturbance.

Issues raised in review of the 1997 EA include concern regarding habitat fragmentation. All literature reviewed discussed fragmentation in the context of large expanses of similar habitat and the effect to animals requiring a minimum area, a particular habitat type, or having large territories or ranges (Bentley and Catterall, 1996)(Maurer and Heywood, 1993)(Hutto, 1989)(Lynch and Saunders, 1991). The literature search disclosed no studies dealing with very small remnants or parcels, as would be created by one alternative. The value of small remnants would be low for nesting. The small remnants would provide some forage. Additional discussion can be found in the wildlife section. There are about 47 hectares of shrub thicket and grass west and 51 hectares east of Cross Bay Boulevard. The west side includes the upland created by the construction of West Pond.

Based on observation of growth rates of shrub thicket at Rulers Bar Hassock, the NPS estimates that restoration of disturbed areas would take approximately five years.

The US Fish and Wildlife Service responded to a request by the NPS for information that except for occasional transient individuals, no federally listed or proposed threatened or endangered species exist in the project area. Since no project activity would take place in Jamaica Bay, the National Marine Fisheries Service was not contacted.

New York State Department of Environmental Conservation identified three state listed threatened or endangered species found in the Jamaica Bay area:

The common tern nests on the margins of islands, including Rulers Bar Hassock. The piping plover has not been observed in the refuge since 1988. Osprey do not nest in the project area, although they forage the waters of Jamaica Bay and may occasionally roost in trees or on utility poles in the vicinity.

The New York State Department of Conservation lists the barn owl as a species of special concern that may be found in the project area. Other species were identified for Jamaica Bay, but are outside the project area and would not be affected.

Rulers Bar Hassock provides habitat for over 300 resident and migratory bird species. No data are available regarding the number of each species.

Spring migration extends from early April to mid-June. Most birds pass through between late April and late May. Autumn migration begins in mid-August and extends through late October with the peak between late August and early October.

Several reptile and amphibian species have been introduced to Rulers Bar Hassock. These include:

A variety of small mammals occur on Rulers Bar Hassock:

Gulls, herons, egrets and ibis nest on uplands of islands in the bay. Laughing Gulls and Common Terns nest along the margins.

Most literature on the effect of human activity focuses on nesting birds and species diversity.One study focused on visitor impacts for a broad range of species at Yosimite National Park (Foin, et.al., 1977). Research in Holland indicates recreation intensity is a significant factor determining the degree of effect, as is the duration within a weekly time frame (Van der Zan and Vos, 1984)(Van der Zan, et. al, 1984). High use on weekends with low use the rest of the week has signifigantly less effect than a high level of use that is continuous. The effect of increased visitation showed no significant effect for most species using an area so long as the highest use periods occurred on weekends. The site studied received little visitation during the week. The study indicated pedestrians have a higher impact than cyclists. When ranking the degree of impact, the study ranked the impact of pedestrians as base factor of one, and bicyclists as 0.5 because cyclists are have less effect. Visitation at Rulers Bar Hassock occurs primarily on weekends during spring and autumn migration periods and summer. The project area is outside the primary use area at Rulers Bar Hassock. The effect of current visitation has not been determined for any species found at Rulers Bar Hassock.

The overall effect of recreation intensity is contingent on both the response of each species and the level of disturbance on weekdays as compared to weekends. Current levels of use as described in the Visitor Use section indicate peaks on weekends and very light use during the week, with proportional seasonal variation. The response of birds to disturbance is highly individualistic and has not been quantified for most species. No studies could be located that quantify effects to non-nesting birds. Migratory birds would respond to activity and seek sites for forage and resting based on tolerance to activity. The effect of high levels of use in the West Pond area to nesting and migrant birds has not been determined.

The GMP provides for the balanced preservation and development of parklands so that significant natural and cultural features wihin the park are adequately protected and at the same time the numerous recreation resources are developed and made available for a variety of uses.

The GMP established management zones throughout Gateway to provide management policy and direction for all areas. Rulers Bar Hassock has four of the management zones described in the GMP (see Management Zones, Wildlife Refuge):

Protection: All submerged or tidal areas.

