5/DRAFT 29.79/3:EL I atue of Liberty National IVIonumentand Ellis Island ClemsonUniversii 3 1604 015 741 178 Ellis Island Development Concept Plan RAFT ENVIRONMENTAL IMPACT STATEMENT I HoWto You may hand deliver your comments at the public meetings to be announced in the media Comment following release of this document. Meeting details will be posted on the park's website on thispian at http://www.nps.gov/elis. All comments mustbe postmarked, transmitted, or omments on this Development Concept logged as received no later than 60 days from the Plan /Draft Environmental Impact Statement are date the Environmental Protection Agency filing welcome. If you wish to respond to the material notice is published in the FederalRegister contained within this document, you may submit Our practice is to make comments, including your comments by any one ofseveral methods. It names and addresses of respondents, part of the is important to note that all comments must be public record. We may not consider anonymous received not more than 60 days from the date the comments. However, individual respondents may Environmental Protection Agency filing notice is request that we withhold their addresses from the published in the Federal Register This deadline decision-making record, which we will honor to will be posted on the park's website at the extent allowable by law. There also may be http://www.nps.gov/elis and will be published in circumstances in which we would withhold from a press release in the local newspapers. You may the record a respondent's identity, as allowable by mail written comments to: law. Ifyou wish us to withhold your name and/or Superintendent address, you must state this prominently at the Development Concept Plan beginning of your comment. We will make all Statue ofLiberty NM/EUis Island submissions from organizations orbusinesses, and Liberty Island from individuals identifying themselves as New York, NY 10004 representatives or officials of organizations or You may also comment via email to the address businesses, available for public inspection in shown on the park's website which is their entirety. http://www.nps.gov/elis. Please submit Internet The "Executive Summary" for this document comments as a text file avoiding the use ofspecial is available on tiic park's website at characters or any form of encryption. Include http://www.nps.gov/elis. The entire document is your name and return address in your Internet also available on the park's website, plus the NPS message, and ifpossible, request a return receipt planning website at http://www.planning.nps.gov. when sending your message. PUBLIC DOCUMENTS UNITED STATES DEPARTMENT OF THE INTERIOR DEPOSITORYITEM NATIONAL PARK SERVICE DEVELOPMENT CONCEPT PLAN JUN 4 2003 DRAFT ENVIRONMENTAL IMPACT STATEMENT CLEMSON STATUE OF LIBERTY NATIONAL MONUMENT AND ELLIS ISLI^^ UBRARY New York Harbor, States ofNew York and New Jersey Lead Agency: Department ofthe Interior, National Park Service, Northeast Region ThisDevelopment ConceptPlan/DraftEnvironmentalImpactStatementhas beenpreparedby theNational Park Service (NFS) to consideralternative adaptive reuses forthe 30 remaining vacant and deteriorating buildings of Ellis Island and access to the island. This environmental impact statement evaluates three—alternatives regardingthe ftiture ofthe vacanthistoric buildings ofEllis Island. "Ahemative 1: No Action Continuation ofExisting Management Direction," describes the conditions afteronly temporary stabilization ofthe buildings and the existing vehicular service bridge. The eventual result ofno action is the complete ornear-complete loss ofthese resources as the effects of temporary stabilization expire. This alternative provides a basis ofcomparison tojudge the potential impacts of the two "action" alternatives. Both action alternatives would include a new managed limited-access bridge to New Jers—ey foremergency and service vehicles; the no-action alternative wouldnot. "Alternative 2: Ellis Island Partners Day Use Only," describes conditions that would result afterthe buildings are rehabilitated as a campus fornonprofit/ institutional uses complementing the historic themes ofEllis Island. "Alternative 3: Ellis Island Institute with Overnight Accommodations" (thepreferred alternative), describes conditions ifthe buildings were rehabilitated as a conference/retreat center. The institute would have overnight accommodations to host meetings, retreats, and workshops on issues such as immigration, world migration, public health, family history, historic preservation, and the environment. The preferred alternative would accomplish the goals and objectives set forth in the NPS 1982 Statue ofLibertyNationalMonument GeneralManagementPlan andwould offerthe greatest potential for long-term economic viability. The public review and commentperiod on thisDevelopment ConceptPlan IDraftEnvironmentalImpact Statementwill end 60 days afterthe Environmental Protection Agency has acceptedthe document andpublished a Notice ofAvailability in theFederalRegister. Following public review and comment, a final development concept plan and final environmental impact statement will be distributed. Thirty days afterdistribution ofthose final documents, the National Park Service will publish its Record ofDecision (ROD) in theFederalRegister. Thereafter, the National Park Service will coordinate with parkpartners to identify and/orsolicit specific adaptive reuses forEllis Island'shistoricbuildings and landscape. Proposals will bejudged on thebasis oftheir compliance with this document, theireconomic viability, and othercriteria that will be enumerated within the Request for Proposals. All review comments must be receivedbeforethe end ofthe 60-day public review period and shouldbe addressedto: •,\ Superintendent Statue ofLiberty NM/EUis Island ^ Liberty Island O NewYork, NY 10004 CO \ % to Digitized by the Internet Archive in 2012 with funding from LYRASIS IVIembers and Sloan Foundation http://archive.org/details/developmentconceOOnati EXECUTIVE SUMMARY DRAFT ENVIRONMENTAL IMPACT STATEMENT FOR THE STATUE OF LIBERTY NATIONAL MONUMENT AND ELLIS ISLAND DEVELOPMENT CONCEPT PLAN INTRODUCTION PURPOSE AND OBJECTIVES OF TAKING ACTION Ellis Island occupies a singularly unique place in America's heritage. It was the primary United States The overall purpose of the Development Concept immigration station from 1892 to 1954 when mor—e Plan is to provide for the long-term rehabilitation, than 12 million people passed through the island reuse, and protection of cultural and historic the greatest wave of migration in this country's resources on Ellis Island. This statement relates history. Today, 40% of Americans can trace their directly to the objectives outlined in the 1982 Statue family histoid via Ellis Island. In 1965 President ofLibert}' National Monument General Management Lyndon Johnson added Ellis Island to the national Plan. The NPS objectives are to park system as a part of the Statue of Liberty National Monument. This was done in recognition of protect the Island's cultural and natural resources its significance in American history, architecture, and culture. provide for the long-tenn rehabilitation and adaptive reuse of the island's Beaux-Arts When Ellis Island closed in 1954, abandonment led campus of integrated brick, stucco, and tile to a period of severe decline. In 1990, following structures with connecting corridors of masonry extensive rehabilitation, the Main Building was and glass, within a designed landscape of lawn reopened to the public as the Ellis Island Immigration and mature trees Museum, and subsequently, two adjacent buildings were rehabilitated as administrative offices. The provide uses that complement the island's island's many remaining structures, however, remain historic themes and related contemporary issues abandonedandthreatened. and that can be economically sustained provide enhanced opportunities for visitors to NEED FOR THE ACTION understand and experience Ellis Island's history, including managed public access to most ofthe In recent years, concern for the accelerating rate of island's cultural landscape deterioration helped to rally private, state, and federal support for a program of temporary stabilization to provide ahigh level ofsecurity and safety forthe the island's 375,000 square feet of vacant buildings visitors, staff, and resources ofEllis and Liberty and corridors. The need for the temporary Islands, and the ability to respond quickly in stabilization program prompted the National Park emergency situations Service (NPS) to identify a range of reuse alternatives that would lead to long-term provide thematically appropriate, safe, and rehabilitation and reuse ofthese buildings in order to economically viable access to and from the expand visitor experiences and provide some level of island in support of its adaptive reuse and economic sustainability. "Figure ES-1: Ellis Island securityrequirements. Map Depicting All Structures" identifies the structures included in this Development Concept Plan. ISSUES This environmental impact statement analyzes the The NPS interdisciplinary planning team identified consequences ofcontinuing to apply only temporary numerous issues through public meetings and agency fixes for stabilization of the vacant buildings and consultations. The following issues were raised service bridge for another 10 to 15 years (as through scoping: prescribed under the no-action alternative) or implementing one of the two "action" alternatives that propose long-tenn rehabilitation and reuse. DraftEnvironmentalImpactStatement 111 ExecutiveSummary Loss of cultural resources if rehabilitation does Groundwater not occur AirQuality Noise Delaying a