Use-by-reservation: Most upland areas.

Unstructured Recreation: The south gardens.

Development Support: The visitor center and associated parking.

The protection zone includes natural areas sensitive to human activity and are available for use only under special conditions. There are no areas zoned portection in the project area.

Use by reservation indicates areas sensitive to overuse. Access is controlled by scheduling groups and issuing permits to individuals. Low-impact uses allowed include nature study, environmental education, and hiking. Bicycling can be permitted on designated trails and paths, although none is permitted in the refuge at present. Most of the project area is in this zone.

Unstructured Recreation zones are managed to preserve natural vegetation and scenery while establishing sites that support casual outdoor use. Outdoor activities that require little supervision and few support facilities are allowed. Activities permitted include picnicking, walking, birding, kite flying, biking, and informal athletics. Facilities may include paths, bicycle trails, walks, group camping, and comfort stations. Roads are acceptable. Field space may be designated for overflow parking. The South Garden area is zoned unstructured recreation. The South Garden is outside the project area and would not be affected.

Development Support allows planting windbreaks and shaded areas for picnicking. Facilities in this zone support visitor use in adjacent zones. At Rulers Bar Hassock, the development zone is limited to the Visitor Center and associated parking area. The project area near the visitor center is in this zone.

In the GMP, the NPS also established policy regarding internal circulation. The GMP stated bicycle paths would be established in all Gateway units and provide access to most major areas of the park that are not zoned protection or use-by-reservation.

Use of the refuge at Rulers Bar Hassock is limited to pedestrians only, with accommodation to wheelchairs. Access is by permit only, issued at the visitor center. Although the South Garden is

zoned unstructured recreation, the only activities permitted are walking and birding. The Garden areas are effectively managed as use-by-reservation.

As stated in the Purpose and Need, this project is to improve the quality and range of access to the refuge, which enhances visitor experience and provides greater opportunity to educate people about wildlife and natural resources in the recreation area. It also increases opportunites to use alternative transportation modes.

Review of the 1997 EA resulted in comment that pathway use is incompatible with birding activity.

In 1998, 112,569 people visited the refuge at Rulers Bar Hassock. Visitation peaks in the autumn and is lowest in winter. Spring use is midway between. Visitation is lower during the summer (June, July, August) and winter (Dec., Jan., Feb.). The primary activity is bird watching. Use is centered around the West Pond areas. The north portion of the West Firebreak Trail receives the least use.

Most refuge visitation at Rulers Bar Hassock takes place around West Pond. About 5% of visitation occurs on the West Firebreak Trail north of West Pond. The average visit is about 2 hours.

Most visitation (66%) occur on weekends, peaking late morning to mid-afternoon. During spring-and autumn migrations, many bird watchers arrive earlier. Most people arrive by car. The parking lot capacity at the visitor center is 76 vehicles. The lot is essentially full by mid-morning on weekends with favorable weather. Numerous school groups visit the refuge for educational programs in spring and fall. They generally arrive by bus. Since the school groups arrive during the week, there are no parking conflicts. Few (3-5%?) arrive by public transportation or bicycle. A bicycle rack is provided at the visitor center.

The West Firebreak Trail is mostly screened from the sidewalk by shrub thicket. The sidewalk is visible from the Trail at several points in the project area. For most of it’s distance, the West Firebreak Trail is greater than 100 feet from the sidewalk. The trail is closest near the visitor center. This segment receives little use because of it’s proximity to Cross Bay Boulevard.

As described above, the only activity permitted within the boundary on Rulers Bar Hassock is birding, walking on established trails, and picnicking in the South Gardens area. As stated earlier, with the project area zoned use-by reservation, biking on a designated trail is permissible.