permanent solution would increase costs in the long run Hazardous Materials Tourism Ifthe no-action alternative is selected, mitigation Park Administration for the loss of buildings should include documentation and interpretation Access to Ellis Island Access to Ferry Tenninals The federal government should pay for the Parking protectionofthese buildings Circulation Loss of bridge access would result in increased VisitorExperience safety and security concerns Ellis Island Infrastructure The plan should not include large-scale demolition or new constniction The following impact topics were considered but dismissed from flirther analysis because no impacts Jitneyaccess forthe public, retreatattendees, and from the actions in this environmental impact lodging guests from Jersey City may raise statement would occur: security issues with respect to boarding Museum Collections The pennanent bridge should allow pedestrian Wetlands access Land Use The bridge, or parking for the ferry to Ellis Environmental Justice andPopulation Island, may affect natural and cultural resources ofLiberty State Park ALTERNATIVES SELECTED FOR ANALYSIS The temporary (orpermanent) bridge are notpart of the cultural landscape and should be pennanently removed (or should not be The alternatives presented in this environmental constructed) impact statement were developed by the NPS staffof the Statue of Liberty National Monument and Ellis Island. The NPS Management Policies, the park's IMPACT TOPICS mission statement and goals, relevant laws and regulations, and public input all helped to direct and The following impact topics were analyzed in this shape the alternatives. environmental impact statement: Summary of Alternative Historic Architectural Resources — 1: No Action Continuation Cultural Landscapes OF Existing Management Direction Archeological Resources Geologic Resources and Soils Underthis alternative, maintenance and operations by Marine Sediments the National Park Service would continue. Current stabilization treatment ofthe abandoned and unused Floodplains buildings would carry on until all buildings have Vegetation/Threatened and Endangered Plants been completed. At the time of this writing, approximately 30% of the buildings have been Fish stabilized. Stabilization measures would include Wildlife/Threatened and Endangered Wildlife temporary ventilated wood and Plexiglas window Surface Water IV StatueofLirfrtyNationalMonumentandEllisIsland Existing Conditions Rehabilitated &c In Use Partially Rehabilitated Deteriorating Vacant &c Outdoor Areas Managed Public Access Restricted Areas No Public Access -J Ferry Boat Dock Ruins -^ k. C- HS-Ol Main Building - 172,000 NSF HS-02 Covered Walkway 6 HS-03 Baggage & Dormitory - 125,000 NSF HS-04 Kitchen & Laundry - 25,000 NSF HS-05 Powerhouse 1 - 20,000 NSF HS-07 Oil Storage Building HS-10 Bakery & Carpentry - 10,100 NSF HS-12-1 Corridor 1 (C-1) HS-12-2 Corridor 2 (C-2) HS-12-3 Covered Way 3 (C-3) HS-12-4 Covered Way 4 (C-4) HS-12-4A Covered Way 4 Extension HS-12-5 Covered Way 5 (C-5) HS-13 Covered Ways 7A & 7B HS-14 Ferry Building - 4,800 NSF HS-15 Immigrant Building - 14,300 NSF HS-16 Covered Ways 8A, 8B & 8C - 7,002 NSF HS-17 Hospital Out-Building - 3,967 NSF HS-18 Psychopathic Ward - 2,814 NSF HS-19 Old Hospital - 33,604 NSF HS-20 Hospital Administration - 14,969 NSF HS-21 Hospital Extension - 29,442 NSF HS-22 Recreation Hall - 6,300 NSF HS-23 Recreation Shelter - 320 NSF HS-24 Powerhouse 2 & Morgue - 7,330 NSF HS-25 Lab - 247 NSF HS-26 Office - 2,143 NSF HS-27 Corridors 9A, 9B, 9C, 9D & 9E - 3,712 NSF HS-28 Contagious Wards 11/12 (G) - 4,978 NSF HS-29 Contagious Wards 13/14 (E) - 4,978 NSF HS-30 Contagious Wards 15/16 (C) - 4,978 NSF HS-31 Contagious Wards 17/18 (C) - 4,978 NSF HS-32 Administration - 12,090 NSF HS-33 Kitchen - 1,002 NSF HS-34 Contagious Wards 19/20 (B) - 4,978 NSF HS-35 Contagious Wards 21/22 (D) - 4,978 NSF HS-36 Contagious Wards 23/24 (F/J) - 4,978 NSF HS-37 Contagious Wards 25/26 (H) - 4,978 NSF HS-38 Isolation Wards 27/28 (I) 4,978 NSF HS-39 Isolation Wards 29/30 (L) 4,978 NSF HS-40 Isolation Wards 31/32 (K) 4,978 NSF HS-41 Staff House - 4,265 NSF 50' 100' 150' 200' 250' HS-44 Granite Seawall HS-48 Flag Pole HS-54 Ferry Slip HS-57 Water Tower HS-64 Quadrangle Walkways Figure ES-1: Ellis Island Map Depicting NEW YORK HARBOR Existing Conditions ^ Rehabilitated & In Use ^ Partially Rehabilitated Deteriorating & Vacant I I Outdoor Areas Managed Public Access Restricted Areas No Public Access ,'•9 Ferry Boat & Dock Ruins Main Building - 172.000 NSF Covered Walkway 6 Baggage & Dormitory - laS.COO NSF Kitchen & Laundry - 25.000 NSF Powerliouse 1 - 20.000 NSF Oil Storage Building Bakery k Carpentry - 10.100 NSF -1 Corridor 1 (C-1) -2 Corridor 2 (C-2) -3 Covered iVay 3 (C-3) -4 Covered Way 4 (C-4) -4A Covered Way 4 Extension -5 Covered Way 5 (C-5) Covered Ways 7A & 7B