Two concerns have been raised regarding unauthorized use. Concern has been expressed that there will be an unacceptable increase of bicyclists leaving the greenway and riding on trails in the refuge and there may be use of the greenway by motorized vehicles. There are several places along the sidewalk that are unauthorized short cuts from the West Firebreak Trail. The shortcuts occur in open, grassy areas where there is a direct line of sight to the trail. They became established as visitors crossed from one side of Cross Bay Boulevard to the other to access different parts of the refuge. The concern is these shortcuts will be used by cyclists to access the refuge, disturbing wildlife and other users. There have been only a few occurrences each year over the last several years. The NPS has erected signs indicating access is restricted. The signs indicate bicycles and motorized vehicles are prohibited in the refuge. The NPS has also erected rustic fence barricades and planted vegetation to discourage use. Concern was specifically directed at the use of mountain bikes. The perception is these types of bicycles would cause excessive resource and facility damage. There is no estimate available quantifying the frequency of unauthorized access, by bicycle or pedestrians. The refuge staff reports the current level of occurrence has caused no significant resource damage.

The second concern is that motorized vehicles will use the greenway. There are a few instances of unauthorized motorized vehicles using existing greenways or pathways at Gateway. New York City has noted some unauthorized use of motorized vehcles on greenways, generally for access to fishing or picnicing areas.

The project area is an urban transportation corridor flanked by shrub thicket. The sidewalk is 5 feet wide with a street tree strip, also 5 feet wide adjacent to the curb. Sycamore and London Plane Trees planted every 30 feet line the boulevard in the street tree strip. There are many gaps of one to several trees. The street trees are infected with Anthracnos, a bacteria that causes defoliation in wet years. The bacteria is not fatal, but results in diminished vigor and appearance. There are no extensive open views of the bay because of the dense vegetation west of the boundary. The shrub thicket grows up the edge of the sidewalk for most of the distance. The NPS mows the vegetation near the refuge headquarters and at the entrance to the visitor center. Noise levels are high because of traffic proximity and speed.

Concern was expressed regarding the safety of pathway users, particularly pedestrians. One commentor expressed concern regarding violent crime. Pedestrians and cyclists are currently separated. There have been no reported incidents of violent crime along this section of Cross Bay Boulevard or in the refuge. Federal and state guidelines recommend a minimum 12-foot width for multi-use pathways to provide adequate safety. The recommended design speed is 20 mph. The minimum sight distance is 100 feet and curves should have no less than a 95 foot radius. A curve radius of 595 feet would provide a design speed of 40 mph.

The horizontal and vertical alignment follows the design criteria of the Guide for the Development of Bicycle Facilities, (The American Association of State Highway and Transportation Officials, 1991). It is recommended that a multi-use pathway have 12-foot pavement width when there is substantial bicycle volume; has shared use with joggers and other pedestrians; and to accommodate maintenance vehicles. Shoulders should be at least 2 feet wide, although 3 feet is recommended. Vertical clearance from obstructions should be a minimum of 8 feet. The separation between the bicycle pathway and an adjacent street or highway should be a minimum of 5 feet. If this is noy possible, a suitable physical divider should be constructed.

At the recommended design speed a minimum radius of curvature would be between 95 and 155 feet. The grade is relatively flat (between 1 and 4 percent) which is acceptable to maintain the desired bicycle speeds and will provide an easily accessible route to all. The minimum sight distance for this grade is about 130 feet.

There are two intersections along the pathway. The intersections at the visitor center and the parking areas south of the Addabbo Bridge (North Channel) have traffic signals and painted crosswalks, which will be compatible with the proposed travel way of the multi-use pathway. Approach grades to these intersections are relatively flat. Signs and pavement markings (in accordance with the Federal and New York State Manual of Uniform Traffic Control Devices) will be installed, including warning and stop signs before each intersection. A centerline stripe will provide additional control.

Site fences and vegetation will be placed at least 5 feet from the edge of the pathway to provide adequate clearance and prevent accidents.

To assure control, motor vehicle access would be prevented by using bollards or other appropriate barriers, although these barriers may create a hazard for cyclists. Where there are bus stops, , streets, parking lots, trails, or other facilities that may create a conflict hazard, the pathway alignment would be adjusted to prevent conflict.

Three groups of cyclists are recognized based on level of experience and skill. Group A: advanced bicyclists are experienced riders who can operate under most traffic conditions. Group B: basic cyclists are casual or new adult and teenage riders who are less confident of their ability to operate in traffic without special provisions for bicycles. Group C: children are pre-teen riders whose roadway use is often initially monitored by parents. (NYSDOT, 1995)

Appropriate construction permits would be obtained from City and State agencies before construction is initiated.

A Tidal Wetlands Permit from New York State Department of Environmental Conservation may be necessary because some areas of pavement might fall within the 150 feet of mean high water. The project will be reviewed to determine proximity to mean high water.

Surveys of the area have been conducted by the NPS and no resources were found. There are cultural resources in the vicinity of the project area, but none above or below ground are within the project area itself and would not be affected.

A programmatic exclusion is an action that would not be likely to have adverse effects on cultural resources and may be implemented without further consultation with the state historic preservation officer or the Advisory Council on Historic Preservation during the design stages. No programmatic exclusions are listed for this project. There also would be no actions listed as "actions not excluded but requiring no further review" and none listed as "actions requiring further review."

In an archeological overview done in the mid-1980s, no evidence was found of any prehistoric or historic activity in the project area. The staff of Gateway National Recreation Area, in consultation with state offices, would provide leadership to city agencies to determine any necessary steps in archeological evaluation.

Any hazardous materials found during construction would be identified and removed in compliance with all applicable federal, state, and local laws and regulations governing the removal of such materials. None are anticipated.

Greenway success results from continuous, active, enthusiastic participation by all partners. Recognition of the roles and contributions of each member is important. Ideas from the citizen constituency are critical to the establishment of a greenway, as are initiation, correspondence, lobbying, and funding approval. Citizen constituencies help to "mainstream" greenways in agency plans and programming initiatives. Correspondingly, agency planning and design with citizen input are equally important to implementing the greenway. Continuing to capitalize on the energy and success of each phase is also required. Continuous, focused, and timely review and coordination reminds partners of their roles. It helps to tie the whole vision together and encourages each partner toward continued contributions to the overall vision.

A memorandum of understanding between New York City and the National Park Service might be necessary to make the construction of this phase of the greenway possible. The agreement could include discussion of various issues related to the joint management of the corridor. Subjects to be discussed would include all anticipated actions in the corridor, in particular pathway maintenance, snow removal, utilities, fence removal and replacement, signage, mowing, and litter pickup. The agreement would be in place before contracting activities were initiated.

It is common for citizen groups, nonprofit organizations, and other agencies to make material, labor, or in-kind contributions to greenways. Contributions vary regionally and locally. Active participation in greenway efforts builds a sense of pride, investment, and ownership in the greenway. Activities such as those listed below often provide double benefits; that is, they could also contribute to an educational or recreational experience for participants.

Imagine a family planting a shade tree at a wayside area on a cool Saturday morning in early October. Imagine a park ranger providing a lunchtime chat on plant ecology or local history. Further, imagine the same family coming back in later years to sit on a bench and enjoy the greenway under the shade of the tree they planted many years earlier.

Agencies that implement greenways frequently develop complementary programs to help promote overall greenway awareness and understanding. Initiatives vary, depending on the creativity of enthusiasm of employees. Frequently these initiatives help not only to enhance the greenway experience, but also to achieve the overall agency mission. The following may be some initiatives that could be initiated by the National Park Service.

The Rockaway Gateway Greenway Advisory Board has been the primary means of public involvement associated with this project. The controversy associated with the greenway proposal was not anticipated. Public review of the 1997 EA generated numerous comments and concern regarding the loss of refuge land. Advisory Board meetings were held periodically since distribution of the 1997 EA. An alternaties workshop was held in August, 1999 for Advisory Board groups to resolve conflicts. This EA is being distrubited for public review and comment.

U.S Department of the Interior

New York City

New York City

Department of City Planning

Department of Transportation

New York State

U.S. Department of Transportation

Federal Highway Administration, New York City Area Office

National Park Service

7 pages

Breeding Birds

Winter Residents:

Spring and Autumn Migrants:

United States Department of the Interior · National Park Service