Ferry Building - 4.800 NSF Immigrant Building - 14.300 NSF Covered Ways 8A. 8B & 9C - 7.002 NSF Hospital Out-Building - 3.967 NSF Psychopathic Ward - 2.814 NSF Old Hospital - 33.604 NSF Hospital Administration - 14.969 NSF Hospital Extension - 29.442 NSF Recreation Hall - 6.300 NSF Recreation Shelter - 320 NSF Powerhouse 2 i Morgue - 7.330 NSF Lab - 247 NSF Office - 2.143 NSF Corridors 9A. 9B. 9C. 9D 4 9E - 3.712 NSF Contagious Wards 11/12 (G) - 4.978 NSF Contagious Wards 13/14 (E) - 4.978 NSF Contagious Wards 15/16 (C) - 4.976 NSF Contagious Wards 17/18 (C) - 4,978 NSF Administration - 12.090 NSF Kitchen - 1.002 NSF Contagious Wards 19/20 (B) - 4.978 NSF Contagious Wards 21/22 (D) - 4.978 NSF Contagious Wards 23/24 (F/J) - 4.978 NSF Contagious Wards 25/26 (H) - 4.978 NSF Isolation Wards 27/28 (1) - 1.978 NSF Isolation Wards 29/30 (L) 4.978 NSF Isolation Wards 31/32 (K) 4.978 NSF Staff House - 4,265 NSF Granite Seawall Flag Pole Ferry Slip Water Tower Quadrangle Walkways Figure ES-1: Ellis Island Map Depicting ALL Structures AlternativesSelectedforAnalysis panels to subdue water infiltration and facilitate air Elements Common movement; temporary asphalt shingle roofs on areas TOAlternatives 2 and 3 where the removed original clay tiles would eventually be replaced or repaired; repointing of The economic feasibility of alternatives 2 and 3 is existing brick and stone masonry that has failed to dependent upon the adaptive reuse of the resist the weather; shoring ofcompromised or failing 30 buildings proposed for restoration. Reuse must structural and exterior wall elements; the also be complementary to the island's historic themes maintenance and temporary repair ofgutters, leaders, and related contemporary issues. Both of these are and other water-control techniques; removal and consistent with the objectives identifiedabove, which control ofinvasive vegetation thathas been damaging derive from the 1982 General Management Plan. the structures; and abatement and removal of debris The NPS intent to seek a private-sector partner(s) to and hazardous materials inside the buildings. The assist in the rehabilitation and maintenance of these stabilization procedures are only a temporary strategy historic structures, which is an important feature of to slow fiirther deterioration. Depending upon the both alternatives, was also first adopted in its 1982 condition ofa particular building, stabilization might GeneralManagementPlan. provide a 10- to 15-year period of suspended or slowed decay. These ongoing stabilization efforts Both action alternatives would ensure the would also include several interventions in the preservation of the defining characteristics of Ellis corridor system and to the utilities infrastructure. No Island's buildings and their environment while public access would be allowed in these stabilized providing some flexibility for reasonable adaptive structures. reuse proposals. The overall campus environment of Ellis Island would be preserved and its character- The ongoing NPS efforts to go beyond basic defining features would be retained, including stabilization of two of the buildings would also massing and scale, spatial organization and continue. The exterior ofthe Ferry Building already circulation, distinctive spaces and architectural has been restored, and the planned interior features, fenestration, building materials, and rehabilitation would be completed. The exterior of vegetation patterns. the Hospital Outbuilding and Laundry already has been restored, and the plans for interior rehabilitation There are a number of elements that are consistent of this building would be implemented. Depending across alternatives 2 and 3, as both these alternatives on funding/staffing, limited access may be allowed in meet the NPS goals for Ellis Island. The common these two buildings, as well as some additional elements are exteriorgrounds — Rehabilitation of all Ellis Island resources Under this alternative, the park would continue to Altemafives 2 and 3 propose rehabilitation efforts implement measures to increase security. The that are consistent with the guidelines of The existing temporary construction bridge would Secretary of the Interior's Standards for the continue to be used, subject to Federal Highway TreatmentofHistoricProperties. Administration inspection and permitting, until it — could no longer be sustained. At that time, all access Continuation offerry use The action alternatives would be by ferry orbarge. propose to continue the historic use offerry boats by both day-use and overnightvisitors. Ongoing or perpetual stabilization would not be — regarded as a viable or sustainable option because all Equal access provisions A program would be structures would eventually reach a point at which implemented to increase opportunities for low- they could not reasonably be reclaimed. While not income people to visit the site. A variety ofmethods provided for within this no-action alternative, to subsidize ferry fares forthese visitors wouldbe put demolition and removal would become a logical and into place; this could include free rides for school unfortunate future consequence. This would occur groups in targeted areas, reduced-fare days, and when temporary stabilization measures have run their special passes. course, and efforts to secure fiinding for rehabilitation have been unsuccessfial. DraftEnvironmentalImpactStatement Vll ExecutiveSummary — Construction ofa permanent bridge A managed This alternative proposes rehabilitation of Ellis limited-access bridge would be constructed in a Island's historic buildings and landscape over a 10- location to be detennined by subsequent permitting to 15-year period solely through private fiindraising procedures. The bridge would only be used for and future federal appropriations. A combination of operations, construction activities, maintenance, and partnerships, cooperators, and traditional concession deliveries, as well as for emergency vehicles and operations would provide visitor services, programs, evacuations. In the case of alternative 3, the bridge and routine maintenance of buildings. The National may also be used for drop-off of conference Park Service would have management oversight of attendees. the entire island. All ofthe building exteriors would — be restored and interiors completed to "core and Improvements to infrastructure Proposals for shell" condition, which means that interior finishes utility infrastructure improvements would be would be provided by future tenants. Over time, and provided by the National Park Service, or its as funding pennits, all ofthe unrestored buildings of designated partner, in support of rehabilitation and Ellis Island would be rehabilitated and occupied by a reuse of all remaining vacant and unrestored potentially diverse mix of cultural, educational, and buildings. other nonprofit institutions. To provide a visual — comparison for visitors, one or more selected interior Operating budget increases Implementation of spaces would be preserved or left in a stabilized either action alternative would require an increase in "ruin-like" condition for future research and thepark's annual operatingbase. interpretation. There would be no overnight accommodations. — Additional funding Annual operating subsidies from nonappropriated sources would be needed to Outdoor areas would be programmed for themed sustain partnership programs and building events and festivals. Some visitor services may be maintenance. provided through one or more concession agreements. — Enhanced security Both action alternatives propose a continuation of increased permanent security measures to include screening all visitors, Summaryof Alternative3: packages, and vehicles to Ellis Island. Also included Ellis Island Institute with is the continued implementation of emergency Overnight Accommodations evacuation procedures. (Preferred Alternative) Alternative 3 was chosen as the preferred alternative Summaryof Alternative 2: because it would best accomplish the objectives and EllisIsland Partners- Day Use Only goals set forth in the General Management Plan that was prepared by the National Park Service in 1982. The Ellis Island Partners concept would be managed In particular, this alternative fialfills to the greatest primarily by the National Park Service and would extent of any of the alternatives, objective 3, which create a campus of nonprofit and institutional uses states that alternatives must be economically that complement the purposes, themes, and sustainable. significance of Ellis Island. The nonprofit organizations and institutions that would make up the This alternative would have as a primary use, an campus ofpartners would offer visitor programs and "Ellis Island Institute" that would include a small exhibits relating to themes such as immigrant retreat/conference facility with a policy research contributions, worldwide immigration issues, ethnic center and administrative and study spaces. diversity, tolerance, human rights, refugees, public Supplemental uses would include cultural, health, family history, and other topics relating to the educational, and interpretive activities and programs. significance of Ellis Island. Office space for The retreat function would be associated with one or nonprofit organizations and institutions would be more nonprofit institutions and appropriate coiporatc appropriate under this concept, but general sponsors that would utilize the facilities to host commercial office space would not be pennitted. meetings, retreats, and workshops on issues such as immigration, world migration, public health, cultural and ethnic diversity, family histoiy, and historic viu StatueofLibertyNationalMonumentandEllisIsland